daventry urban capacity study january 2005 · 2.12 the proposed changes to the milton keynes and...

DAVENTRY URBAN CAPACITYSTUDY JANUARY 2005

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DAVENTRY URBAN CAPACITY STUDY JANUARY 2005

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CONTENTS PAGE

1.0 Introduction 2

2.0 Planning policy background 2-6

3.0 Overview of Daventry Town 6-7

4.0 Methodology 7-17Identification of the urban area 7Site/capacity identification 8Identifying sites 8-13Assessing yields 13-14Discounting potential 14-17

5.0 Capacity sources 17-37

6.0 Discounting potential. summary of findingsand conclusions. 37-40

APPENDICES

Appendix 1:-Sites identified in 2001 urban capacity study 41-43Appendix 2:- Map showing boundary of urban capacity

study area. 44


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URBAN CAPACITY STUDY FOR DAVENTRY TOWN

1.0 Introduction

1.1 Daventry District Council have undertaken an Urban Capacity Study asrequired by Planning Policy Guidance Note 3 and in accordance withthe advice given in the Government guide to Best practice “Tapping thePotential”. The Capacity Study will help to plan for future housingdevelopment in Daventry District by establishing how much additionalhousing can be accommodated within urban areas and therefore howmuch greenfield land may be needed for development. This baselinedata will inform the preparation of the new Local DevelopmentFramework.

1.2 Section 2 of the report sets out the planning policy background. Section3 provides an overview of Daventry Town, which helps to explainconstraints on potential supply, and section 4 explains the methodologybehind the Urban Capacity Study. The findings are presented inSection 6, which sets out a summary of the findings and conclusions.

1.3 The Study identifies potential capacity for residential developmentwithin the existing urban area of Daventry Town. Inclusion of a sitewithin the study indicates there may be potential for residentialdevelopment on all or part of the site. It does not indicate that planningpermission for residential development on a particular site wouldnecessarily be granted nor does it mean that all sites identified ashaving potential will become site proposals in the Local DevelopmentFramework.

1.4 Stated capacity has by necessity been calculated using a formula. Itdoes not necessarily mean that the number of dwellings stated wouldbe acceptable on a particular site. Specific site constraints and designconsiderations will in reality result in site capacities being higher orlower than that stated.

1.5 Finally inclusion of a site within the Study does not indicate the currentlandowner will necessarily accept residential development on theirland.

2.0 PLANNING POLICY BACKGROUND

2.1 This section of the report looks at relevant policy. This review of policyunderpins the assumptions and approach of the study, providing thewider context within which the results of the report can be consideredand interpreted.

Planning Policy Guidance Note 3- Housing (2000)

2.2 PPG3 paragraph 2 emphasises that local planning authorities should‘provide sufficient housing land but give priority too re-using previously


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developed land within urban areas, bringing empty properties back intouse and converting existing buildings , in preference to thedevelopment of greenfield sites’

2.3 Paragraph 21 elaborates on this theme and states;‘The Government is committed to promoting more sustainable patternsof development by:

Concentrating most additional housing development withinurban areas;

Making more efficient use of land by maximising the re-use ofpreviously developed land and the conversion and re-use ofexisting buildings;

Assessing the capacity of urban areas to accommodate morehousing;

Adopting a sequential approach to the allocation of land forhousing development;

Managing the release of housing land; andReviewing existing allocation of housing land in plans, and

planning permissions when they come up for renewal.

2.4 Paragraph 24 specially states that, ‘…..In order too establish howmuch additional housing can be accommodated within urban areas andtherefore how much Greenfield land may be needed for development ,all local planning authorities should undertake urban capacity studies’

Tapping the Potential- Assessing Urban Housing Capacity;Towards Better Practice(2000)

2.5 A companion guide to PPG3, ‘Tapping the Potential’ was published inDecember 2000 and provides advice on better practice with respect toundertaking urban capacity studies.

2.6 Section1 stresses the guide is based on best practice and is notintended to be the ‘final word’ on the subject or prescribe how capacitystudies should be carried out. Instead the guide highlights issuesauthorities will encounter and will act as a checklist of various optionsavailable and decisions that have to be made at any point in thecapacity assessment programme.

2.7 The guide identifies four main stages in the capacity assessmentprocess as follows:-

Listing the capacity sources;Surveying to identify opportunities;Assessing the potential yield; andDiscounting the potential to provide an assessment of the

capacity that can be realised.


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Regional Planning Guidance for East Midlands (RGP 8)

2.8 The Government expects Regional Planning bodies to prepare RegionalPlanning Guidance to provide for sufficient housing to meet the likelyhousing requirements of their area.

2.9 The Regional Planning Guidance for the East Midlands (RPG8) waspublished on 24th January 2002. The Guidance reiterates theimportance of urban capacity studies and sets the studies in a regionalcontext. Paragraph 4.56 states:-

‘The sequential approach that underlies the spatial strategy for the EastMidlands aims to ensure that sustainable communities can be created.This means that new housing should be located in urban areas as a firstpriority. In order to assess the scope for maximising urban capacity inline with the sustainable development objectives of this guidance, localplanning authorities, working together across administrative boundaries,should carry out urban capacity studies. These studies should exploreadditional opportunities for providing dwellings on new land, throughconversions and by reducing vacancies. The co-ordination of urbancapacity studies will be important. There will be a role for the RPB inensuring a consistency of approach, using the DTLR's guide "Tappingthe Potential: Assessing Urban Housing Capacity - Towards BetterPractice" (2000). In assessing urban capacity, urban areas can includeall settlements, whether cities, towns or villages, that can contribute tosustainable patterns of development’

2.10 Paragraph 4.58 suggests a range of measures can contribute toachieving a more effective use of urban areas. These include:-

reducing the number of vacant dwellings;

re-using derelict or un-used land;

converting buildings from non-residential to residential use;

where appropriate, re-allocating land currently allocated for non-residential purposes (while ensuring that a balance of employment,housing and other activities is retained);

encouraging infill development; and

sub-dividing dwellings.

2.11 Policy 21 formalises the approach of the Regional Planning Guidance asfollows:-


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Policy 21

Sustainable Locations for Housing

The location of housing sites in development plans should reflect thesequential approach outlined in policy 1 and PPG3. Residentialdevelopment sites should be assessed against criteria set out in policy2. Urban housing capacity studies should be carried out andopportunities taken to focus housing in urban areas, especially toassist regeneration in the areas set out in policy 3.

