Chapter 4: Social/Community

Background

4.1 Building communities as places in which everyone from all cultural backgrounds can live, work and spend leisure time is a key issue for this Plan to address. The Plan aims to ensure that all residents have appropriate access to a network of well located sustainable, high quality homes, facilities and opportunities. This will be achieved through the following:

• Protecting and enhancing essential services and facilities of value or potential value to the community

• Providing for a mix of house sizes, tenures and types

• Enabling the provision of appropriate new facilities and services in suitable locations

• Ensuring that lost facilities and services are replaced with a qualitative gain to the local community in an equally accessible location

• Helping to create a healthy and safe environment

• Allowing for appropriate education provision

4.2 Borough residents and visitors have a clear need for accessible, high quality and well-managed leisure, education, social and community facilities, and open spaces. The Local Plan will seek to ensure that there is adequate provision of facilities, including open space to meet local demand. The Council works in partnership to secure provision of facilities. Developer contributions (Policy C1) are an important means of ensuring that the necessary local facilities are provided to meet the needs of new residents or workers. The protection and enhancement of such facilities contributes to the Council’s policy agenda of promoting social inclusion, healthy living and well-being.

Public Consultation

• 70% of respondents to the Borough’s Community Strategy research felt that promoting a sense of community was either important or very important.

• 93% of respondents wanted access to good quality health care in the local area. This was the most important issue identified by the Community Strategy research

• 78% of respondents said that providing safe facilities where young people will want to spend their leisure time was either important or very important

• 71% of all respondents said that the provision of quality and affordable housing that reflects the changing needs of local residents throughout their lives was either important or very important

• The concept of life-long learning and easy access to adult education in your local neighbourhood was considered either important or very important by 75% of respondents.

4.3 The provision of a range of improved facilities and community improvements was also a key issue for a number of the respondents to the Local Plan Issues Report. These included:

• The need for traffic calming measures

• The need for new facilities

• The need for housing to be provided for all age groups and incomes.

4.4 These views are reflected in the land use policies set out below. This section of the Plan contains policies on:

• Developer contributions

• Health and community

• The development of suitable facilities and services

• Open space

Section 106 Contributions

Policy C1 Development will be permitted only where there are, or will be, adequate infrastructure and community facilities. Where provision is inadequate, developers will be required to provide the infrastructure and community facilities necessary to allow the development to proceed. The Council will negotiate to secure planning obligations to ensure that such infrastructure and facilities are provided in time to meet the needs arising from the development.

4.5 Government advice establishing the context for planning obligations is set out in Circular 05/2005. Further guidance on planning obligations is set out in the Council’s Interim Guidance note entitled ‘Section 106 Planning Obligations and Community Infrastructure’. To help achieve the aims of this plan and the Community Strategy, it is vital for the Council to work in partnership with other agencies, public, private and voluntary and clearly plan for and secure the necessary physical and social infrastructure and open space provision at the earliest opportunity in parallel with new development. This infrastructure includes education, health and sports facilities, public transport services etc, together with other uses such as employment, retail, sport and recreation.

4.6 Where justified in accordance with Policy C1, provision will be sought for:

• Travel and transport infrastructure

• Affordable housing, including provision for key workers

• Community buildings and facilities, including community development workers

• Leisure, recreation, open space and sports barns

• Accommodation for education and library services

• Accommodation for health and social care

• Fire and emergency services facilities

• Waste management and recycling

• Public utilities

• Environmental protection and enhancement

• Community safety including Secured by Design

• Town and neighbourhood centre facilities and environmental enhancements

• Art in the community

• ICT infrastructure including broadband capability

4.7 In the interest of comprehensive development, the Borough Council will seek the necessary collective provision of new infrastructure from development proposals and the phasing of development to ensure the satisfactory achievement of the objectives of the Plan. Further guidance on these requirements will be set out in specific Development Briefs or Action Plans.

