PLEASE NOTE:
Due to changes made by government through the housing standards review, from 1 October 2015 the following information note should be read alongside this policy:
Use of information notes to aid implementation of the local plan was agreed by cabinet on 7 October 2015. View the report here.
​Policy DM12 Principles for all residential development
Residential development whether by new build or conversion will be permitted except where it:
- is on land specifically designated for non-residential purposes in this plan or the Site allocations plan;
- it is within a specified distance from a notifiable hazardous installation defined under policy DM11 and there is an unresolved objection from the Health and Safety Executive;
- is within or immediately adjacent to the Late Night Activity Zone (Policy DM23 will apply), or;
- (where permission is required) involves the conversion of non-residential floorspace at ground floor level within the primary or secondary retail area or a district or local centre (Policies DM20 or DM21 will apply).
Development proposals will be expected to maximise opportunities for the conversion and reuse of existing residential and commercial premises for housing where this is achievable and practicable.
Subject to the exception criteria above, such proposals will be strongly supported where premises are underused or long-term vacant.
All residential development should comply with the following criteria in addition to the requirements of other policies:
a) Proposals for development should not compromise the delivery of wider regeneration proposals and should be consistent with the overall spatial planning objectives for sustainable development set out in the JCS and policy DM1 of this plan;
b) Proposals should have no detrimental impacts upon the character and amenity of the surrounding area (including open space and designated and locally identified natural environmental and heritage assets) which cannot be resolved by the imposition of conditions;
c) Proposals should contribute to achieving a diverse mix of uses within the locality, taking account of individual site proposals in the Site allocations plan, other relevant development plan documents and neighbourhood plans and having regard to the overall housing delivery targets set out in the JCS. A mix of uses including housing will be encouraged and accepted on individual development sites where this is achievable and practicable;
d) Proposals should provide for a mix of dwellings, in terms of size, type and tenure including (where the size and configuration of the site makes this practicable and feasible) a proportion of family housing and flats to meet the needs of the community. The mix will be based on the findings of the Housing Needs Assessment or subsequent assessments;
e) Proposals should achieve a density in keeping with the existing character and function of the area, taking account of the significance of heritage assets where relevant and the proximity to local services, and/or public transport routes. At least 40 dwellings (net density) per hectare should be achieved unless this would have a harmful impact on character and local distinctiveness of the area or there are other exceptional circumstances which justify a lower density. In the city centre, within and adjoining district and local centres and in other locations of high accessibility higher densities will be accepted taking account of identified housing needs and the need to protect character, local distinctiveness and heritage significance; and
f) For all proposals involving the construction of 10 or more dwellings, at least 10% of those dwellings will be built to Lifetime Homes standard (or equivalent).
Supplementary text
12.1 The NPPF, in Section 6: Delivering a wide choice of high quality homes emphasises the critical importance of planning effectively for housing delivery and (in particular) significantly boosting the housing supply. The JCS sets the overall housebuilding levels needed to achieve the ambitious housing growth required in the greater Norwich area to 2026. For the city of Norwich the new dwelling requirement over this period (calculated from a base date of April 2008) is 8,592 dwellings. Over and above existing commitments – that is, sites that already have planning permission for housing development and land already earmarked for housing in other adopted plans - there is a need for additional housing sites to be identified in Norwich sufficient for 3,000 extra homes over the plan period. The Site allocations plan provides for this level of allocation by identifying specific sites for housing development as well as mixed use development proposals with an element of housing. The Housing Topic paper provides further detail on the background to housing provision in Norwich generally as well as describing the national policy context for housing delivery as set out in the NPPF. JCS policy 4 sets out the broad policy requirements for the quantity and mix of housing in greater Norwich, including affordable housing, housing with care and specific provision for Gypsies and Travellers (see policy DM14 of this plan).
12.2 In order to deliver the challenging housing requirement set out in the JCS, it is not considered appropriate to phase the release of housing sites.
12.3 The purpose of policy DM12 is to set out the key development principles which should apply to all proposals for new housing in Norwich irrespective of whether these come forward on land which is already earmarked for housing or not. Since Norwich is a predominantly urban area with relatively few large areas of undeveloped land suitable for housebuilding, a significant proportion of new housing in the past has been delivered on small sites and other land which has not previously been identified for development. These are known as windfall sites. It is anticipated that this trend will continue and further windfall sites will come forward which are not already accounted for in the Site allocations plan and other plans, helping to augment the overall housing supply in the city.
