Chapter 5 HOUSING

Introduction

1. Housing is the most extensive use of land in Lewisham, providing homes for the Borough’s population and dominating the local environment. This Chapter sets out planning policies for housing within the context of the Council’s vision of making Lewisham the best place in London to live, work and learn. The Chapter takes on many of the recommendations of the Lewisham Housing Commission Report (Housing in Lewisham – From Vision to Reality (April 2000)). Planning policies for housing reflect the Council’s requirements for diversity, quality and innovation as well as the need to identify suitable sites for new residential development. The following main areas are covered:
• the protection of existing housing stock and of suitable sites for new housing;
• the promotion of quality and choice in housing layout and design whilst protecting residential amenity;
• conversions;
• the provision of a mixture of dwelling units and affordable housing in locations which can contribute to creating balanced communities;
• the potential for flexibility on normal planning standards such as parking, density and amenity space in Sustainable Living Areas; and
• special needs housing and houses in multiple occupation.

Part I Policies

STR.HSG 1
To prevent the loss of viable residential property as a consequence of development, change of use or redevelopment schemes, and where a loss is considered acceptable to ensure that at least equal provision is made elsewhere in the Borough.

STR.HSG 2
To protect and enhance the character and amenity of residential areas, while providing for higher density in defined Sustainable Living Areas.

STR.HSG 3
To ensure a mix and balance of residential provision to meet the full range of identified housing need in the Borough including single people, families of different size, persons with special needs and for affordable homes.

STR.HSG 4
To make provision for at least an additional 8,400 dwellings in the Borough for the period 1992 and 2006 and to recognise the likely need for a minimum of 11,178 new residential units in the period 1997 to 2016.

Reasons for Part I Policies

2. Lewisham is primarily a residential Borough and as a result, the bulk of planning applications that are dealt with by the Council concern residential development, either new build, conversion or extension. In line with wider Council policy to enhance the quality of the Borough as a place to live, work and learn, the UDP housing policies set out to improve and safeguard the character and amenities of the residential areas of the Borough.

3. Policies in this Chapter seek to ensure that through housing development a quality residential environment is achieved in Lewisham. Policies governing such matters as density, criteria for conversions, site layout and dwelling mix can help deliver this quality. The design of housing and the residential environment are an important element of this and policies in the Conservation and Design chapter deal specifically with and seek to ensure a quality urban design.

4. Policies in this Chapter also seek to ensure that in meeting Boroughwide needs for housing a more balanced social mix within local areas is secured by avoiding the creation of large areas of housing of similar characteristics.

5. The other context in which the Plan must operate is the national requirement to find space for more housing. The most recent household projections show that between 1996 and 2021 the number of households in England are projected to increase by 3.8 million. The London element of this is a requirement for approximately 600,000 additional households over the 1996-2021 period. The largest component of the projected growth in households is for single person households (83%). This sets the context for the need to increase the provision of housing in Lewisham.

6. Strategic Guidance for London Planning Authorities (RPG 3) sets a figure for Lewisham of 8,400 additional dwellings over the period 1992-2006. This is not derived from the household estimates but from a separate capacity study. There is a requirement to treat this figure as a minimum, this is a result of the overall increase in demand for housing indicated by the household projections. The challenge facing all local authorities is to find space for the projected additional housing while protecting the quality of the existing residential environment. This Plan also includes an estimate of a likely level of housing provision for Lewisham for the period 1997 to 2016, based on the LPAC 1999 Housing Capacity Study which involved the participation of all London boroughs. The Study was published by the Greater London Authority as ‘London’s Housing Capacity’ – September 2000. The policies in this Plan have been formulated to reflect the likely need for a minimum of 11,178 residential units to be provided in the period 1997 to 2016.

7. The Mayor for London is responsible for producing the Spatial Development Strategy (SDS). Future housing capacity will form a central part of the SDS. The Mayor’s Housing Commission was set up to inquire into London’s needs for affordable homes. The Report of the Mayor’s Commission ‘Homes for a World City’ was published in November 2000 and will inform the affordable housing policies of the SDS.

8. Against this national and London-wide background, the demand for and potential supply of housing in Lewisham has been assessed in greater detail. The Lewisham Housing Needs Survey (LHNS) revealed that there are currently (1999) 15,409 households in Lewisham in housing need (14.3% of the Borough total); the survey estimated that the projected need the Council will face over the next 7 years to 2006 will be for 30,209 households.