Meeting Housing Need

4.8 The Council’s Housing Needs Assessment (2001), and subsequent Survey updates in 2003 and 2004, have been used to guide housing policies within this plan, and to prepare Supplementary Planning Guidance.

4.9 This has shown that it is necessary to increase the rate at which new affordable stock is provided due to the combined effects of:

• continuing losses through sales of dwellings to existing tenants under ‘Right to Buy’ legislation,

• an increasing number of households ‘in need’ on a Housing Need Register that is required to accept a wider spectrum of applicants, and

• sustained increases in the number of homeless households, which the Council has a duty to house, reinforce the argument for increasing the rate at which new affordable stock is provided.

4.10 The 2001 Housing Needs Assessment was updated in 2004 to reflect the latest available data on income and house prices across the Borough. It confirms that there will be an affordable housing shortfall of 514 units a year. This level of demand is well over double the number of units likely to be able to be delivered resulting in growing levels of unmet need each year. The Council’s Housing Strategy (2002-2007) has a target to provide a minimum of 250 additional affordable dwellings per year. Accordingly the Borough Council will negotiate for affordable housing provision on appropriate sites through Policy C2.

4.11 The difficulties in attracting and retaining key staff have become an increasingly significant issue in London and the South East, particularly for public sector employees. In recognition of these difficulties national and regional planning policy guidance specifies the need for local planning authorities to provide an element of affordable housing for key workers. Measures to increase the supply of accommodation for key workers will have important and significant benefits for the continued prosperity of the local economy.

4.12 The Council considers key worker housing to be one element of the wider housing need. For the purposes of Policy C2, the precise amount and type of general needs affordable housing and key worker housing will be subject to negotiation with the developer and will be dependent upon the level of housing need at the time of the planning application, the location of the site, site constraints and prevailing market conditions. The Council will only accept key worker housing under this policy where it provides accommodation for key workers in accordance with the Council’s definition set out in the Glossary and where measures can be secured to ensure that the housing remains for key workers for as long as there is a need for it.

Affordable Housing

Policy C2 The Council will negotiate provision of an element of affordable housing on all the housing sites above the thresholds set out below, taking into account the circumstances of each site (including the viability of development); the particular need for affordable housing in that locality and in the Borough; the practicality of delivering the affordable housing (including funding); and the achievement of other planning objectives. The level of affordable housing provision may vary depending on the specifics of the site; however, the Council’s intended starting point for negotiations will be 40%. within the settlement policy boundary of Basingstoke town, the minimum threshold is 25 dwellings, or 1.0 hectare; within settlements of at least 3,000 population outside Basingstoke town area, the minimum threshold is 15 dwellings, or 0.5 hectare; within settlements with fewer than 3,000 population, the minimum threshold is 7 dwellings, or 0.2 hectare. Planning conditions will be imposed or a legal agreement sought to ensure that the affordable housing provided remains affordable for so long as there remains a need for it.

4.13 To encourage the provision of dwellings for local households, whose incomes are insufficient to enable them to afford adequate accommodation in the private housing market, the Borough Council will aim, through negotiations with developers, to reduce the number of households in need of subsidized affordable housing. The Council’s SPG on Affordable Housing provides more information on the need for this type of housing in the Borough. This SPG will be replaced by the emerging SPD on Affordable Housing.

4.14 It is essential to ensure that the benefits of affordable housing provided in accordance with this policy are available to successive occupiers. Applicants will need to demonstrate robust mechanisms to ensure that this is achieved. The control of affordable housing by a Registered Social Landlord (RSL) will ensure the proper long term management of the affordable housing. If an RSL is not to be involved, then detailed mechanisms for the control of occupancy of the affordable housing will need to be set out in planning conditions or a legal agreement.

4.15 In 2001, David Couttie Associates carried out a Borough-wide Housing Needs Assessment. The report indicated that it would be necessary to increase the affordable housing programme just to maintain the Housing Need Register at its present level. The Housing Needs of the Borough will continue to be monitored at regular intervals. The Council’s Housing Strategy (2004-2007) has a target to provide a minimum of 250 additional social rented dwellings per year.

