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SO3. Provide for a significant increase in high quality housing provision at sustainable locations throughout the City, to both address demographic needs and to support economic growth.

Introduction

11.1 The City Council wishes to create 'neighbourhoods of choice' which will provide desirable places to live and so reduce the number of people who leave Manchester when they have reached a certain economic level. By providing a diverse mix of house types in terms of density, size and tenure, the following policies aim to reduce the inequalities in housing provision and access to housing to make all neighbourhoods within Manchester places where existing residents will want to stay and new residents will be attracted to.

11.2 The North West Regional Spatial Strategy requires Manchester to provide for 63,000 new residential units between 2003 and 2021 net of clearance, which equates to 3,500 units per year. The Council is committed to delivering a further 6,300 units as part of the Growth Point initiative which gives a total requirement of 69,300 units to be provided between 2003-21. Between 2003-09, 19,463 units were completed in Manchester, consequently 49,837 units remain to be provided in the City between 2009-21.

11.3 The Council has prepared a Strategic Housing Land Availability Assessment which will be updated annually. This assessment shows sites in the City which have the potential to accommodate new residential development over the lifetime of the Core Strategy and can be used to demonstrate that a five year supply of land for housing can be maintained.

11.4 Manchester has higher percentages of terraced housing and flats/apartments than the national averages and whilst nearly two thirds of the City's housing stock falls into Council Tax band A the affordability of housing is becoming an increasingly important issue, with only 23% of homes sold in 2006 being affordable to households earning the average Manchester resident income. This is reflected in the low home ownership rate in the City which in 2009 is 46%.

11.5 The policies in this chapter will address the following housing priorities:

• Providing a range range of house types to meet the needs of a diverse and growing Manchester population, in sustainable locations
• Providing affordable housing
• Ensuring that new housing is designed to a high standard including including in environmental terms.

Housing Provision

11.6 This figure incorporates both the requirements of the North West Regional Spatial Strategy and additional housing units identified as part of the Growth Point strategy - 49,837 in total by 2021 after completions to 2009 are taken off the 2003-21 requirement.  Beyond 2021 a significant proportion of residential completions are likely to be on windfall sites.  The Greater Manchester Forecasting Model predicts that Manchester's population will grow to 557,800 people by 2027 and the new housing will support regeneration and growth and and meet current and future housing needs. Increasing the supply and diversity of housing will underpin the effective delivery of employment growth within the Regional Centre and help sustain local services.

11.7 The Strategic Housing Land Availability Assessment (SHLAA) 2009 demonstrates that there is capacity for 62,000 units across Manchester over the plan period, the majority of which are likely to be developed by 2021. Based on the availability,suitability and achievability of developing the capacity sites in the SHLAA, and the current economic situation, indicative phasing is set out in policy approach H2 below.  Although there are sufficient ready to develop sites in Manchester to meet the five year requirement, current conditions mean that the market is unlikely to deliver at a level to meet the RSS target and additional units required by Growth Point over the first few years of the Core Strategy. The figures in H2 reflect the likely completions under market conditions rather then the available land supply.  The Housing Needs Assessment will be updated over the plan period and will identify the housing mix most likely to meet future need, which will inform provision post 2021.

11.8 An allowance for windfalls has been included from 2015 onwards. The windfall allowance includes an assumption that larger windfall sites will come forward after this time at a rate of 150 units per annum rising to 450 per annum by 2021.  This is based on past trends and the expectation that changes in employment sectors will result in the redevelopment of industrial and commercial premises within and at the edge of residential areas, as well as mixed-use schemes replacing older retail and commercial stock in and at the edges of existing district centres and within the Regional Centre. Large windfall sites are also expected to come forward from schemes to redevelop and infill on existing housing estates and potentially on school sites which could become available under the Building Schools for the Future programme.  Smaller windfall sites have been factored into the figures at a rate of approximately 125 units p.a. from 2019 onwards based on previous experience.  Windfall assumptions will be monitored to ensure that they remain realistic. Policy approach H4 sets out factors which the City Council will take into account when assessing the suitability of proposals on windfall schemes.

Distribution of Housing

11.9 New housing will be predominantly in the North, East and City Centre. The proportionate distribution of new housing is dependant on:-

• The number of available sites identified as potential housing sites in the SHLAA;
• A requirement for new larger family housing to diversify the mix of housing to meet the needs of those people wishing to move to, or within, Manchester;
• The replacement of redundant housing stock;
• The availability of, or potential for, adequate infrastructure

11.10 The distribution of available housing sites is in accordance with the Regional Spatial Strategy's policy MCR 2 which gives priority to residential schemes in the Regional Centre and the Inner Areas. The SHLAA capacity sites combined with extant planning permissions and sites under construction show that 53% of new residential development between 2009-2027 is likely to come forward within the Regional Centre, 40% in the Inner Areas and 7% outside of these.