9. Based on these estimates of current and projected need, the LHNS further estimated that an indicative total of between 7,250 and 12,950 additional affordable dwellings might be required to meet the need in full. The LHNS found that low-cost market housing is of little value in meeting housing need in Lewisham because it is too expensive for those in housing need.

10. A community’s need for a mix of housing types, including affordable housing, is a material planning consideration which should be taken into account in formulating development plan policies and in deciding planning applications involving housing. The level of need for affordable housing in Lewisham, as identified in the LHNS, between 7,250 and 12,950 additional dwellings required up to 2006, is clearly in excess of the amount of affordable housing that could be expected to come forward from a total housing figure in RPG3 of 8,400 for the 1992 to 2006 period (although this figure should be regarded as a minimum.)

11. Based on the high level of need identified by the LHNS and current practice elsewhere a target figure of 30% for affordable housing is justified.

12. In order to meet the high level of housing need in the Borough and subject to other policies in the Plan such as designated employment areas and the protection of open space the Council will seek to maximise the re-use of previously developed land for residential development.

The Council’s Strategy for Housing

13. In November 1999 the Council established a Housing Commission for the Borough. The Lewisham Housing Commission operated as an independent body with an advising role. The Commission focused on three central questions: appropriate balance of tenures for Lewisham; role of the Council as a direct provider in the social rented sector; and connections required between housing policy and the Council’s broader agenda.

14. Lewisham’s Housing Commission reported its findings and recommendations in April 2000 (Housing in Lewisham – From Vision to Reality). The Council carried out a Borough wide consultation exercise on these findings. In October an Action Plan – ‘Building Successful Neighbourhoods’ was agreed. The core themes of the Action Plan centre around 4 key elements:
• creating balanced communities;
• developing responsive management;
• delivering sustained investment; and
• linking housing with a wider agenda.

15. The Council’s strategy for housing is to protect and enhance the residential environment. This forms a crucial component in the Council’s corporate vision to make Lewisham the best place in London to live, work and learn. Lewisham’s residential environment is one of the Borough’s main assets; the range, variety and quality of the housing stock, some of it relatively affordable, is a valuable asset and the planning system can go a long way towards its protection. The Council’s strategy recognises the importance of protecting this asset.

16. The strategy is also intended to ensure that all new-build or conversions are of a standard to make a positive contribution to the existing built form. It is important that the range of sizes and types of housing, which serves a broad market, including affordable housing for those on limited budgets, continues to come forward and the strategy encourages such variety of provision.

17. The Council is also very aware of its responsibilities in respect of the requirement for all London boroughs to seek additional housing; that is more than the amount prescribed in Regional Guidance. This objective forms a part of the Council’s strategy for housing.

18. The three overall elements of the Council’s Strategy, Regeneration, Equality and Sustainability, come together and complement each other particularly well in the context of planning for housing.

19. The development of housing, particularly within mixed use developments, within town centres or the designated Sustainable Living Areas, or as live/work units makes an important contribution to the regeneration of the Borough. Hitherto purely commercial or industrial areas can be animated by the introduction of housing; these areas become busy and populated beyond business hours, providing a market for ancillary services associated with the night time economy. Housing is also often the crucial catalyst – providing the increased land value – for development of brownfield land. This is an important and high profile means by which housing development can significantly contribute to the regeneration of urban areas. Reflecting the need for housing-led regeneration, the Council will generally place residential uses as its priority alternative land use in most locations with the exception of the Borough’s designated employment areas.

20. Access to decent accommodation is a basic right. It is essential that the Plan promotes a range of housing choice that can accommodate amongst others the identified needs of single people, families, people with special needs and keyworkers. Promoting housing choice will provide residents with the opportunity to stay in the Borough as they move through their life-cycles. Planning has an important role to play in combating social exclusion and promoting equality with respect to housing. The maintenance and enhancement of a residential environment in which the provision of viable balanced communities, with a mixture of tenures and dwelling types, is encouraged will help to stimulate and sustain local economic growth whilst supporting neighbourhood facilities and associated social networks. Such communities will help foster community stability and cohesion.

21. The planning system can also promote greater equality through its contribution to the provision of both on-site and off-site affordable housing. In areas considered to have an over-provision of social housing the Council will seek contributions through planning obligations which will assist in securing a more balanced social mix in the Borough.

22. The extent of residential development in Lewisham and the role of the planning system in influencing its location and nature means that planning for housing can contribute significantly to the move towards greater sustainability. The Plan’s promotion of Sustainable Living Areas demonstrates that new forms of urban living can be delivered in the Borough’s town centres. More sustainable living in these areas will require development of a high quality, designed to foster living at higher densities in new build or conversions on previously used land or buildings. By virtue of their locations close to the leisure and retail facilities that their inhabitants might use and the benefit of good public transport access, parking provision can be set at zero.