4.16 The 2004 Borough-wide Housing Needs Assessment recommended the following definition of affordable housing which has been accepted for the purposes of this policy: affordable housing is that provided, with subsidy, both for rent and low cost market housing, for people who are unable to resolve their housing requirements in the general housing market because of the relationship between local housing costs and incomes. The types of affordable housing which comply with this definition are: units for rent from a Registered Social Landlord (RSL); shared ownership with grant; shared equity where land value is retained to provide housing for sale at below market levels and where this discount can be maintained; and discounted market rented housing. Subsidy includes not only public funding, but also the provision of serviced land by developers for free or at a discount.

4.17 Given the scale of housing need identified in the 2001 Housing Needs Assessment (reiterated in the 2004 update), and the lack of suitable potential sites with a capacity of at least 25 dwellings (or at least 1 hectare) outside Basingstoke Town, the Borough Council considers it necessary to maximise the opportunities for the provision of additional affordable housing through the imposition of the lower thresholds referred to in Policy C2 above. Those settlements outside Basingstoke with a population of at least 3,000 and to which the 15 dwellings or 0.5 hectare threshold will apply are identified as:

• Bramley

• Kingsclere

• Oakley

• Old Basing

• Overton

• Tadley / Baughurst / Pamber Heath

• Whitchurch

4.18 The negotiation of affordable housing on smaller sites (minimum 0.2 hectares) will enable the provision of some affordable housing in smaller villages and rural areas to meet local needs and contribute to the creation of balanced and sustainable developments and communities.

Housing Mix

Policy C3 New housing development should aim to create mixed and inclusive communities, taking into account the scale of the development, the location of the site and housing needs. There should be a mix of dwellings both in the development overall and within the open market housing provided, including a substantial proportion of 1 and 2 bedroom units. A proportion of new dwellings should be designed to lifetime mobility standards. Planning permission for residential development will only be permitted provided that between 30% and 50% of market dwellings provided on site are small units (1 & 2 bedrooms) with the highest proportion sought on sites in or adjoining the centres of settlements with a good or a reasonable range of services and public transport opportunities, namely Basingstoke, Tadley, Whitchurch and Overton. The Council will encourage developers to include a proportion of homes to be designed to Lifetime Mobility Standards, with the objective of achieving an overall 15% of all news homes in the Borough to this standard.

4.19 A balanced mix of dwelling types and sizes is essential in order to provide local people with the opportunity to rent or buy an affordable dwelling, and the ability to move to a dwelling which better meets the needs of the current stage in their life-cycle without having to leave the area. It is also important for a variety of housing types and sizes to be provided to help achieve balanced and sustainable communities.

4.20 Lifetime mobility standards have been developed to provide dwellings that cater for the needs of residents throughout their lifetime, including the possibility of impaired mobility. These standards exceed the requirements of the Building Regulations. Overall, 15% of the population have mobility difficulties; homes designed to lifetime standards would cater for their needs as both residents and visitors. Increasing the number of lifetime homes will increase the opportunities for people to find a home that meets their needs or not to have to move if their circumstances change. The Council will encourage developers to include a proportion of homes designed to this standard.

4.21 The plan aims to ensure that the local housing stock provides for changing household formation patterns and requirements. In order to establish an appropriate range of dwelling types and sizes tailored to increase local housing choice and opportunity both within the local neighbourhood and within the Borough as a whole, the Council will continue to assess the Housing Needs of the Borough. The Borough-wide Housing Needs Survey (2001) by David Couttie Associates identified the need to address the mismatch between the local housing stock and changing household formation patterns and requirements, in particular providing smaller units of accommodation to meet the growing number of smaller households. In order to ensure that the majority of small dwellings will provide basic and therefore relatively inexpensive accommodation, the Borough Council will aim to achieve a standard of 80% of the small dwellings (maximum of two bedrooms) on any development having a gross floor area not exceeding 70 square metres.