12.4 The historic contribution of windfall sites in Norwich as a continuous and reliable source of supply shows that windfall sites may legitimately be included as part of the city’s five-year housing land supply calculation (see NPPF paragraph 48). The Housing topic paper contains more discussion on this issue.
12.5 This policy supplements the general design criteria of policy DM3. It applies to all forms of housing development, including both market and affordable housing, dwelling houses, flats, houses in multiple occupation (HMOs), residential institutions, student accommodation and communal co-operative housing schemes run by and on behalf of their residents, known as co-housing.
12.6 As an urban area at the heart of the sub-region, Norwich is the most sustainable location for housing growth. Residential development will thus be broadly acceptable across the city, except where land or premises are clearly designated and intended for alternative uses or development would prejudice wider regeneration objectives. The NPPF emphasises the valuable contribution that the reuse of empty housing and other buildings for residential purposes can make, requiring local authorities to “normally approve planning applications for change to residential use and any associated development from commercial buildings (currently in the B use classes) where there is an identified need for additional housing … provided that there are not strong economic reasons why such development would be inappropriate” (paragraph 51).
12.7 The city council acknowledges that in the majority of cases beneficial residential conversion of existing housing and commercial buildings can be encouraged and supported and will normally look favourably on such proposals. However, it is also recognised that the specific economic objectives of this plan and the JCS may be compromised by the indiscriminate acceptance of housing in certain locations. For example, the JCS includes a requirement (justified by objective evidence) to protect employment land for its designated purpose and to accommodate substantial office based business growth focused within and close to the city centre (policies 5, 11). Consequently this plan must seek to provide for that essential growth by facilitating the development of office accommodation in the city centre and seeking to maintain a supply of existing high quality office accommodation where it is suitable can help to meet identified requirements (policy DM19).
12.8 Similarly, to implement the JCS and support the objectives of the NPPF in relation to the vitality of town centres and healthy communities, policies DM20 and DM21 seek to manage the use of ground floors in the primary shopping area and in local and district centres to protect their retail, commercial and community functions, in particular to sustain the vitality of a strong, vibrant and diverse primary shopping area which has exhibited generally low levels of vacancy at a time when many other centres are in decline. The city council can at present see no compelling justification for accepting residential use at ground floor level in primary retail frontages (which are demonstrably successful and vibrant parts of the central shopping area), but will encourage and support residential use in secondary areas in appropriate cases, consistent with the need to retain a diversity of specialist and independent shopping and supporting uses, promote the evening economy, or (as with Elm Hill) to maintain their particular character and distinctiveness for visitors.
12.9 As well as the economic reasons cited above it is also important that any housing provided through conversion and reuse should be of an appropriate standard and should not result in unacceptable impacts on the amenity and living conditions of future residents (NPPF: Core planning principles, paragraph 17 and policy DM2 and DM11 of this plan). To this end, policy DM23 seeks to safeguard existing residents from, and prevent the exposure of potential new residents to, the impacts of noise and disturbance within and adjacent to the Late Night Activity Zone.
12.10 As part of a sustainable approach to using land, mixed use developments will be promoted where practicable. Housing can make a valuable contribution to mixed use schemes. The council will positively encourage the conversion of vacant buildings, or parts of buildings, to housing. Within the city centre and district and local centres, particular encouragement is given to conversion of space above shops and other commercial premises where this would not give rise to unacceptable impacts on living conditions.
12.11 Major schemes (10 or more dwellings) will normally be expected to include a mixture of types and sizes of dwellings unless the size and configuration of the site makes this impractical. It is important that schemes which have the scope to do so can include a proportion of family homes, as well as provision for single and two person households. Local housing needs are informed by local housing market assessments, which include examination of the nature of current and future households, the type of demand for housing which will result, and the particular accommodation needs of different groups. For Norwich, the Strategic Housing Market Assessment 2007 and subsequent reviews have informed the JCS and the overall approach in this plan, and these will continue to be reviewed and updated on a regular basis. Such assessments have traditionally been confined to the accommodation needs of those requiring affordable housing and other forms of social housing, but in order to address the full range of housing need this policy will also need to take account of the relevant market signals and trends in the private sector.