Proposed Changes Milton Keynes and South Midlands Sub-RegionalStrategy, October 2004

2.12 The proposed changes to the Milton Keynes and South Midlands Sub-Regional Strategy, October 2004, in Northamptonshire Policy 1, allocate10,800 dwellings to Daventry District between 2001-2021.

2.13 The focus of development within the sub regional strategy is directed at theprincipal urban areas of Northampton, Corby/Kettering /Wellingborough.Outside the principal urban areas Daventry is identified as a smaller urbanarea which will serve a secondary role in the functioning of the Sub-Area’surban and rural area with the priority being to maintain retail and communityservice provision. The strategy aims to limit development in the ruralhinterlands.

2.14 Paragraph 2.12 indicates Daventry will continue to grow with growthconcentrated in the form of one or more urban extensions. As part of theemphasis of growth in Daventry Town an Urban Development Corporationhas been created to deliver anticipated growth within the town.

Daventry Urban Capacity Study April 2001

2.15 An urban capacity study for Daventry Town was produced in April 2001.

2.16 The main finding of the 2001 report was that given the ‘planned’ nature ofthe town there was limited potential within the existing urban area. Apotential of 201-233 dwellings were deemed likely to be developed (the mid2003 land availability study updated the potential to 228-230). At the time ofwriting this report there was only one major greenfield site remaining to bedeveloped. Taking account of commitments in the 2000 land availabilitystudy, urban capacity identified in the study and requirements of theNorthamptonshire County Structure Plan 2001 it was determined that thewhole of the remaining greenfield allocation was needed to meet StructurePlan commitments.

2.17 This report was undertaken before the publication of ‘Tapping the Potential’and while generally in accord with it was none the less not fully compliantwith the guidance. It does however provide a useful starting point for thecurrent exercise.

http://www.go-em.gov.uk/planning/rpg/261-03.php#FEFF00700031





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2.18 Appendix 1 details the current position regarding the take up sites identifiedwithin study. As of mid 2004 of the sites in the ‘likely to be developedcategory’, excluding potential from conversions and small windfalls 4 sitesidentified have not yet been developed consisting of 162-164 dwellings. Ofthese two of these sites now have planning permission (117 dwellings) andtwo sites remain unimplemented. These two sites, without planningpermission will be considered further in the course of this report.

3.0 Overview of Daventry Town

3.1 The history of Daventry Town has significance in terms of the amount andtype of land available within the built up area for development. Daventrywas a small market town with a population of 5860 in 1961. (Source:-1961census). At this time Daventry was designated as an overspill town forBirmingham. Greenfield land was purchased to accommodate newresidential and industrial development. Both residential and industrialdevelopment was planned with a strict segregation of the two uses. TheTown Centre retains its market town character with small shop units and alarge number of listed buildings.

3.2 The town has since grown to about 21,738 people in 2001 (2001 Census)and the character of the town and the opportunities for development reflectthe background history of the town. The housing stock mainly dates fromthe 1960s and growth has been largely on greenfield sites. It is estimatedthat in 1963 the town had 1584 dwellings. Between 1963-2004 about 7932dwellings have been built of which it is estimated that 88% have been buildon greenfield land in planned residential developments. Most of theseresidential areas have been planned to create green environments witheasy access to open space.

3.3 Brownfield land is limited given the recent growth of the town. Industrialareas are all separate from the residential areas and have beenconcentrated in three industrial estates on the northern and southern edgeof the town.

3.4 Between 1991-2004 2816 dwellings have been built in the town. Thefollowing sources of supply have been most important:-

Source Net GainConversion /Change of use of non residentialbuildings/residential buildings

3 (0.11%)

Net dwellings provided through the subdivisionof residential buildings

24 (0.85%)

Net dwellings provided on previously developedland

732 (25.99%)

Dwellings provided on marginal open spaces,playing fields and allotments

86 (3.05%)

Dwellings provided on greenfield land. 1971 (69.99%)


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3.5 These characteristics of Daventry Town stress the limited scope that is likelyto be identified for additional residential capacity within the existing urbanarea.

4.0 Methodology

4.1 This section of the report describes the approach that was taken to identifyingcapacity for residential development within Daventry Town.

4.2 Identification of the Urban Area

4.3 The first stage within the Study is define the area to be studied. Inaccordance with “Tapping the Potential “ the urban settlements are identifiedas those settlements that can contribute to a sustainable pattern ofdevelopment in accordance with paragraph 31 of PPG3. Typically thesesettlements contain existing shops and services, social and communityinfrastructure , are accessible by public transport and can accommodateadditional residential development . In many cases they are capable of havinga sensible ‘envelope’ drawn round them and in many instances have alreadybeen identified in a local plan.

4.4 The nature of Daventry District precludes most settlements from this definitionas the administrative area of Daventry District covers a large rural area of66,000 hectares and has a population of 73,521 (ONS estimate, mid 2002).About half of the District’s 74 parishes have a population of less than 300,while only four villages have a population of over 3000. Most of these villageshave a limited range of shops and services and restricted access to publictransport. In the current Local Plan only the villages of Brixworth, Crick, LongBuckby, and West Haddon have defined village boundaries. In accordancewith PPG3 most of the villages in the District have limited scope to supportsustainable development.

4.5 Policy guidance detailed in section 2.0 stresses the need to limit ruraldevelopment and urges development to be directed to sustainable locationssuch as Daventry Town.

4.6 In light of the policy emphasis and the rural characteristics of the district theonly urban area subject to this urban capacity study is the town of Daventry .In defining the extent of the urban area of Daventry and thus the scope of thestudy area the administrative boundaries of the town have been drawn tightlyround the existing urban area. This boundary is shown in Appendix 2.

4.7 General Methodology for site/capacity identification

4.8 The general methodology used falls into the following main categories:-

Desk based research and analysis. This included analysing past trends, looking at maps and aerial photographs of the town.


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Where promising sites have been identified from maps and aerialphotographs these sites have been followed up by site analysis.

In relation to identified sites owners/agents of some of the larger siteswere contacted for their views on the availability of their site forresidential development. Their views have been incorporated into thestudy when taking into account whether sites are likely to come forwardor not. Other major agents in the town with landholdings in the townwere also contacted.