Housing for the Elderly and those with Special Needs

Policy C4 Proposals for residential development specifically designed and suitable in type and location to meet the needs of the elderly and people with special needs, including care or nursing homes and other housing to meet the needs of the Health Service Community Care departments, will be permitted within the defined settlements. Proposals outside of the defined settlements will exceptionally be permitted in response to local need.

4.22 The population of the Borough is ageing, with the net increase concentrated entirely within the population aged 45 and over. This is expected to increase by more than 25% between 1996 and 2011. The population aged 80 or over is expected to increase by 29% in the same period (1300 people). Consequently, there is a need to address the care and support needs of this section of the community. The number of care and nursing homes has significantly reduced since the mid 1990s as a result of rising land values and the conversion costs associated with recently introduced standards for such homes. This is a particular concern locally, given the shortage of such accommodation and the ageing of the local population.

Gypsy Sites/Travelling Showpeople

Policy C5 Provision of formal accommodation for gypsies will be permitted provided that: The site is capable of being provided with the appropriate essential services and is within a reasonable distance of community and other facilities; and The site will not adversely affect the amenity of adjoining users where the site is capable of including an element of business activity. There is an identified need for the development. Permanent sites for travelling show people will be considered as exceptions to other Local Plan policies. Applicants will be requested to demonstrate to the satisfaction of the Borough Council that, in addition to the above, there are no environmental effects or conflicts with public health, safety and the provision of public services.

4.23 There are three main types of gypsy site that may be provided (permanent, temporary and transit), each accounting for different lengths of stay and each requiring different levels of facilities in situ. The Council recognises the particular needs and requirements of gypsy families and will work with the County Council to keep under review the needs of gypsies in the plan area. Accordingly, a Housing Needs Survey of Gypsies and Travellers is currently being undertaken. As a result of any needs identified the Borough Council will review the adequacy of Policy C5 above. The Council will give favourable consideration to proposals in locations which minimise the impact on the surrounding environment whilst meeting the needs of gypsy families. Many gypsies prefer to run their businesses from the site on which their caravans are stationed and it is often this business activity which is the source of conflict with existing communities. Where sites are permitted that include an element of business use, the Borough Council may impose restrictions on the nature of that activity to minimise disturbance from the movement of vehicles and equipment and other operations on the site.

4.24 Travelling showpeople are self-employed persons who travel the country operating fairground and circus equipment throughout the summer. During the winter months they require secure permanent sites on which to live as well as to store and refurbish their equipment. The nature of their requirements cannot be easily classified into an existing land use category. Possible appropriate sites may be those already subject to non-conforming industrial or open storage type uses. They also need to have good vehicular access and to be conveniently located for schools and community facilities. As a result, sites in the open countryside are not usually appropriate.

The Protection, Development and Enhancement of Facilities, Services and Open Space

4.25 Local and neighbourhood facilities such as shops, community and leisure facilities, play an important role in meeting the needs of local communities, reducing the need to travel, enhancing community spirit and promoting social inclusion. These centres are an important part of a community and can provide a focus for new/improved facilities to serve a local area.

4.26 Careful planning reduces the need to travel, by mixing different uses in existing and new developments. The Plan aims to provide local job opportunities, shops and health facilities as an integral part of new housing developments, and introduce these facilities into existing housing and employment areas.

4.27 The Open Space Audit, completed in September 2000 concluded that there is not an ‘oversupply’ of open space within Basingstoke Town and the Borough’s larger settlements which could be lost to other forms of development. It is considered, however, that a proactive approach to the possible reuse of areas of open space could be adopted in certain circumstances, possibly as a part of a regeneration approach to existing housing areas, where suitable replacement areas could be found.