23. During the life of this UDP the Silwood Regeneration Programme will be implemented. This is a Single Regeneration Budget (SRB) Programme comprising redevelopment of the Silwood estate and associated educational, community and amenity improvements. The Programme proposes that 804 properties will be demolished and replaced with 592 new units built in a traditional street pattern. The housing will be designed to better meet the unit size requirements of the local community and to reduce the overall density of the estate.

24. Dwelling provision will continue to be informed by population and household forecasts but will not be constrained or led by them. According to the results of the 2001 Census of Population (released in 2003) Lewisham is home to 249,000 persons and 108,000 households. Recent projections (GLA Population and Household Forecasts: 2001 – 2016 – SDS Technical Report Five, May 2002) expect that the number of households in the Borough will reach 123,000 by 2016 and that there will be 272,000 residents living in Lewisham.

Part II Policies

Reasons
RPG3 (para. 4.5) continues to allow boroughs to apply a general presumption against the loss of housing to other uses and in light of the requirement that the RPG 3 housing figure be treated as a minimum it is essential that this principle is maintained. HSG1 establishes the principle locally. This general protection is not, however, intended to be at the expense of a reasonable provision for essential community facilities, where appropriate.

Much of Lewisham’s housing stock is well constructed and its overall form and appearance is attractive. Redevelopment of housing is costly and intrusive, materially and socially, and may reduce the availability of housing stock in the short term.

Where a large number of dwellings are to be demolished to facilitate redevelopment a developer will be expected to prepare a phased programme of work to reduce disruption to the local community and ensure that both the original dwellings and the site are vacant for the shortest possible time.

Reasons
Strategic Guidance requires the UDP to demonstrate how it will exceed the target of 8,400 units between 1992 and 2006 as set in RPG 3. By 2000, 6326 units had already been completed in the Borough.

Lewisham is a constrained and built-up area but it is also a prime residential location which essentially acts as a dormitory borough for London’s labour market. Within the Borough a key challenge will be to continue to make Lewisham a popular place to live. The Council has identified a number of sites that are suitable for housing development. These are shown on the Proposals Map. The development sites identified for housing will contribute to the achievement of Lewisham’s housing provision, as required by Government, up to 2006. In order to meet the housing requirements of RPG 3 the Council has assessed the potential of re-using previously developed land. Proposals sites for housing in the Plan have been selected in accordance with the search sequence advocated by PPG 3.

By definition, those sites that are not identified in advance are ‘windfalls’. These are sites that are not anticipated to come forward for development during the life of the Plan but nonetheless do. In the past, the unrealised potential of windfalls has played a significant role in the process of supplying housing land in Lewisham. The Council considers housing as its preferred alternative land use for ‘windfall’ sites that are not otherwise protected in the Plan or covered by a Council approved planning brief.

The Council participated in the London Housing Capacity Study, and in conjunction with LPAC, has also made an estimate of the likely sources of housing provision over the longer period to 2016. This is set out in Table H1, (link below).

TABLE H1

Reasons
Housing is the most extensive use of land in Lewisham, providing homes for the Borough’s population and dominating the local environment. In this Plan very many policies refer to and are concerned with the protection of the residential environment. This Policy points to the main ways in which the Plan as a whole will achieve the objective of an enhanced residential environment reflecting the Council’s requirements for diversity, quality and innovation in housing development. Many of these objectives are the subject of more detailed policies elsewhere in the Plan, particularly in the Urban Design and Conservation, Open Space and Sustainable Transport and Parking chapters.

Reasons
The planning system can balance the need for more housing with the protection of the quality and amenity of the residential environment by insisting on and requiring the highest standards of layout and design in all schemes.

It is essential that new development does not adversely affect the amenity enjoyed by existing residential properties by unacceptably reducing the level of natural light received or creating an unsightly outlook. The design of new development provides an opportunity to implement best practice environmental design including such features as water conservation, super insulation and design for solar gain.

The requirements of this Policy ensure that the basic components of good ‘neighbourly’ development are adhered to throughout the Borough. In order that all new residential development contributes to creating mixed and balanced communities it is essential that physical distinctions between social and private housing are eliminated by design. See also Policy URB 3 Urban Design, and other design policies in the Urban Design and Conservation chapter.