An assessment of sites identified in the 2001 Urban Capacity Studyand there current position.

Any sites with planning permission were excluded to avoid doublecounting.

4.9 Methodology for identifying sites

Potential Source Methodology For Identifying CapacitySub-division of ExistingHousing

This includes subdivision of housing intotwo or more units and situations where ahouse/flat may be combined into fewerunits. The net gain from these sources isrecorded.

The capacity resulting from this source isidentified from past trends of netadditional dwellings resulting in recentyears. An annual rate of gain wascalculated and the trend projectedforward to provide an assessment ofpotential capacity over the plan period.

Information from the 2001 Census wasalso used to judge the extent there areproperties in the Town with potential forsub-division.

Flats Over Shops This source includes floor-spaceassociated with ground floor retail usesthat is not already in residential use: thatis normally vacant or used for storagepurposes. Change of use of ground floorretail are included within the conversionof commercial buildings source.Previously developed vacant andderelict shops are included in thepreviously developed vacant land andderelict building source.

In seeking to identify potential capacity


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Potential Source Methodology For Identifying Capacityfor residential development from ‘flatsover shops’ it was considered mostappropriate to analyse past trends ofcompletions from this capacity source toidentify annual rate of net gain in thedwelling stock from this particularcapacity source. This trend analysis wasthen combined with an analysis of a2000 survey of upper floor spacesupplemented by a recent analysis ofCouncil tax and Business Rate records.

Empty Homes In seeking to assess capacity from thissource the Study looked at propertiesidentified from Council Tax recordsrecorded as empty supplemented by asurvey of these records to assess theextent these properties are genuinelyempty.

Previously DevelopedVacant and DerelictLand and Buildings(Non- Housing)

This source includes former industrialland, derelict buildings and vacant plotsin non housing use. Derelict housing isnot included in this source nor aresources resulting from the intensificationor re-development of existing housing.


Intensification ofexisting Areas

This source includes more efficient useof the land in a given area. This includesgarage courts, large gardens andbacklands.


However significant gains have resultedfrom this source in the past due toidentification of council garage sites


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Potential Source Methodology For Identifying Capacitysuitable for re-development as a resultof the 2001 urban capacity study . Thusthese past trends must be treated withcaution.

It was not generally consideredappropriate to identify specific gardensas a source since there was no accessto survey and a low probability of thesites coming forward and a high level ofconstraints are likely to apply.

Redevelopment ofexisting housing

The re-development of existing housingsource relates to the re-development ofblocks of housing or residential estateswhere higher densities may be achievedthrough remodelling the form and designif housing. This might relate to groups ofoccupied (sub standard) housing, vacantand derelict housing.

An analysis of past trends over previousyears was identified to identify an annualrate of the net gain in the dwelling stockfrom this particular source.

The 2004 Urban Capacity Site Surveyalso sought to see if any additionalcapacity could result from this source.However opportunities are generallylimited given the planned nature of thetown, generally high density of theplanned developments and the morerecent growth characteristics of theTown.

Re-development of carparks

The assessment of this capacity sourcewas restricted to public car parks anddid not include car parking associatedwith existing residential and commercialdevelopment. These car parks areconsidered in other capacity sources ieemployment and residentialintensification.

A list of all current car parks was drawnup. In addition proposals for DaventryTown Growth and revitalisation andgrowth of the Town Centre as identifiedin the document Daventry Town Centre


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Potential Source Methodology For Identifying CapacityVision were fed into the analysis toinform future demands for car parkingand to identify those car parks zoned forre-development to other uses. Garageblocks were not included in this sourcebut were included in the “intensificationof existing housing” source to avoiddouble counting.

Conversion ofCommercial buildings

This source includes change ofuse/conversion of buildings in office useto residential use. To avoid doublecounting where office use is on anupper floor above a retail use this hasbeen included in the ‘above shop’category.

In seeking to identify potential capacityit was considered appropriate to use acombination of site survey identificationtogether with an analysis of past trends.

Review of existinghousing allocations inthe Local Plan

A list of housing allocations in DaventryTown from the 1997 adopted Local Planwas prepared and the status of each ofthese allocations was noted in a table,based upon information gathered in thecourse of our continued monitoring ofthe Local Plan, planning permissionsand the implementation thereof. Theremaining sites were then reviewed inorder to establish their likely capacity (inlight of current planning guidance)together with the likelihood of these sitescoming forward for development in thefuture. Reference was made to theowners of these sites to judge availabilityand any current policy guidance.

To avoid double counting any sites inother source categories that are housingallocations were included in this sectionof the report.

Review of other existingallocations in the LocalPlan (non housing)

As with housing allocations, from the1997 adopted Local Plan a list of theseallocated sites was prepared and thestatus of each noted in a table, basedupon information gathered in the courseof our continued monitoring of the LocalPlan, planning permissions and theimplementation thereof. The remaining


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Potential Source Methodology For Identifying Capacitysites were then reviewed to assess theirsuitability for residential developmenttogether with an assessment of thelikelihood of such sites actually beingbrought forward for residentialdevelopment.

To avoid double counting any sites inother source categories that areallocations in the Daventry District LocalPlan were included in this section of thereport.

Vacant Land notpreviously developed(this does not includeland used foragriculture, playingfields, parks andallotments)

This is land shown on Ordnance Surveymaps as ‘white’ area without annotation.It does not include land in built up areasused for agriculture, playing fields,parks or allotments.


Re-development of ExistingOther Uses

This includes sites not fitting into othersources identified above such as:-

premises used for employmentpurposes whose buildings maybe suitable for conversion. Toidentify capacity use was made ofsite survey analysis.

schools and colleges identified bythe Local Education Authority asredundant/re-development.

allotments with high vacancyrates and not considered to beimportant for environmentalreasons.

Playing fields , open space andrecreation grounds. In thisrespect the 2002 County PlayingPitch Strategy 2002 was used toassess the current demand for


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Potential Source Methodology For Identifying Capacityand supply of playing pitches andwhether sites are important forenvironmental and/or recreationalreasons.

4.10 Each of the above sources was considered in turn in this assessment of theurban capacity of Daventry Town.

Assessing Yield

4.11 This urban capacity study has utilised density multipliers according togeographical location and the size and shape of individual sites. By necessity,capacities have been calculated using a formula. This does not mean that aset number of dwellings would be acceptable on a site as much depends onspecific site constraints and design considerations. And therefore ondevelopment a site may yield a higher or lower figure.

