Greater Nottingham Strategic Plan - Preferred Approach Consultation (January 2023)
Greater Nottingham Strategic Plan: Preferred Approach
Chapter Five: Approach to Housing Need
5.1 The NPPF sets out the Government's approach to significantly boosting the supply of homes and confirms that the standard method for assessing local housing need should be the starting point for determining the minimum number of homes required, unless exceptional circumstances justify an alternative approach. Nottingham City is one of the 20 largest urban local authorities in the Country, accordingly the standard method applies a 35% uplift to its housing need. The Government justifies this by arguing it will promote brownfield development, and that changes to the planning system, such as permitted development, will facilitate more new homes through changes of use of existing buildings. The approach to housing provision is set out in the Greater Nottingham Housing Background Paper (2022).
5.2 Nottingham City does not have the capacity to meet the entirety of its need once the 35% uplift has been added, and so its housing target is based on the anticipated housing land supply over the plan period. Including the 35% uplift, Nottingham City's standard method need between 2022-2038 is 28,368, against an estimated supply of 25,760, a difference of 2,608. For all the other Councils, the housing target is calculated using the standard method. Each of these Councils also applies a buffer to the housing need figure to allow for flexibility and to ensure that housing need is met. No buffer is applied to the City's housing target, as the target is the available housing supply.
5.3 The preferred approach to housing provision is:
| Preferred Approach: Housing Provision 5.3.1 A minimum of 49,900 new homes (2022 to 2038) will be provided for, distributed as follows:
To include (numbers are indicative):
5.3.3 Approximately 1,650 homes in Gedling adjoining Hucknall Sub Regional Centre (which is in Ashfield District). To include Sustainable Urban Extensions at (numbers are indicative):
5.3.4 Approximately 6,690 homes beyond the main built up areas of Nottingham in Rushcliffe, including (numbers are indicative):
5.3.5 The remainder of homes will be provided elsewhere, including in or adjoining the Key Settlements of: In Broxtowe, through existing commitments at:
In Gedling, through existing commitments and possible new allocations at:
In Rushcliffe, through existing commitments at:
5.3.6 In other settlements development will be smaller scale as defined in Part 2 Local Plans. |
5.4 The total housing provision between 2022 and 2038 for the four Council areas is approximately 52,300 (housing target plus minimum flexibility buffer).
5.5 This level of housing provision takes the Government's standard method as its starting point, but then adjusts it by firstly removing the element of the City Council's housing need that cannot be met within its boundaries, and secondly applying a buffer to the standard method housing need figure for each Borough. This buffer is to ensure the minimum housing figure for each Borough is met should some sites not deliver housing as expected, therefore where the buffer reduces as a result of delivery not being as expected, further sites will not be allocated to replace the capacity lost or delayed. These buffers do not form part of the housing need, and are therefore not included in 5 year land supply or housing delivery test calculations.
5.6 The shortfall in Nottingham City is not projected to occur until towards the end of the plan period, as the City Council's trajectory shows need plus 35% will be met until 2035/36. The shortfall is not redistributed to each Borough because it is part of the 35% uplift, and therefore not evidenced in terms of actual local housing need, nor in terms of delivery. The National Planning Practice Guidance also references the 35% uplift and states that "This increase in the number of homes to be delivered in urban areas is expected to be met by the cities and urban centres themselves, rather than the surrounding areas, unless it would conflict with national policy and legal obligations." (Paragraph: 035 Reference ID: 2a-035-20201216).
5.7 The National Planning Policy Framework is national policy, and includes the need to positively prepare Local Plans, "so that unmet need from neighbouring areas is accommodated where it is practical to do so and is consistent with achieving sustainable development". Provision elsewhere in Greater Nottingham would entail development in the Green Belt, which the Government has made clear can only happen in exceptional circumstances. The Councils do not consider unevidenced need to constitute exceptional circumstances, and paragraph 11.b)i states that land designated as Green Belt (footnote 7) can provide "a strong reason for restricting the overall scale [...] of development in the Plan area".
5.8 The fact that the shortfall in Nottingham City is expected to only arise towards the end of the plan period allows the opportunity for housing delivery and supply to be monitored. Current Government proposals require Local Plans to be reviewed regularly, with the next review expected to commence around 2028.
5.9 Notwithstanding the inability of Nottingham City to meet part of the 35% uplift to its housing need, the Plan's housing provision figure of 52,300 compares with the standard need figure (including 35% uplift for Nottingham City) of 52,510 homes. The level of provision therefore is sufficient to meet the vast majority of the objectively assessed housing need of the area as a whole, in line with paragraph 23 of the NPPF (2021), and will allow for a significant contribution to affordable housing need.
5.10 In terms of deliverability, the housing provision figure is considered to be challenging, and the housing trajectories in Appendix B show that a significant uplift in completions above past rates will be required if the total housing provision is to be achieved. However, the number is considered to be the appropriate level of housing provision to plan for, and completion rates across Greater Nottingham have increased consistently over the past few years. A significant amount of the Preferred Approach housing provision is already allocated in adopted Local Plans or has planning permission.