Part M of the Building Regulations – Access and Facilities for Disabled People took effect from October 1999. The requirements of the new Regulations will be met where it is reasonably safe and convenient for disabled people to gain access to and within buildings other than dwellings, and to use them as a place to work and/or a place to visit. In terms of new dwelling houses disabled people should be able to use the principal storey of such homes. The provisions of the Regulations are expected to enable occupants to cope better with reduced mobility and to ‘stay put’ longer in their own homes, although not necessarily to facilitate fully independent living for all disabled people.

The effects of Part M are limited. Provisions only apply where a building is newly erected or has been substantially demolished to leave only external walls. Part M does not apply to the conversion of existing houses into flats nor for the change of use of a building to residential. Given the limitations of Part M the Council will encourage developers as a part of the planning process to provide facilities that improve upon those statutorily required.

According to the 1999 Lewisham Housing Needs Survey almost 1 in 5 households in the Borough have special needs. A physical disability is the main category of special needs, an estimated 70% of special needs households fall into this category.

Providing dwellings that are adaptable to changes in people’s life cycles will give people the opportunity to remain in their homes and stay in the Borough. Improvements in housing design can ensure the flexibility and adaptability needed for long term needs. The Council will therefore encourage the provision of units that are designed to the Lifetime Homes Standard as defined by the Joseph Rowntree Foundation in ‘Meeting Part M and Designing Lifetime Homes’.

Reasons
According to PPG 3 (para 9) local authorities should ‘adopt policies which take full account of changes in housing needs in their areas and which will widen the range of housing opportunities to allow these to be met’. In order to create communities that are balanced and sustainable it is essential that greater choice in the range of housing types, styles and tenures is promoted within the Borough. The provision of a mix of dwelling sizes (including family houses, single person units, and retirement homes) will provide opportunities for existing residents to stay within the Borough as they move along the housing ladder.

Just over two thirds of Lewisham households consist of no more than 2 persons. The number of single person households in Lewisham is projected to grow to 42,000 by 2016 accounting for just over 1 in 3 households in the Borough (Source : GLA, 2000). The Council will encourage the development of housing particularly in the Sustainable Living Areas to meet the needs of this group.

In terms of family accommodation Lewisham suffers from a shortage of larger housing units, particularly 3+ bed properties, as indicated by the mismatch between household size and the size of dwelling in Table H2. Provision of family housing is therefore particularly valuable in Lewisham.

The Silwood SRB Programme is an example of how, in this case extensive, re-design and new layout of a housing area incorporating a wider mix of units can better support the local community.

TABLE H2

Reasons
Private amenity space is an essential component of residential development. Developments of family dwelling units defined as accommodation suitable for households including children, usually consisting of 3 or more bedrooms, should generally be located at ground level with direct access to a garden. In the case of smaller family dwellings that are located above the ground floor, either individual or communal garden space may be provided. A securely bounded roof terrace may be an acceptable alternative for some dwellings.

Access to private gardens for occupants of the upper floors should not compromise the internal or external privacy and security of those living on the ground floor. A communal garden should be securely fenced and the public should not have access to this space.

For non-family dwellings, it may be more appropriate to provide individual balconies instead of gardens for those dwellings above ground floor, provided this does not lead to problems of overlooking and loss of privacy to adjacent properties and gardens. Developments which rely on balcony provision to meet a substantial element of the requirement for outside private space will also be expected to provide more landscaped amenity or communal private external space than otherwise. The Council will assess such applications on their merits.

For converted properties the most practicable solution is likely to be where the ground floor flat has sole access to the garden space. This is preferable to intrusive sub-division of restricted garden spaces, many of which, practically, cannot be accessed from upper floor flats.

Where the garden of a house to be converted is larger, consideration should be given to retaining the garden as a single unit to be managed collectively, so long as convenient access for all residents is ensured.

Amenity areas for the private use of the residents of the housing development, particularly if they are ecologically interesting and well designed, can preserve or introduce character and impart a sense of identity to housing developments. These are particularly valuable in larger housing developments.

Natural features that should be preserved in new residential development, where possible, include small areas of woodland, natural ponds, large or specimen trees, or groups of trees.

Reasons
Backland development is defined for the purposes of this Policy as new housing development, spatially separated from existing housing, located on areas of garden land or incidental amenity space to the rear or the side of existing dwellings; or on other parcels of land in predominantly residential areas. Backland and infill development will form an important part of housing provision in the Sustainable Living Areas of the Borough. The Council recognises that although such development does make a valuable contribution to housing land supply in the Borough the nature of proposals on backland sites are often very contentious. The Council is very aware of the difficulties that can arise from backland development and this Policy seeks to ensure that any such developments that come forward are controlled so as to protect the residential environment.