4.12 The following factors will impact on the yield calculated:-

1) Geographical location. PPG3 paragraph 58 states that local planningauthorities should seek greater intensity of development at places withgood public transport accessibility. Paragraph 49-51 of PPG3emphasises the potential to promote additional housing in town centreswith little or no car parking. Such town centre locations have a greaterpotential in terms of the likely character of an urban area to be of ahigher density. Separate density bands have been identified based onwhether a site is within or outside the town centre. The bands are asfollows:-

Geographical band Dwellings per hectare (gross)Town Centre 75 (70+ dwellings per hectare)*Outside Town Centre 35 (30-50 dwellings per hectare)**

* based on experience on past schemes in the town centre.** based on minimum site density identified in NorthamptonshireCounty Structure Plan and guidance in PPG3.

The indicated dwellings per hectare figures have been identified for thepurposes of calculating site capacities in this study. Developmentdensities can vary within the range stated although most developmentwould be expected to be around the indicated figure.

2) Size of site. An allowance is made within the density multipliersapplied to convert gross site area to net site areas. Tapping thepotential provides guidance on the conversion of gross to net ratio’s fordifferent site sizes.

Site Size Gross to net ratio MultiplierUp to 0.4 hectares 100% gross to net

ratio1


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Up to 0.4- 2hectares

75-90% gross to netratio

0.825

Over 2 hectares 50-75% gross to netratio

0.625

3) Shape/other constraints. It is also important to take account of theconstraint imposed by a long narrow site in terms of potential capacityand sites which may be constrained by tree preservation orders etc.The capacity of sites which are long/narrow and are known to sufferfrom other constraints affecting the land area have been discounted by25%. This discount has also been applied to sites with constraints suchas tree preservation orders which may affect the available site area.

Shape of site Discount MultiplierLong/narrow site andother constraintsaffecting land take.

25% 1

Other sites with majorconstraints

0% 0.75

4.13 The formula to determine site capacity is therefore:-

Potential capacity = site area x density multiplier based ongeographical location x gross to net ratio based on site size x siteshape multiplier.

Discounting the potential

4.14 Having established the total potential unconstrained capacity for eachcapacity source, it was then necessary to apply appropriate discounting toreflect the likely proportion of dwellings to come forward from each particularsource and thus an assessment of the capacity that can be realised. This wasapplied once a total unconstrained capacity had been calculated for eachsource, rather than on a site by site basis. ‘Tapping the Potential’ suggests theuse of ‘discount rates’ . The guidance also states the discount ‘rates for eachof the capacity sources should be established by authorities based inprofessional judgements and knowledge of their area informed by consultationwith those active in the market’

4.15 This report assesses the percentage of the capacity that is likely to comeforward for development to 2021. The discount figures are based on theadvice in ‘Tapping the Potential’ although where there are particular pointsrelevant to Daventry, a different discount rate has been chosen. For theavoidance of doubt , discount rates are expressed as a percentage of thecapacity which is unlikely to come forward from a particular capacity sourcee.g If the capacity is 100 dwellings and the discount rate 80% then 20dwellings are likely to come forward. The discount figures applied were asfollows:-


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Discount rates to be applied to each capacity source

Capacity Source DiscountRates

Rationale of discount

Subdivision ofexisting housing

0% Potential capacity has been basedon past trends. There is no reasonto suggest past rates will notcontinue as no change in localplanning policy is proposed at thistime. Therefore no discount hasbeen applied.

Flats over shops 0% Potential capacity has been basedon past trends. There is no reasonto suggest past rates will notcontinue as no change in localplanning policy is proposed at thistime. Therefore no discount hasbeen applied

Empty Homes 40% The empty homes source hasbeen investigated with anextremely low figure beingidentified. However given targetsset in the Council’s BVPI64 forbringing empty homes back intouse and the pro-active approachsuggested in the Council’s EmptyProperty Strategy a discount rateat the lower rate suggested in‘tapping the potential’ has beenadopted.

Previouslydeveloped vacantland and derelictbuildings (nonhousing)

85% Potential capacity has been basedon past trends. The discount rateis based on the highest ratequoted in ‘tapping the potential’ .This is based on the erratic supplyfrom this source in the past andthe character of Daventry Townwhich consists of largely plannedrecent growth on greenfield sitesand planned industrial estates.

Intensification ofexisting housingareas

85% Potential capacity has been basedon past trends. The discount rateis based on the highest ratequoted in ‘tapping the potential’ .This is based on the erratic supplyfrom this source in the past, thefact most of the previous supplywas the result of an indepth studyof parking areas and the characterof Daventry Town which consists


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of largely planned recent growthon greenfield sites wheredevelopment has been to arelatively high density in themajority of areas.

Redevelopment ofexisting housingareas

100% Potential capacity has been basedon past trends. The discount rateis based on the fact that nil supplyhas resulted from this source inthe past and the character ofDaventry Town which consists oflargely planned recent growth ongreenfield sites where mostdevelopment has been built to arelatively high density.

Redevelopment ofcar parks

100% Discount rate of 100% has beenapplied as the Council document ‘Town Centre Vision’ indicates allcurrent sites will be required tomeet the planned growth of thetown and proposed town centre re-development proposals.

Conversion ofcommercial buildings

0% Past trends show a potential lossfrom residential use tocommercial. Therefore site surveyanalysis shows only one potentialsite which landowners haveindicated is available forresidential use. On this basis nodiscount rate has been applied.

Review of existinghousing allocationsin the Local Plan.

100% All sites apart from one site havebeen developed, are underconstruction or have planningpermission. The remaining site iscouncil owned and has beenidentified by the Council for analternative use.

Review of otherexisting allocationsin the Local Plan

100% All sites have been developed orhave planning permission so onthis basis a 100% discount ratehas been applied.

Vacant land notpreviouslydeveloped

0% Potential capacity has been basedon past trends. There is no reasonto suggest past rates will notcontinue as no change in localplanning policy is proposed at thistime. Therefore no discount hasbeen applied.


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Redevelopment ofexisting other uses.

50% In the past these sites haveprovided ad hoc developmentopportunities. In all cases thelandowners have indicated aninterest in residential developmentor the sites are identified inCouncil documents. However allsites have existing owners and arein productive use. At a result adiscount rate of 50% has beenapplied.