11.11 High density developments (over 75 units per hectare) are appropriate in both the City Centre and the wider Regional Centre given the accessible location. Within the City Centre there will be a presumption towards high density housing development, reflecting the high land values, within mixed-use schemes which contribute to regeneration initiatives or niche housing markets by providing sustainable, well designed accommodation which meets the needs of workers moving to Manchester to take up employment opportunities in growth sectors.

11.12 Within the Inner Areas in North and East Manchester densities will be lower but generally over 50 units per hectare. The type, size and tenure of the housing mix will be assessed on a site by site basis and be influenced by local housing need and economic viability. 

11.13 In Central and South Manchester the emphasis will be on increasing the availability of family housing therefore densities will be below this. Priorities in Central Manchester are to diversify housing stock in mono-tenure areas by increasing the availability of family housing, preserving and improving the quality of the existing housing stock and the management of areas where HMOs predominate.  South Manchester will accommodate a smaller amount of development due to the shortage of available land.  New housing will consist of high value developments which will help to sustain and promote wider economic growth within the regional centre, or affordable homes; and will meet the need for family housing, first time buyers or newly forming households.  Wythenshawe has a predominance of family housing with a shortage of housing for single people and young families. New housing, therefore, will comprise mainly one and two bedroom units for newly forming households adjacent to Wythenshawe Centre and upon small infill sites. This will help to release family housing, currently under occupied, but which is in high demand across Manchester.

Windfall Sites

11.14 Sites for the development of new dwellings will be approved in accordance with sustainable development principles, in conformity with PPS1 and PPS3. 

11.15 The Council is committed to the development of new housing which meets the current Code for Sustainable Homes requirements; in locations which promote the efficient use of resources, support regeneration and local services and encourage economic growth.  This will enable the Council to offset the effects of economic growth by reducing carbon emissions from new development and transport.

11.16 Climate change predictions suggest that the risk of flooding is likely to increase within parts of the City over the next century. It is vital therefore that new development is properly protected and incorporates drainage and other measures to reduce its impact upon the local ecosystem.

11.17 There is a shortage of housing for elderly and disabled people. The number of elderly people is growing and there is likely to be a disproportionate increase in the number of disabled people as the population becomes older. To meet this need, additional housing is necessary, which is or can be adapted.  All new dwellings must be of sufficient design quality and size to provide satisfactory levels of privacy for existing households.

Affordable Housing

11.18 The City wishes to diversify its housing offer through a policy framework which supports economic growth and the outcomes expressed within the Community Strategy, in particular the target of creating a more balanced housing market by increasing levels of owner occupation from 46% to 60% by 2015. The Council is examining opportunities for lower paid and lower skilled residents to access home ownership and share in the long term growth of the City.

11.19 Manchester’s economy grew rapidly to 2007. It stimulated housing demand, and meant that a positive response is required to increase the ability of residents to find affordable routes to housing.In 2002, over 50% of homes sold in Manchester were affordable to households upon average income, but by 2006, this had fallen to 23%. In the second quarter of 2009 affordability remains a problem despite house price falls. It is now necessary to save a minimum 10% deposit to purchase a house to ensure repayments are made at sustainable levels. Choices for households on average income are limited to Bradford, Gorton North and South, Harpurhey, Longsight, Miles Platting and Moss Side ^(ix).

11.20   Most financial institutions now require a substantial deposit and have increased the level of household income relative to price necessary to take out a mortgage. Throughout this period, the supply of social housing has also fallen sharply. The Housing Needs Assessment identified a need for 1,375 new affordable homes annually, 716 for rent and 659 intermediate units. A proportion of these affordable housing units can be delivered as part of new housing developments by ensuring the housing mix includes different sizes, types and tenures to produce a better balance of housing supply in the City.

11.21 The Access to Affordable Housing Strategy (2007) identified the need for 20% affordable housing provision based upon evidence gathered as part of the Housing Needs Assessment and moderated to take account of local land prices and Manchester’s housing market. Consideration was also given to local incomes and access to mortgage finance, and a viability study has been undertaken which confirmed the viability of the 20% affordable housing targets across Manchester. The Council will monitor progress on this initial affordable housing target and appraise delivery to ensure that housing needs are being addressed effectively. Delivery mechanisms will be reviewed as part of future Development Plan Documents or Supplementary Planning Documents. The Council wishes to maintain a flexible approach to the delivery of housing generally and affordable housing in particular by reflecting changes to market conditions and by taking advantage of the development of new equity based products.