The key to successful reuse of constrained sites within the existing urban area is the quality of design, this is particularly so for backland developments in which the new dwellings are likely to be in close proximity to existing housing and built on land that was previously open, possibly even a private garden. The potential for visual and functional intrusion in these circumstances is acute and because of this an exceptionally high standard of design will be required, in accordance with the policies elsewhere in this Plan.

The Council will resist ‘tandem’ development where a backland house shares an access with the frontage house.

The Borough’s back gardens are an important biodiversity resource. Where such gardens provide the best habitat within the nearby area they should be conserved. Particular importance will be attached to those gardens (or blocks) with a good range of habitats provided by such characteristics as woodland, trees, shrubs, dead wood, borders, hedgerows, climbers, long and short grassland and water features.

Reasons
In a primarily residential Borough like Lewisham, the potential for additional residential dwellings of one or two bedrooms through conversion of the existing dwelling stock continues to come forward. Analysis of past trends of conversion shows the supply of this sort of housing remains a significant source of additional dwellings. However the demand for smaller properties can also be met by the conversion of commercial premises such as offices, or space above shops. Both will prove to be a valuable source of accommodation, particularly in the Sustainable Living Areas.

Achieving a mix of dwelling sizes is essential to maintaining mixed and balanced communities. In order to promote housing choice, the Council must balance the demands for one and two bedroom units with the need for family accommodation. A family dwelling suitable for households including children, usually consists of 3 or more bedrooms. It is therefore important that the Borough’s valuable stock of large family housing, of which there is a shortage, is retained. Maintaining a supply of larger houses will help to meet residents’ aspirations to stay within the Borough throughout their life cycle.

The impact on a street of conversions can be significant; on parking, on residential density, on amenity and on the demand for local services.

The Policy aims to ensure that conversions, while recognised for their contribution to the total housing provision in Lewisham, are sufficiently controlled so as not to have an adverse effect on the residential amenity of the immediate neighbourhood.

Reasons
PPG 3 (para. 41) identifies the conversion of buildings formerly in other uses as an important source of additional housing, particularly in Town Centres. Within Lewisham those vacant offices, pubs and shops as well as factories and warehouses not protected by policies in the Plan could be re-used or re-developed for housing.

In circumstances where proposals can demonstrate improvements to local environmental quality and contribute to Lewisham’s wider regeneration objectives, the Council will encourage conversion. The residential re-use of commercial premises for which there is no further demand, particularly in the Borough’s Town Centres, can have a positive impact on an area. Development can build in value to property and can through contributing to improved community safety and increased spending power within the local economy bring vitality and viability back into the Town Centres especially in the evenings. New resident’s need to travel will be reduced because of access to local services and public transport.

Reasons
This is a related policy to HSG 10, but specific to potential flats over shops. LPAC research ‘Supplementary Advice on Dwellings Over and In Shops (45/98)’ has indicated that conversion has the potential to be a valuable source of housing in Lewisham. Such development can build in value to property and can through contributing to improved community safety and increased spending power within the local economy, bring vitality and viability back into local areas especially in the evenings.

LPAC research has indicated that a significant proportion of vacant first floor premises are above a vacant ground floor, and that over 60% of first floor units are let with the ground floor. In failing retail areas it might be appropriate for the advancement of sustainability and regeneration objectives to re-designate existing retail units, upper and lower floors, for housing. See also policies STC 5, STC 7 and STC 12.

In Lewisham the refurbishment of vacant residential premises has already been advanced through various Council initiatives such as the Housing Department’s Empty Homes Strategy and Grant, which supports the refurbishment of derelict residential units and the Heritage Economic Regeneration Scheme (HERS) (formerly the Conservation Area Partnership Scheme (CAPS)) involving the Council, English Heritage and property owners in New Cross Gate, Deptford and Forest Hill. The HERS scheme gives priority to projects which help to bring vacant accommodation over shops back to use.

Reasons
The Council receives a large number of planning applications for residential extensions. Both individually and collectively, this type of development can have an important impact on a locality. This Policy is necessary in order to protect the quality of Lewisham’s residential environment and the amenity of neighbouring property. See also Policy URB 6 Alterations and Extensions, and other design policies in the Urban Design and Conservation chapter.