Allotments 80% In view of the fact the even whenallotments have high vacancyrates, there would need to becommunity consultation, a formalprocess of removing allotmentstatus and the consideration ofthat such spaces serving animportant role as open space, adiscount rate of 80% has beenapplied.

5.0 Capacity sources

Sub-division of existing housing

5.1 This source includes the subdivision of existing housing into two or moreunits.

5.2 In considering the sub-division of existing housing in Daventry Town, largerhomes, which may have potential for sub-division, were identified as allhomes with at 7 or more habitable rooms. The 2001 census was used toidentify such properties in Daventry Town, and 1769 such properties wereidentified (20.04 % of the total properties in the town).

5.3 Past trends were analysed to establish how many units have come forwardfrom this source in Daventry Town between 1991-2003.

Year Total Gain Total Loss Net Gain2003/2004 0 0 02002/2003 26 13 132001/2002 0 0 02000/2001 6 2 41999/2000 0 0 01998/1999 0 0 01997/1998 0 0 01996/1997 2 1 1


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Year Total Gain Total Loss Net Gain1995/1996 1 2 -11994/1995 0 0 01993/1994 8 1 71992/1993 0 0 01991/1992 0 0 0Total 43 19 24

5.4 This analysis showed there was a net gain of 24 dwellings from this source.(net gain is the number of new dwellings created from a sub-division of aproperty also taking into account losses that may have occurred from anymerging of properties). This is a very small percentage of the total number ofproperties identified with potential for sub-division from the 2001 census.(0.85%). This equates to an average of 1.85 dwellings per year.

5.5 However it considered unlikely that that a great deal of further dwellings willresult from this source as the nature of properties in Daventry Town suggestmany properties with 7 or more habitable rooms are often physicallyconstrained in their design to enable conversion as a feasible option. Mostdwellings with 7 or more habitable room are newly constructed on modernnewly built estates. Indeed the 1991 census indicates that there were only 724of these dwellings compared to 1769 in 2001 with the increase beingaccounted for by new build on modern estates.

5.6 In light of the above assessment it is estimated on the basis of past trends inthe period up to 2021 that 31 net new dwellings will result from sub-division.

Flats above shops

5.7 This source includes floor-space associated with retail uses that is not alreadyin residential use such as vacant or storage uses.

5.8 In seeking to identify the potential capacity for residential development fromthis source it was considered most appropriate to consider past trends. Thistrends analysis was combined with an analysis of business rate and CouncilTax records to identify the scope for change of use of this floor space.

5.9 Policy HS9 of the Daventry District Local Plan permits the conversion of upperfloors in commercial buildings within the town centre. It is recognised thatvacant upper storeys represent an under use of resources. Howeverresidential use can be discouraged by financial considerations, security,insurance difficulties and fire regulations.

5.10 Past trends were analysed to establish how many units have come forwardfrom this source in Daventry Town between 1991-2004.

Year Total Gain Total Loss Net Gain2003/2004 0 0 02002/2003 0 0 02001/2002 1 0 1


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Year Total Gain Total Loss Net Gain2000/2001 0 0 01999/2000 0 0 01998/1999 1 0 11997/1998 2 0 21996/1997 3 0 31995/1996 0 0 01994/1995 1 0 11993/1994 5 0 51992/1993 1 0 11991/1992 0 0 0Total 14 0 14

5.11 This analysis showed there was a net gain of 14 dwellings from this sourcebetween 1991-2004. This represents and average of 1.08 dwellings a year. Ifwe assume that this rate will continue over the period 2004-2021 we assumea potential capacity from this source of 18 dwellings.

5.12 To confirm the capacity level suggested in 5.11 a survey of shop owners wasundertaken in April 2000, which was supplemented, by visual inspection andthe use of Council Tax records. This study has been updated from an analysisof Council Tax, Business Rate and planning records. This suggested thatcurrent upper floor space is used as follows:-

Upper floor space use PercentageResidential 37%Offices 30%Shop Storage 14%Other 6%Vacant/Unknown 14%

5.13 This confirms there is limited scope in Daventry Town Centre for theconversion of floorspace above shops. Daventry is a small market town withonly a small number of shop units (it is estimated there are approximately 242upper floor spaces), a large number of which are in listed buildings. On thebasis of vacant/unknown uses and upper floor space used for storage there isan estimated potential at the most around 68 upper floor spaces. However itmust be noted many of these floor spaces do serve a purpose and areunlikely to be converted. This suggests that the estimate of 18 dwellings fromthis source between 2004-2021 is realistic.

Empty properties

5.14 In order to assess the potential contribution that existing empty homes canmake to housing provision in the study area in the period up to 2021 thefollowing data sources were assessed:-

Existing vacancy rates;Council Tax records;The Government White Paper, “Our Future Homes”, 1995


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5.15 The Government White Paper, “Our Future Homes”, 1995 identified a nationaltarget for reducing the proportion of vacant houses by 2005 from 4% to 3%.This was re-iterated in the “The Government’s Response to the Environment,Transport and Regional Affairs Committee’s Report on Housing on the 13thNovember 1998. The current vacancy rate in April 2002 in Daventry Districtwas 3.0%.

5.16 On 20th July 1999 a bill was placed before parliament requiring localauthorities to produce empty property strategies aimed at securing the returnto residential use of unoccupied dwellings. This requires local authorities toprovide information on the number of unoccupied dwellings in their area, andto set annual targets for the number of unoccupied dwellings to be returned toresidential use.

5.17 Daventry District Council produced a draft empty property strategy inSeptember 2003 , although this strategy does not set any targets to bringunoccupied dwellings back into use it signals an intention to encouragehomeowners and landlords to bring empty homes back into use. TheCouncil’s Best Value Performance Plan 2004/5 in BVPI64 suggests using amore pro-active approach. It sets targets for 4 empty properties to be broughtback into use for 2004/5, 5 for 1005/6 and 6 for 2006/7.

5.18 The Housing Strategy 2003-2006 under Objective 2, To ensure that housingin the district is managed, maintained and improved to a high standard seeksto keep empty properties to a minimum.