11.22 Planning Policy Statement 3 defines affordable housing as set out below:-

"Affordable housing includes social rented and intermediate housing, provided to specific eligible households whose needs are not met by the market.  Affordable housing should:
- Meet the needs of eligible households including availability at a cost low enough for them to afford, determined with regard to local incomes and local house prices.
- Include provision for the home to remain at an affordable price for future eligible households or, if these restrictions are lifted, for the subsidy to be recycled for alternative affordable housing provision."

Social rented housing is defined as:-

"Rented housing owned and managed by local authorities and registered social landlords, for which guideline rents are determined through the national rent regime.  The proposals set out in the Three Year Review of Rent Restructuring (July 2004) were implemented as policy in April 2006. It may also include rented housing owned or managed by other persons and provided under equivalent rental arrangements to the above, as agreed with the local authority or with the Housing Corporation as a condition of grant."

Intermediate affordable housing is defined as:-

"Housing at prices and rents above those of social rent, but below market price or rents, and which meet the criteria set out above. These can include shared equity products (e.g. HomeBuy), other low cost homes for sale and intermediate rent."

The definition does not exclude homes provided by private sector bodies or provided without grant funding. Where such homes meet the definition above, they may be considered, for planning purposes, as affordable housing. Whereas those homes that do not meet the definition, for example, 'low cost market' housing, may not be considered, for planning purposes, as affordable housing.

Student Accommodation

11.23 It is recognised that the universities and their students make an important contribution to the economy of the City. In order to maintain a balanced population mix in Fallowfield and Withington which includes families the Council wishes to discourage further encroachment of student lets in this area so as to retain family housing and sustain the services and facilities associated with family housing.

Gypsies and Travellers and Travelling Showpeople

11.24 The Core Strategy approach to Gypsies and Travellers and Travelling Showpeople is explained in the following policies, which include criteria against which proposals for new sites can be assessed.  The Council is also producing a Site Specific Allocations DPD, which will identify specific sites, as required, to meet the need indicated in RSS.

11.25 Gypsies and Travellers are protected from discrimination by the Race Relations Act 1976 and the Human Rights Act 1998. The Race Relations (Amendment) Act 2000 places a duty on public authorities, to promote race equality for all racial groups including those in respect of homelessness under Part VII of the Housing Act 1996. Gypsies and Travellers, since the repeal of the Housing Act 1994 have found it increasingly difficult to find appropriate sites to live.

11.26 The RSS Partial Review has identified the need for an additional 50 permanent and 10 transitory pitches to 2016 in Manchester. From 2016-2021, pitch numbers will increase by a further 3% annually. These figures were derived from research commissioned by AGMA to quantify the accommodation needs of Gypsies and Travellers as part of Manchester’s Housing Needs Assessment. The Council believes that by making additional provision for permanent sites, this will not only provide a more stable environment in which educational attainment can be improved and at the same time enable Gypsies and Travellers better access to health facilities, but also take positive action to reduce the problems associated with unauthorised encampments including antisocial behaviour and neighbour nuisance. There is also a need for transitory sites to enable Gypsies and Travellers to move around the country and stop in safety on a site which is authorised with suitable amenities and does not cause a nuisance to neighbours. Each site will be designed in accordance with CLG approved guidance, taking into account local needs, and include full consultation with both Gypsies and Travellers and the local community.

11.27 Showpeople, since the repeal of the Housing Act 1994, have found it increasingly difficult to find appropriate sites to live. The RSS Partial Review has identified the need for an additional 20 permanent pitches in Manchester to 2016. From 2016-2021, pitch numbers will increase by a further 3% annually. These figures were derived from research commissioned by AGMA to quantify the accommodation needs of Showpeople as part of Manchester’s Housing Needs Assessment. The Council believes that by making additional provision for permanent sites, this will not only provide a more stable environment in which educational attainment can be improved and at the same time enable Showpeople better access to health facilities, but also take positive action to reduce the problems associated with unauthorised camps including antisocial behaviour and neighbour nuisance.

11.28 Each site will be designed in accordance with current CLG Guidance, taking into account local need, and include full consultation with both Showpeople and the local community.