Reasons
The Council is required to establish the level of need for affordable housing in Lewisham in order to have a policy seeking to negotiate for an element of affordable housing. The Lewisham Housing Needs Survey 2002 (LHNS) followed Government guidance in Local Housing Needs Assessments – A Guide to Good Practice, DTLR, 2000. In order to estimate the shortfall of affordable units the LHNS calculated the backlog of existing need and newly arising need whilst taking into account the future supply of affordable accommodation. The 2002 LHNS estimates that for the next five years there is a shortfall in Lewisham of around 2,790 affordable units per year. This level of need must be considered in light of the Borough’s requirement as stipulated by RPG 3 to provide a total of at least 8,400 additional dwellings between 1992-2006 and the likely need for a minimum of 11,178 units between 1997 and 2016.

The report ‘London’s Housing Capacity (Greater London Authority, September 2000, p126) has estimated that Lewisham has capacity for at least 2,817 affordable units between 1997 and 2016.

The Council has been successful between 1992 and 2000 in attracting development by housing associations. During this period some 1794 new affordable units have been completed, accounting for 28% of total new build in the Borough.

Reasons
Government guidance (PPG 3) makes clear that a community’s need for affordable housing is a material planning consideration which should be taken into account in formulating Plan policies. Where there is a demonstrable lack of affordable housing to meet local needs local authorities should include in their plans a policy for seeking affordable housing in suitable housing developments. Suitable developments include: mixed use schemes where the unit threshold is exceeded; live-work schemes; conversions from commercial premises as well as new build.

The Report of the Mayor’s Housing Commission ‘Homes for a World City’ was published in November 2000. The Housing Commission proposed that a higher proportion of new homes built in London should be designated as affordable housing. In May 2001 the Mayor published ‘Towards the London Plan – Initial Proposals for the Mayor’s Spatial Development Strategy’. The Mayor proposed that a target of 50% of new homes, comprising 35% for social renting aimed at households on low incomes and 15% for intermediate housing for people on moderate incomes, should be affordable. It was stated in ‘Towards the London Plan’ that this proposal would be subject to consultation and an impact assessment being undertaken by the GLA.

In July 2001 the Three Dragons Report on Affordable Housing in London was published. Three Dragons were commissioned by the GLA to examine the viability of the affordable housing target suggested by the Mayor’s Housing Commission and recommended that in a borough such as Lewisham a 35% affordable housing target would be more readily achievable.

In July 2003 the Panel Report into the Examination in Public of the draft London Plan was published. The Panel recommended that the Mayor adopt a 50% of all additional housing as the strategic affordable housing target for London. Within the context of this figure and overall housing need a Borough’s affordable housing target should be set.

Affordable housing is defined for the purpose of this Plan as housing which is provided at below market price for sale or rent in Lewisham, and which is reserved both initially and in succession for people in housing need in the Borough; this may include local authority, housing association, housing co-operatives and forms of shared ownership accommodation. A person will be considered in housing need if they have a statutory right to accommodation in the Borough, or cannot afford adequate housing at the prevalent market rent.

Analysis of the 2002 Lewisham Housing Needs Survey suggests that low cost market housing cannot meet any housing need in the Borough whilst shared ownership might be able to help a fraction of households in need. For the remainder only social rented housing will be of any use.

Lewisham has experienced an increase in land and property prices. Rising prices makes it more difficult for lower and middle income earners (in particular key workers, a category that could include teachers, nurses and social workers) to enter Lewisham’s housing market and thereby pushes them in the direction of other areas outside the Borough or to temporary and/or substandard accommodation.

According to the LHNS an extensive comparative analysis of housing needs surveys in other authorities reveals that Lewisham has a level of current need which is above average and a level of projected need which is well above average. The high level of housing need in Lewisham would therefore justify the highest level of target currently in use. On the basis of these figures the Council could, in theory, be justified in seeking 100% affordable housing, but this is not the role of the planning system. However, the Council on the basis of the 2002 LHNS considers it pragmatic to seek a contribution of 35% (30% affordable and 5% keyworker) of the residential content from developers. The Council would expect the 30% affordable to break down as 25% social rented and 5% shared ownership. The figure presents a reasonable balance between meeting Lewisham’s need for affordable housing whilst not being too excessive so as to undermine the viability of private housing development.

The Council expects private developers to make a contribution towards the provision of affordable housing in Lewisham. This includes developments involving the conversion to residential of buildings from another use as well as new build housing. The Council will seek to achieve this through negotiation on schemes of 15 units or more or on sites of 0.5 hectares or more. In exceptional circumstances, the Council may negotiate for affordable housing on sites below this threshold. The Council will use as a guide for negotiations on affordable and keyworker housing the provision of 35% (30% as affordable and 5% as keyworker) of the residential content as a contribution if provided on site although this may vary according to local circumstances. A higher proportion will be sought if affordable accommodation is to be provided off-site. The scale of contribution will vary from site to site, dependent on site conditions, market conditions and other material considerations.