5.19 Council Tax records for April 2002 identified 905 empty dwellings in theDistrict. (3.0% of the total stock of dwellings in the District). 479 of thesedwellings had been empty for more than 6 months (1.6% of the total stock inthe District). An in-depth survey by Environment and Recreation Team ofproperties that had been empty for more than 6 months found most weresecond homes or holiday homes with others being for sale or in the process ofbeing modernised. Only 46 properties were identified as genuine long termempty properties (0.15% of the total stock of dwellings in the District).

5.20 Therefore it must be concluded that empty properties are not a particularproblem in Daventry District and that the this source of supply can only havelimited impact on reducing the amount of development required in the town.

Previously developed vacant and derelict land and buildings (Nonhousing)

5.21 This includes former industrial land, derelict buildings and vacant lots. Toavoid double counting those employment sites identified with some residentialpotential but currently in employment use are considered separately under thesource ‘ redevelopment of existing other uses. In addition allocated sites havebeen excluded from the analysis.


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5.22 At the time of survey only a handful of sites were vacant in Daventry Townexplaining why capacity from this source is low. Past trends have beenanalysed to establish how many units have come forward from this source inDaventry Town between 1991-2004.

Year Total Gain Nature of Source2003/2004 0 -2002/2003 0 -2001/2002 0 -2000/2001 1 Conversion of derelict meeting hall to

residential.1999/2000 0 -1998/1999 2 Change of use vacant childrens

home to residential1997/1998 0 -1996/1997 0 -1995/1996 0 -1994/1995 18 Re-development of vacant boys club.1993/1994 0 -1992/1993 0 -1991/1992 0 -Total 21

5.23 This illustrates the major potential sources are the re-development ofcommunity buildings and buildings serving a social care function andcompletions have been variable. Derelict land and buildings are limited by therecent growth history of the town on largely greenfield land and the location ofindustrial land in planned estates.

5.24 The results between 1991-2004 have been quite variable but have averaged anet gain of 1.62 dwellings per annum. If we assume this rate continues overthe reminder of the plan period we assume a potential capacity from thissource during the plan period of 28 dwellings.

5.25 It should be noted that past completions on former employment sites areidentified under ‘re-development of existing other uses source.

Intensification of existing areas

5.26 This source involves making more efficient use of land in a given area. Itincludes developing garage courts, large gardens and backlands. Past trendshave been analysed to establish how many units have come forward from thissource in Daventry Town between 1991-2004.

Year Total Gain2003/2004 22002/2003 92001/2002 102000/2001 3


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Year Total Gain1999/2000 01998/1999 01997/1998 01996/1997 31995/1996 01994/1995 01993/1994 01992/1993 11991/1992 0Total 28

5.27 The results between 1991-2004 have been quite variable but have averaged anet gain of 2.15 dwellings per annum, If we assume this rate continues overthe reminder of the plan period we achieve a potential capacity from thissource during the plan period of 37 dwellings.

5.28 The majority of gains from intensification of use in residential use(20dwellings) resulted from a study carried out in 2000 into the use of Councilowned garages. If these sites are excluded then only eight dwellings haveresulted from this source.

5.29 Potential is likely to be limited due the historic nature of growth in DaventryTown. The generally planned nature of the town, and the relatively highdensity of these planned developments gives limited opportunity forintensification of use of existing areas. The recent nature of the growth meansparking areas are generally contained within properties the exception being inareas of Council stock on the Grange and the Headlands. Recent discussionswith housing services show no current potential to develop these areas furtherat the present time.

5.30 Meanwhile garden areas are not generally large in nature. For the purposes ofthe study it was not generally considered appropriate to identify specificgardens as a source since there was no access to these sites to survey themand there is likely to be a low probability of the sites coming forward withmany likely to have a high level of constraints applying.

Re-development of existing housing

5.31 Re-development of existing housing areas relates to the re-development ofblocks of housing or residential estates where higher densities may beachieved through remodelling the form and design of housing. This mightrelate to groups of occupied housing, vacant or derelict housing.

5.32 Past trends were analysed to establish how many units have come forwardfrom this source in Daventry Town between 1991-2004. This analysis foundno dwellings have resulted from this potential source.

5.33 As stated above this due to the recent growth characteristics of the town, withmany areas resulting from planned developments . The only current


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application involving re-development of an area of existing housing involvesre-modelling to reduce the density from 35 to 23 dwellings.

5.34 The town is surrounded by large areas of 60 and 70’s Radburn designedCouncil estates which could have scope for re-modelling to improve theenvironment to occupiers. However these areas are relatively high densitydevelopments so any re-modelling may result in lower density developmentsunless to meet the growing need of single person households thepredominantly family type accommodation is converted to flats. Howeverconversion of properties or re-development of areas would depend on theavailability of finance from the Housing Corporation to enable such schemes,the degree to which the Right to Buy has resulted in fragmentation of landownership thus making it difficult for this potential difficult to realise, the needto re-house existing tenants and the acceptability of such proposals totenants.

5.35 Currently no such proposals exist and it not considered on the basis of pasttrends of current assessments this source of potential capacity would result inadditional dwellings.

Redevelopment of car parks

5.36 ‘Tapping the Potential’ identifies the opportunity for new residentialdevelopment on former car parks. The market character of Daventry town andthe large rural hinterland has meant car travel has always played an importantpart in maintaining the viability and vitality of the town.

5.37 The assessment of this capacity source was restricted to public car parks anddid not include car parking associated with existing residential and commercialdevelopment. These car parks are considered in other capacity sources ieemployment and residential intensification. Likewise garage blocks areexcluded and included in the ‘intensification of existing housing areas’ source.

5.38 In seeking to identify the potential capacity from this particular source, a list ofall the capacity of existing public car parks was drawn up. In addition, theproposals contained in a Council produced document ‘ Town Centre Visionfor Daventry Town’ have been included in the assessment. The Town CentreVision contains proposals to re-develop large areas of the town , including carparks to improve the vitality and viability of the Town Centre and to respond toadditional growth resulting from the Milton Keynes Sub Regional Strategy. Torespond to the growing population needs of the Town and increased shoppingprovision resulting from implementation of the vision additional car parkingspaces are proposed as follows:-

Year Additional Parking SpacesNeeded

2006 8002011 1,2002016 1,4002021 1,600


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5.39 The table below identifies all public car parks in the Daventry Town Centre,their current capacity and details recommendations about their potential forbeing re-developed in total or in part as part of the Town Centre Vision.