12.12 The findings of previous housing needs assessments demonstrated a pressing need for affordable housing in the city. Policy 4 of the JCS requires a proportion of affordable housing on all sites of five or more dwellings in accordance with the most up-to-date needs assessment. The affordable housing policy requirement (in terms of percentage required and site size thresholds on which it will be sought) has been adjusted to take account of the findings of the Greater Norwich affordable housing viability study published by Drivers Jonas Deloitte in 2010.
12.13 The proportion of affordable units sought is on a sliding scale ranging from 20 percent on sites of between 5 and 9 dwellings up to a maximum of 33 percent on sites of 16 dwellings and over. This proportion may be reduced by negotiation where it can be demonstrated that site characteristics and the need for essential infrastructure provision, in combination with the affordable housing requirement, would render the site unviable in prevailing market conditions.
12.14 When negotiating on affordable housing requirements and contributions, the city council will take account of any changes in national policy affecting the minimum size of housing scheme and/or minimum floorspace threshold for which an element of or contribution to affordable housing can be requested.
12.15 It is important that proposals maximise efficient use of a site and of land as a whole in the city. Higher density development is promoted in the most accessible locations and close to services, in and around the city centre and other centres. In general housing development in the city centre has achieved very high densities, whilst in some other parts of the city development has been permitted in the past at lower densities. Generally, this policy seeks to achieve densities which are appropriate and consistent with the character of different neighbourhoods, whilst achieving high quality design and an appropriate mix of dwelling type and size. Poor design that would lead to development which would appear cramped or conflict with neighbourhood amenity and character will not be supported. At least 40 dwellings (net density) per hectare should be achieved unless this would compromise the character and local distinctiveness of neighbourhoods which are characterised by low density housing and an open landscape character, or there are exceptional circumstances which justify a lower density. These circumstances might include the need to preserve or enhance the setting of environmental and heritage assets or a requirement for reduced density consequent on ground stability considerations.
12.16 Higher densities may be achievable within the city centre and other highly accessible locations through the use of car free and low car housing which is considered in policy DM32 of this plan. The acceptance of particular densities may also be determined by viability considerations, since demand patterns change over time, particularly in relation to the demand for flats and family houses.
12.17 In accepting a range of different sizes, types and densities of new housing, it is necessary to meet the housing targets in the JCS for 3,000 new homes over the plan period over and above previous commitments. Housing completions will be monitored (in accordance with the monitoring framework in appendix 9) to ensure that housing supply requirements are being met.
12.18 It is important that provision is made for those who have particular needs. Building regulations require all dwellings to be constructed so they are accessible for disabled people visiting the house or flat; however this does not provide for those who become dependent upon a wheelchair during their lifetime. All public sector funded housing was required to achieve the Lifetime Homes standard by 2011. This policy requires that 10% of all homes on sites of 10 or more dwellings to be built to this standard to increase the availability of housing in the private sector which can be built or readily adapted to cater for people’s needs and to allow people to retain in their homes rather than having to move to more specialist accommodation.
12.19 When assessing planning applications for residential development, many of the policies within the plan are applicable. The following are of particular relevance:
- Private and shared public amenity space – policy DM2;
- Internal space standards – policy DM2;
- Landscaping and green infrastructure – policy DM3;
- Layout and design – policy DM3;
- Open space – policy DM8;
- Bin and cycle storage – policy DM31;
- Parking – policy DM31.
References
- NPPF: CLG, 2012: Section 6: Delivering a wide choice of quality homes.
- National Planning Practice Guidance, CLG 2014: Design; Housing and economic development needs assessments; Housing and economic land availability assessment.
- JCS policy 1: Addressing climate change and protecting environmental assets.
- JCS policy 4: Housing delivery.
- JCS policy 9: Strategy for growth in the Norwich Policy Area.
- JCS policy 11: Norwich city centre.
- JCS policy 12: The remainder of the Norwich urban area, including the fringe parishes.
- JCS policy 20: Implementation.
- Greater Norwich sub-region evidence base for a housing market assessment: A study of housing need and stock condition (2006).
- Greater Norwich housing market assessment (2007) and subsequent updates.
- Greater Norwich affordable housing viability study (2010).
- Greater Norwich housing strategy 2008-2011.
- Greater Norwich local investment plan and programme.