The Council as housing authority has to deal with housing need at the Borough level. It therefore must attempt to satisfy such need. Housing need is defined as where a household is in unsuitable housing and cannot afford to move into market priced housing either for sale or rent. In order to effectively address need it is imperative that affordable housing is reserved both initially, and where practicable, in succession for people in housing need; this may include local authority, housing association, housing co-operatives and forms of shared ownership accommodation.

An analysis of non-owning households by the LHNS demonstrates that social rented housing is the sub-tenure that is most capable of meeting the great majority of housing need in the Borough. Based on this analysis the Council’s preference is for the provision of social rented housing except in those areas which already have high concentrations of this sub-tenure (Please refer to HSG 15 – Creating Viable and Balanced Communities).

The basis of effective provision of affordable housing through the planning system is negotiation, started at an early stage, between the relevant stakeholders: local authority planners and housing officers, the developer and the Registered Social Landlord (RSL), most likely a housing association. The overall level of need identified in Lewisham, as set out in STR.HSG 4, will be an important element of these negotiations. Any negotiations for affordable housing are likely to be given effect by a planning condition or obligation.

Reasons
Viable balanced communities in Lewisham will help to support neighbourhood facilities and associated social networks and foster community stability and cohesion whilst stimulating and sustaining local economic growth.

Lewisham is characterised by a combination of large Council housing estates and private residential areas criss-crossed by a complex web of road and rail routes. Within this mix are pockets of deprivation, areas which are typified by concentrations of low income households living in social rented housing. Such areas remain unattractive to private sector investment in owner occupied housing development. Limited housing choice is available in these areas thus contributing to a growing imbalance between owner occupation and social housing.

The Council is keen to work more closely with housing developers and housing associations in order to address the needs and aspirations of existing and incoming residents and to counter a further polarisation of Lewisham’s community typified by a growing imbalance between owner occupation and social housing. The Council is seeking to ensure that the full range of housing needs are addressed, so that the Borough attracts key workers and young professionals whilst retaining families and older people in Lewisham.

PPG 3 (paragraph 10) states that ‘local planning authorities should encourage the development of mixed and balanced communities: they should ensure that new housing developments help to secure a better social mix by avoiding the creation of large areas of housing of similar characteristics’. The Council believes that it should not be obliged to require additional social housing in locations where there is already an ‘over-provision’ of that tenure. The diversification of tenure in new housing development is a means of generating a more viable and sustainable mix of households in areas of residualised social housing.

Map 5.1 identifies those areas of the Borough where over 43% of ward households live in social-rented housing. The Borough average is 36%. In these areas the Council will seek agreement with developers on the most appropriate way of providing affordable housing. Agreement should reconcile the two objectives of a continuing supply of affordable housing for Lewisham with the need to avoid further concentrations of social rented housing. In determining applications for housing on sites in those areas shown on Map 5.1, the Council will consider more flexible tenures including ‘part ownership’ and other shared equity schemes as considered appropriate for the delivery of affordable housing. This is in accordance with Circular 6/98 ‘Planning and Affordable Housing’ (paragraph 15) which states ‘Decisions about what affordable housing types to build should reflect local housing need and individual site suitability and be a matter for discussion and agreement between the parties involved’.

Where on particular sites the Council, in agreement with developers, considers that it would be preferable for the required element of affordable housing to be provided off-site, the Council will seek to direct the resulting affordable housing elsewhere in the Borough, primarily to the Sustainable Living Areas (SLAs) as identified in Policy HSG 17. The types of schemes which are considered appropriate in the SLAs are:
(a) Living over the shop;
(b) Conversion of vacant / derelict property (including shops and offices);
(c) Partnership with private sector to provide housing for key workers and special accommodation including live/work units;
(d) Backland development and In-fill sites.

In circumstances where an off-site financial contribution has been agreed between the Council and a developer, the contribution will be used to create additional affordable housing units through new build on previously developed land, conversion and through bringing back into use vacant and underused accommodation in accordance with Circular 6/98 (paragraph 9) and PPG3 (paragraph 22).

Commuted payments should be based on the level of subsidy necessary to develop the required proportion of affordable units off-site according to the Council’s preferred mix. Further guidance on the calculation of cash-in-lieu payments is available in the Council’s Supplementary Planning Guidance on Affordable Housing.

Cash-in-lieu funds will be ‘ring-fenced’ in a separate fund for the provision of new affordable units in the Borough, in particular the Sustainable Living Areas.