Car Park Current Spaces(Typical usage)

Comments – from Town CentreVision

Bowen Square 79 Proposed to be closed anddeveloped as shops

Brook Street 10 Proposed to be closed as part ofwider retail development

Chapel Lane 80 No change proposed (except switchto short stay parking)

Golding Close 17 No change proposedLodge Road 111 May (along with Welton Road) be

site of multi-storey car park.New Street 373 No change proposedNewlands 77 No change proposedPrimrose Hill 129 Proposed to be closed (but replaced

with extended car park) as part ofwider retail development

St James 30 No change proposedSt John’s Square 63 No change proposedWaterloo(highway)

19 May (along with adjacent land Road)be site of multi-storey car park

Welton Road 106 May (along with Lodge Road) besite of multi-storey car park underTown Centre Vision

Old Gas Works 145 Proposed for closure andredevelopment for bulky goodsshopping

High Street 22 Proposed to be closed as part ofwider retail development

Chaucer Way 160 Likely to be subject to leisure and/orretail development

Market Square(highway)

23 No change proposed

Total 1444

5.40 The Town Centre Vision does not identify any current car parks for residentialdevelopment and proposes retention of those car parks not identified for re-development to other uses or decking to meet identified capacity that willresult from the implementation of the Town Centre Vision. As a result a niloutput has been assumed from this capacity source over the plan period.

Conversion of commercial buildings

5.41 This source includes purely change of use/conversion of office use toresidential use.


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5.42 In seeking to identify the potential capacity for residential development fromthe ‘conversion of commercial buildings’ source a combination of site surveyand an analysis of past trends of completions has been undertaken.

5.43 On the basis of past trends between 1991-2004 there has been a net loss ofsix dwellings from this source. It more common for a residential unit to beconverted to commercial use than vice versa.

5.44 The 2004 urban capacity study revealed only two sites in this category. Thesesites had been identified from the 2001 Urban Capacity Study and are stillconsidered suitable for development. These sites are as follows:-

Site Area Capacity Comments on likelihood ofdevelopment

Land AtDaneholmeHouse,Ashby Road

0.79ha 21 The site is constrained by treepreservation orders on the site Adensity of 35 dwellings net perhectare (site outside town centre).Applying a further 25% discount totake account of the treepreservation orders on the sitewould lead to a potential capacityof 21 dwellings.

The Landowner has indicated awillingness for the site to bedeveloped for residential and thereare no current or proposed councilor local plan policies which wouldcurrently prevent this course ofaction.

Workingmen’s club

0.72 ha 45 Part of site is allocated in theDaventry District Local Plan andhas been considered under reviewof existing housing allocations inthe Local Plan.

A density of 75 dwellings net perhectare (site in town centre) and amultiplier of 0.825 gives a capacityof 45 dwellings.

However a document produced bythe Council in consultation with thepublic entitled ‘Daventry TownCentre Vision’ earmarks the site for11,270 sq metres of ‘Bulky’ Goodsretail use. This document willbecome supplementary planningguidance which when adopted will


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Site Area Capacity Comments on likelihood ofdevelopmentpresume against development onthe site.

5.45 The potential capacity from this source is estimated at 21 dwellings.

Review of existing housing allocations in the Local Plan

5.46 In seeking to identify the potential capacity for residential development from‘existing housing allocations’ a list of housing allocations from the 1997adopted Local Plan was prepared and the status of each of these allocationswas noted in a table, based upon information gathered in the course of ourcontinuing monitoring of the Local Plan, planning permissions and theimplementation thereof. The remaining sites that have not yet been broughtforward for development were then reviewed in order to establish the potentialof these sites in providing capacity for the future.

5.47 To avoid double counting any allocated sites included in other sourcecategories were included in the ‘housing allocations’ source.

5.48 The table below details ‘existing housing allocations’ in Daventry Town andtheir current status.

PolicyNumber

Location Position(mid 2004)

HS4A Lang Farm DevelopedHS4B Middlemore Whole site has planning permissionHS5 British Timken Whole site has planning permission

and is developed or underconstruction

HS8A West of BrookStreet

Developed

HS8B East of Brook Street DevelopedHS8C South of Tavern

LaneDeveloped

HS8D North of AbbeyStreet

Not implemented

5.49 All sites allocated for residential development in the Daventry District LocalPlan has been implemented apart from a site North of Abbey Street (PolicyHS8D) which covers 0.26 hectares.

5.50 PPG3, paragraph 21, states the Government is committed to promoting moresustainable patterns of development by, amongst other things, reviewingexisting allocations for housing land in plans. This is particularly aimed attargeting long standing allocations in sustainable locations which may nolonger be suitable for housing.


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5.51 The only remaining site is well located within the central area of Daventry andis not considered appropriate to delete this site However the likelihood of thesite coming forward for development is affected by the Council’s Town CentreVision . The ‘Daventry Town Centre Vision’ earmarks the site, together with anadjoining site, for 11,270 sq metres of ‘Bulky’ Goods retail use. It is intendedthis document will become supplementary planning guidance in September2004.

5.52 As the site is council owned , it is therefore considered unlikely the onlyremaining site earmarked for residential development is likely to comeforward.

Review of existing other existing allocations in the Local Plan.

5.53 In seeking to identify the potential capacity for residential development from‘existing other allocations’, a list of all other allocations from the 1997 adoptedLocal Plan was prepared and the status noted in a table, based on informationgathered in the course of the continuing monitoring of the Local Plan. Theremaining sites that have not yet been brought forward for development werethen reviewed in order to establish the potential for residential development.

5.54 The table below details ‘existing other allocations’ in Daventry Town and theircurrent status.

Policy Number Location Proposeduse

Status and potentialfor residentialdevelopment

EM1 DraytonFieldsIndustrialEstate

B1,B2 andB8

Developed or withplanning permissionfor industrial use.

EM2 HeartlandsBusinessPark

B1, B2 andB8

Developed or withplanning permissionfor industrial use.