5.11 In line with sustainability principles, most of the main urban area development will be met within the main built up area of Nottingham. For example, sites at Boots (Broxtowe and Nottingham City), Stanton Tip (Nottingham City), and the Broad Marsh area (Nottingham City) are planned to deliver 2,200 homes. However, there is insufficient capacity to deliver all the required homes within the main urban area. In Gedling Borough development continues at Teal Close, Netherfield with 579 homes remaining and on the Gedling Colliery/Chase Farm site, with 625 homes remaining. In Rushcliffe Borough, Sustainable Urban Extensions are under development at Melton Road, Edwalton and at South of Clifton (also known as Fairham Pastures) and there is an allocation East of Gamston/North of Tollerton.
5.12 The Sub Regional Centre of Hucknall (which is in Ashfield District) is also an appropriate location for growth. In Gedling Borough, two sites which adjoin Hucknall are carried forward; the Sustainable Urban Extension at Top Wighay Farm (805 homes remaining) and land North of Papplewick Lane (83 homes remaining). An extension to the Top Wighay Farm site is proposed within existing safeguarded land for 640 homes.
5.13 The locations of Sustainable Urban Extensions have been selected based on evidence and the findings of the Sustainability Appraisal, and informed by previous consultations. These new developments will be exemplar in terms of their design, and will incorporate measures to adapt to and mitigate the effects of climate change, and reduce its causes.
5.14 Further details regarding the preferred sites are contained within Appendix A.
5.15 Development elsewhere in the Plan area will be concentrated in the Key Settlements and are considered to be strategic locations. The sites for development in these settlements will be determined through Part 2 Local Plans.
5.16 Other settlements not named in the policy will only have smaller scale development defined in the Part 2 Local Plans.
5.17 Due to some locally distinct factors within each of the Council areas, the detailed implementation of the broad spatial strategy has some variations across the Plan area. These are set out below.
Broxtowe Borough
5.18 The large majority of Broxtowe's housing provision is to be provided within or adjoining the main built up area of Nottingham. This is fully in accordance with the preferred strategy and it will focus housing delivery in or adjacent to the main built up areas in the south of Broxtowe, particularly in the Toton/Chetwynd area. Whilst Key Settlements are identified, these will only deliver existing commitments and will not be subject to further allocations or Green Belt release.
5.19 This approach is however very much dependent on forthcoming Government decisions on the provision of transport infrastructure, including potential new rail, road and cycling infrastructure. This will include delivery of housing, together with employment uses with the overall quantum and distribution of development subject to confirmation of land required for access.
5.20 Areas in the urban south of Broxtowe benefit from being in the strongest housing sub market, having the most comprehensive public transport links particularly to Nottingham and being in the greatest area of affordable housing need. The potential new transport infrastructure at Toton/Chetwynd would add significantly to the transport and economic sustainability of this area for new development. This strategy therefore performs best in terms of deliverability, sustainability, maximising opportunities for economic development, job creation and contributing to local housing needs. This strategy also ensures that the opportunity for future development on land in the vicinity of the possible new rail station at Toton assists with, and in no way compromises, the delivery of the station.
5.21 Awsworth, Brinsley, Eastwood and Kimberley are identified as Key Settlements. However, the delivery of new homes at these Key Settlements over the Plan period will be achieved only through existing commitments comprising a combination of sites which have already been allocated by the Broxtowe Part 2 Local Plan (2019) and sites within the settlements which already have planning permission or come forward as infill or windfall sites. It is not proposed that any further land adjacent to any of the Key Settlements is allocated for housing development during the Plan period and there will be no Green Belt release. Applications for housing development within these settlements will continue to be considered on their merits, subject to relevant policies, and there will be no general presumption that such applications should be refused.
5.22 In total, the anticipated housing supply within Broxtowe Borough from 2022 to the end of the Plan period in 2038 is around 9,790. This exceeds the housing target, and gives confidence that the housing target will be met in the event that delivery on any of the sites does stall or slow.
Gedling Borough
5.23 The Borough Council remains committed to a strategy that promotes urban living through prioritising sites for development firstly in the main built up area of Nottingham, and to a lesser extent adjoining it. As much housing as is feasible will be located within and adjoining the Nottingham urban area.
5.24 An extension to the Sustainable Urban Extension at Top Wighay Farm is proposed in recognition of Hucknall's Sub Regional Centre status. The remainder of Gedling's housing provision will be met elsewhere, including in or adjoining the Key Settlements for growth of Bestwood Village, Calverton and Ravenshead.
5.25 The total anticipated housing supply in Gedling Borough is 7,320 up to 2038. This is below the housing target and further non-strategic allocations will require consideration in the Part 2 Local Plan. A flexibility buffer of around 10% is proposed and will be provided through existing and future designations of safeguarded land.