Reasons
The requirement placed on boroughs by Government to find space for more housing in London and the sustainable development agenda have brought density back to the forefront of planning. This is because of the influence it can have on seeking to reduce demand for travel and promoting economy of the use of land. Housing built to a greater density can have a beneficial impact in these respects primarily in the areas where people can walk to at least local facilities and public transport connections; at such locations greater density can increase the number of people who can meet most of their daily needs without need for a car.

The Council considers that as the local planning authority with an in-depth local knowledge it is best placed to determine the most appropriate way to deliver sustainable residential development whilst enhancing the environment. Through careful manipulation of density, car parking and dwelling mix in appropriate areas, the Sustainable Living Areas (SLAs) shown on the Proposals Map, an increased density of housing development may be achievable in parts of Lewisham, without detriment to the residential environment. The SLAs are mainly focused on the pedestrian catchment areas of the majority of major and district centres in the Borough namely Catford; Forest Hill; Lee Green; Lewisham; New Cross; Deptford and Sydenham. In all the SLAs account for 7.7% of the land in the Borough. These areas of the Borough have been designated as SLAs because they are considered to have real potential for sustainable development and innovative forms of urban living on the basis of their accessibility to town centre services and public transport links.

When high quality schemes are proposed in the SLAs the Council may apply planning standards more flexibly. Several Conservation Areas adjoin or are, fully or part, contained in SLAs. It is important Conservation Areas are protected in order to preserve and enhance their special environmental quality. Rather than insist on a general density calculation that might not be suitable to the individual characteristics of each Conservation Area, it is more appropriate here to consider density in light of what is governed by neighbouring development.

It is important to recognise, however, that there are parts of the Borough where there is an insufficient concentration of local facilities and public transport services and a higher density housing policy in these areas will be counter-productive by concentrating people where they will be incapable of meeting most of their needs without the use of a car.

Please note that Policy HSG 17 should not be interpreted to indicate that housing would be an appropriate use in Defined Employment Areas (see Policy EMP 3).

Reasons
The Council regards the following as constituting special needs housing for the purposes of this Plan:
• the frail elderly;
• the physically disabled;
• those with a learning Disability;
• those with a mental health problem;
• vulnerable young people and children leaving care;
• those with impaired sight or hearing.

The needs referred to above have been identified in the 1999 Lewisham Housing Needs Survey.

The Council’s aim is to facilitate provision of a full range of accommodation with an element of social or medical care for those who demand it in Lewisham. The suitability of a site for the provision of special needs housing will be determined by factors such as the proximity of essential local shops and facilities within walking distance, easy access to public transport, and in some cases the topography of the site.

The Council will encourage the provision of housing that is adaptable to changes in people’s life cycles. Improvements in housing design can ensure the flexibility and adaptability required to give people the opportunity to remain in their own homes (see also Policy HSG 5 Layout and Design of New Residential Development).

In order to assist developers comply with the requirements in the Building Regulations, the Government publishes guidance in the shape of Approved Documents. Approved Document M takes effect from 25 October 1999.

Reasons
A House in Multiple Occupation (HMO) may be defined as a single family dwelling house or self-contained flat in a house organised in such a way that it becomes occupied by a number of separate households that share certain facilities.

This Policy is intended to facilitate the achievement of the Council’s Housing policy of self-containment. Any applications concerning HMOs will need to be assessed in accordance with policies on conversions and density, above (HSG Policies 9, 10 ,11 and 16).

Reasons
The Council currently operates a site for travellers in Thurston Road, near Lewisham Town Centre. The above Policy sets out the criteria against which any applications for further development of permanent or temporary sites will be determined. The need for any such additional site will be kept under review by the Council.

Reasons
This Policy is intended to protect the existing housing stock and the amenity of residential areas from inappropriate B & B accommodation.

Reasons
Government legislation requires all planning authorities to consult their local populations when preparing a land use plan. This consultation is essential to ensure that everyone who may be affected by a plan’s proposals may have an opportunity to put their point of view and have an opportunity to influence the process of change.

With respect to Planning Briefs and applications too, and in accordance with the Council’s vision, the process of public consultation is taken very seriously, particularly with respect to housing applications because of their significance in Lewisham. Adjoining boroughs will be consulted on applications which have implications for their areas. The Council has published a code of practice in Supplementary Planning Guidance, which sets out the Council’s procedures for consultation on planning applications. The Council’s methods of public consultation are constantly under review and form an intrinsic part of ongoing discussions with amenity groups in Lewisham.

Map 5.1