Exceptions Policy for the Provision of Facilities within Settlement Policy Boundaries

Policy C6 As an exception to policies protecting a site for a specific land use, proposals for essential education, health, social services or other community use, affordable or key worker housing, will be permitted on sites within the defined Settlement Policy Boundaries that would not normally be considered suitable for such development, only where: There is an identified need for the development; and The proposal cannot be accommodated on other more suitable and available sites

4.28 The Borough Council recognises the development pressure that exists on urban land within the Borough. Equally, it is recognised that these uses cannot always be accommodated within the terms of normal planning policies. Therefore, and in the same way as policy D8 enables essential proposals to be built in the countryside in exceptional circumstances, the Plan should allow for similar proposals to be permitted within urban areas on land where policies would not normally allow development to take place. These proposals could either be extensions to existing facilities or new build. In addition to enabling better quality educational and training provision to develop in the Borough, the above policy will allow suitable existing facilities to exploit their potential to become centres for service provision.

4.29 Within the Plan area certain premises and facilities are available for evening/ weekend use by the local community, leading to a more efficient use of resources. The Council will continue to promote the joint use of education facilities with Hampshire County Council and local schools.

The Protection, Enhancement and Replacement of Existing Leisure and Community Facilities or Open Spaces

Policy C7 Proposals for the redevelopment, replacement or improvement of existing leisure and community facilities or public open space and private open space, will be permitted provided that: The replacement or improved facilities will be at least equivalent in terms of quality, quantity and accessibility, and there will be no reduction in the overall capacity of leisure facilities and/or open spaces in the area of the development to accommodate demand; or The Council accepts that there is no need for the existing facilities either now or in the foreseeable future and a clear environmental justification can be made for an alternative use; or The proposed development will be of sufficient benefit to the community to outweigh the detriment caused by the loss of the existing facility or open space; or Development proposals will improve facilities ancillary to its use Where considered necessary, proposals involving the loss of recreational facilities or open space (as described above) should be accompanied by a detailed assessment of the current supply of facilities, their quality and an assessment of need.

4.30 Land uses covered by this policy include;

• Parks and gardens

• Natural and semi-natural urban greenspaces, - including woodland parks and nature conservation areas

• Green corridors

• Outdoor sports facilities

• Amenity greenspace

• Provision for children and teenagers

• Allotments, community gardens and city farms

• •Cemeteries

• Accessible countryside in urban fringe areas

• Civic spaces

• Built leisure facilities including:

  • Swimming pools

  • Indoor sports halls

  • Leisure centres

  • Indoor bowls centres

  • Indoor tennis courts

  • Ice rinks

  • Community centres

  • Community Schools

  • Village halls

  • Arts facilities

4.31 Smaller areas of open space, including landscaping strips/open areas that contribute towards the visual amenity of an area are also protected by the policy. The Borough Council will require any replacement facilities or open spaces to be available to the local community before the existing facilities are redeveloped or within a specific time period agreed by the Council. Where necessary, the Council will use planning conditions or s106 agreements to safeguard the interests of local residents or land uses in the vicinity of new or improved sports facilities or open spaces. Matters to be covered could include frequency and times of use and measures to minimise environmental impacts from traffic, noise and light pollution.

4.32 Allotments provide a valuable leisure resource and the Council is committed to the protection and provision of a sufficient number of sites to meet current and future demand. The retention of allotments is covered in Policy C7.

Protection of Essential Services

Policy C8 The Council will not grant planning permission for development which would result in the loss of essential local services and facilities which are considered to be important to the local community, including local shops, post offices, public houses and nursing/care homes unless: there is adequate alternative local provision; or it is demonstrated that it is no longer practical or desirable to retain them; or it is a part of changes by a public service provider which will improve the overall quality or accessibility of public services in the Borough.