Nottingham City
5.26 Due to its constrained boundaries, all development within Nottingham City is to be provided within the main built up area (any further opportunities adjoining the urban area are likely to be very limited). The approach is strongly focused on economic development in the City Centre, particularly as part of the Canal and Creative Quarters, and elsewhere at the Boots campus, and existing employment sites such as the former Horizon Factory. Housing provision is sufficient to deliver the Council's regeneration ambitions, building on a past track record of good delivery on brownfield sites. It also reflects other key Nottingham City priorities, particularly increasing the level of family housing provided in new development, to ensure the maintenance of balanced communities, and to allow choice to residents who would otherwise have to leave the City to meet their housing needs.
5.27 Early provision of housing will be through existing deliverable sites such as the Waterside, and other currently allocated sites. The strategic sites at Stanton Tip and the Broad Marsh area will take longer to deliver their full potential, so delivery of homes here is not expected early in the Plan period. The City Centre housing market has performed strongly in recent years, supported by a large number of students. Purpose built student accommodation is also an important part of the mix, and further provision is planned.
Rushcliffe Borough
5.28 In Rushcliffe, sustainable development will be concentrated within the main urban area (West Bridgford) where opportunities exist. However, West Bridgford has relatively limited capacity to accommodate development over the plan period and, therefore, the majority of 'main urban area' development in Rushcliffe will be delivered on three Sustainable Urban Extensions at Melton Road, Edwalton, South of Clifton (also known as Fairham Pastures) and East of Gamston/North of Tollerton.
5.29 Approximately 6,000 new homes will be provided for on these three Sustainable Urban Extensions over the Plan period. All three locations were selected for inclusion in the Rushcliffe Local Plan Part 1: Core Strategy, which was adopted in 2014, and are on land that was removed from the Green Belt at that time in order to accommodate development. It is not proposed that any further land adjacent to the main urban area (within Rushcliffe) is allocated for housing development during the Plan period.
5.30 The Melton Road strategic allocation at Edwalton will provide around 1,780 homes when completed. The delivery of these new homes is already well underway (with around 1,000 homes built by March 2022) and it is expected that all development will be finished by March 2028. The development of the South of Clifton strategic allocation has recently commenced and it will deliver around 3,000 new homes in total; all of which are expected to be delivered within the Plan period. The strategic allocation to the East of Gamston/North of Tollerton is still to secure planning permission. It will deliver around 4,000 new homes in total but with expected delivery of around 2,240 new homes by the end of the Plan period (2038) and then all remaining homes by around 2047.
5.31 Beyond the main urban area of Nottingham, there are three other strategic allocations within Rushcliffe: North of Bingham (around 1,050 homes); the Former RAF Newton (528 homes); and the Former Cotgrave Colliery (463 homes). The delivery of new homes on the North of Bingham strategic allocation is now well underway (with 284 built by March 2022) and it is expected that all new homes will be delivered on site by 2028. The Former RAF Newton strategic allocation has planning permission and development has commenced. All homes should have been completed on the site by 2028. All new homes (463 in total) on the Former Cotgrave Colliery strategic allocation have already been delivered. It, however, remains a strategic allocation because the site includes approximately 2 hectares of employment land which is still to be delivered.
5.32 Development elsewhere in Rushcliffe will be concentrated at the Key Settlements of Bingham, Cotgrave, East Leake, Keyworth, Radcliffe on Trent and Ruddington, again to assist in meeting sustainability objectives. The delivery of new homes at these Key Settlements over the Plan period will be achieved through a combination of sites which have already been allocated by the Rushcliffe Local Plan Part 2 (adopted 2019) and sites within the settlements which already have planning permission or come forward as infill or windfall sites within settlements. It is not proposed that any further land adjacent to any of the Key Settlements is allocated for housing development during the plan period.
5.33 In other settlements, development will be smaller scale, as defined by a new Rushcliffe Local Plan Part 2 to replace the one adopted in 2019. It is expected that the delivery of new homes at these other settlements over the Plan period will be achieved through a combination of sites which have already been allocated by the adopted Local Plan Part 2, sites within settlements that already have planning permission or come forward as infill development within settlements, conversion or changes of use of buildings and/or on 'exception' sites. It is not proposed that any further land adjacent to any other settlements is allocated for housing development during the Plan period.
5.34 In total, the anticipated housing supply within Rushcliffe from 2022 to the end of the Plan period in 2038 is around 14,300. This significantly exceeds the housing target, and gives confidence that the housing target will be met in the event that delivery on any of the sites does stall or slow. It is intended this will provide sufficient protection against any potential future housing undersupply should the delivery of one or more of the larger strategic allocations either stall completely or if the rate of housing delivery on site falls significantly below expected levels. However, in the event that delivery on any of the sites does stall or slow, there would be no requirement for these homes to be provided for elsewhere through the allocation of new housing sites.
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