4.33 Local services such as shops, pubs, post offices, village schools, fire stations, health centres, libraries, childcare facilities, rural petrol stations, village and church halls, and nursing and residential care homes continue to close at a steady rate. This affects the local economy and leads to greater social exclusion for certain members of the community. This is particularly an issue in the Borough’s rural areas where it is likely that if a service closes there will not be a comparable facility nearby. Such issues are recognised in the Borough Rural Strategy, which offers assistance both in terms of guidance and financial support (copies of which are available from the Council offices). The Plan will seek to reinforce this support and protect facilities from re-development or change of use unless it is no longer practical to retain them. The policy cannot, however, prevent local services from ceasing to operate nor can it ensure that a particular service continues to be provided from a particular site. Applicants may be requested to provide evidence on financial viability of the results of marketing exercises, in support of their applications for alternative uses on sites protected by this Policy.

New Leisure Facilities or Open Spaces

Policy C9 Proposals for new leisure facilities or open spaces will be permitted provided that they are in accordance with the current standards adopted by the Borough Council, and: Their proposed location is acceptable and their proposed design and construction will be of high quality and conform to accepted standards of good practice; and Any foreseeable adverse impacts on neighbouring land uses, amenity or wildlife can be ameliorated or managed in such a way as to make them acceptable. Details of the leisure and open space standards adopted by the Council can be found within the Interim Planning Guidance entitled ‘Section 106 Planning Obligations and Community Infrastructure’. Provision of on-site, or a contribution to the provision off-site, of any new or enhanced leisure facilities or open spaces required to meet the reasonable needs of the residents of their developments will be sought from housing developers by the Borough Council. Unless a local surplus of open space has been identified in a comprehensive assessment, new open space will be sought on the basis of 2.8ha per 1,000 population.

4.34 Leisure development, which includes facilities for community development activity, is a major pressure for land-use. Such developments should be appropriately located, in accordance with the overall principles of sustainable development. Leisure development can have many economic benefits and can contribute to the vitality and viability of the Borough. Together with attractive areas of open space, they can also significantly improve people’s quality of life. Commercial leisure developments will be considered in accordance with Policy EC9.

4.35 The Plan seeks to ensure that new developments either include sufficient community and other infrastructure on site, or contribute towards off-site provision, to meet the needs of the new residents. Whilst it will secure land for new facilities and contributions towards their provision, the Council as landowner and service provider has a further role to play which may include providing capital funds towards new schemes.

4.36 The integration of services to create ‘mini hubs’ of local facilities will also be encouraged. It is envisaged that existing community facilities will combine several functions in the future and form a vital focus for social and recreational activities.

A Hierarchy Based Approach to Meeting Leisure Needs

4.37 The basic principle underlying the Council’s proposed provision standards is a leisure facilities hierarchy, reflecting the advice outlined in PPG17 Companion Guide ‘Assessing Needs and Opportunities’. The hierarchy consists of:

• Facilities of Borough-wide significance: these are strategically important facilities which attract users from throughout the Borough and possibly also wider afield e.g. premier parks and the Aquadrome.

• Facilities of District significance: these are facilities which attract a significant proportion of their users from particular parts of the Borough e.g., from at least two wards or parishes. Examples include community schools, sports facilities and neighbourhood parks.

• Facilities of neighbourhood significance: these are relatively small local facilities which attract almost all of their users from a small area of the Borough such as a particular ward or parish. Examples include kickabout or play areas.

4.38 The Council will seek to negotiate financial contributions towards the enhancement of existing facilities in accordance with this hierarchy where the location and scope of facilities make a significant contribution to meeting the needs of the proposed development. Further details on the hierarchy, the current methodology for calculating infrastructure costs and information on commuted sums is detailed within the Council’s Interim Planning Guidance entitled ‘Section 106 Planning Obligations and Community Infrastructure.’

4.39 In order to establish a range of facilities which meet the recreational needs of Borough residents, a standard for open space provision of 2.8ha per 1,000 population will be used. The composition of this standard is outlined in the Council’s Interim Planning Guidance entitled Section 106 Planning Obligations and Community Infrastructure. The 2.8ha per 1000 population standard has been derived from a combination of Hampshire County Council open space standards, English Nature Standards for Accessible Natural Greenspace, the Basingstoke Parks Strategy and an assessment of local use. Further details can be found within the Council’s Open Space Audit.

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