EM6/RT5/RC20/RC21 Land to r/oAbbeyStreet, StJohn’sSquare

B1(a) useRetail useRecreationalfacilitiesMuseum

Developed for a leisurecentre, offices andretail (residentialabove)

RT2 SouthDraytonWay andWest ofSopwithWay

Non foodretail

Developed for nonfood retail

RT5d BowenSquare

Retail use Developed for retailand remains as carparking

RC10/RC11 Landsouth of

Local centreand

Developed for a LocalCentre


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Policy Number Location Proposeduse

Status and potentialfor residentialdevelopment

Road 14,NorthernArea

educationaluse

RC13 Land offStavertonRoad

Playingfields

Developed for playingfields

RC15a East ofAshbyRoad

Open space Developed for openspace

RC15b AroundDraytonreservoir


RC15c Disusedrailwayline


RC15d CentralValleybetweenAshbyRoad andWeltonRoad


RC18 BoroughHill andWesternslopes


RC19 WeltonRoad

Allotments Developed forallotments

5.55 PPG3. paragraph 42, identifies the opportunity to reallocate employment andother land to housing. It states there may be allocations for employment andother uses that cannot be realistically be taken up over the life time of thedevelopment plan. Planning policies may also have changed since the landwas originally allocated for a particular use or its designation may no longer becompatible with policy in PPGs. The Government consider that planningauthorities should review all non housing allocations to consider whether someof this land may be better used for housing or mixed use development.

5.56 The table above shows all allocations have been taken up and no capacitycan be obtained from this source.

Vacant land not previously developed

5.57 In order to identify the potential capacity for residential development from thissource it was considered most appropriate to use a combination of past trendsand site survey. The results of this analysis are identified in the table below.


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Year Total Dwellings2003/2004 02002/2003 02001/2002 02000/2001 41999/2000 01998/1999 01997/1998 21996/1997 01995/1996 01994/1995 01993/1994 01992/1993 01991/1992 8Total 14

5.58 The results between 1991-2004 have been quite variable but have averaged anet gain of 1.08 dwellings per annum, If we assume this rate continues overthe reminder of the plan period we assume a potential capacity from thissource during the plan period of 18 dwellings.

Redevelopment of existing other uses

5.59 The redevelopment of existing other uses (primarily employment) sourceincludes sites which do not fit into any other categories identified above. Inaddition this may include utilities land, institutional land , and government landand buildings etc. This analysis splits this category into the following:-

Existing employment usesExisting shopping areas and town centre re-developmentAllotmentsPlaying fields/marginal open spaceOther existing uses

5.60 In seeking to identify the potential capacity it was considered most appropriateto use a site survey analysis. Approaches were also made to landlords togauge the likelihood of sites coming forward.

5.61 Redevelopment of existing employment uses

5.62 Daventry was previously an overspill town for Birmingham in the 1960’s and1970’s growing from a small market town with the vast majority of industrialand residential development on greenfield land. Industrial use has beenconcentrated in purpose build industrial estates with most of the boundaries ofthese estates separated by environmental and/or highway barriers from theresidential areas. As a result it would be environmentally undesirable to seekre-designation of employment land to residential use unless it can bedemonstrated unfavourable residential environments would not be created .


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5.63 The Structure Plan set a requirement for 120ha of industrial land to beprovided in the District between 1996-2016. This allocation was quashed fromthe Structure Plan following a high court challenge. However this allocationremains a guide to industrial requirements for the District and it is importantthat any re-designation from industrial to residential does not affect theserequirements.

5.64 Industrial land availability studies show that in mid 2004 there was a currentunder allocation of 57.23 hectares thus, on this basis, there is currently noscope to release industrial land to residential use.

5.65 In addition, in December 2003, a commercial property and employment landassessment of Northamptonshire was carried out by Roger Tym and Partnersand Innes England (Copela Study). This report was tasked with assessing thesupply of commercial land and property against future demand, in relation tothe Milton Keynes South Midlands study. The Proposed changes to theMilton Keynes South Midlands Sub Regional Strategy , October 2004, allocate37,200 jobs to West Northamptonshire between 2001-2021. Under a plannedscenario the Copela Study suggested that 6000 jobs should be allocated toDaventry District.

5.66 By assessing supply and market balance the Copela study indicated thatbetween 2003-2016 that Daventry District would have a deficit of 7 hectares ofoffice space, a 26 hectare oversupply of industrial land and a 55 hectaresurplus of strategic land. The report however concluded after a quantitativeaswell as qualitative assessment that:-

“There is a need to enhance office supply within Daventry Town Centreto ensure adequate range of opportunity”.

In relation to general industrial land the report states “whilst the targetrequirement does not envisage employment growth there is a need toenhance supply in this segment in Daventry Town”

In relation to strategic land the report states “there is no need foradditional provision in the district” with existing provision at DIRFTmeeting demand.

5.67 The Copela report emphasises that although net demand for general industrialwill be negative there will be a gross demand for new land to provide newbuildings, replace existing stock which is withdrawn from the stock orbecomes obsolete. If the cycle of renewal does not occur, the report considersthat Northamptonshire’s property stock will fail to keep up with physicalobsolescence and changing demand and the County will fail to providecompetitive locations for industry.

5.68 In addition the Copela report suggests the negative demand for industrial landcan be misleading as it does not take account of future losses of industrialland. Due to this loss issue the report considers to meet demand, so industrialactivities are not forced out of Northamptonshire by lack of space and


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competition from higher value land uses planning authorities should aim tokeep the stock of industrial land roughly constant. The report concludes “Theyshould use safeguarding and other policies to limit the loss of existing sitesand in broad terms to replace all that is lost”. In this respect, as of mid2004,there were 1.96 hectares of new planning permissions granted and aloss of 0.03 hectares. However as of mid 2004 there is a potential loss of27.51 hectares of general industrial land to residential or to other non-industrial uses. This includes 27.47 hectares currently under construction ofgeneral industrial land being lost to residential and 0.04 hectares withplanning permission for a training centre.

5.69 The previous urban capacity study identified a site on the Long MarchIndustrial estate that bordered the existing residential area – Kohen andWindsor as potential for residential development . An adjacent site, Huber andSuhner has also been put forward for residential development. Both aregeneral industrial use. However given the current losses of general industrialland that are occurring in accordance with the Copela study such generalindustrial land should be safeguarded to prevent the need to replace this landbecoming more acute.

5.70 Long March and Broad March do have other areas of underused industrialunits and a large area of derelict land called Knoll Hill. However these sitesare in the main body of the industrial estate, divorced from residential areasand adjacent to occupied industrial units. Any residential development wouldtherefore be undesirable in environmental terms.

5.71 The potential for re-designation of underused employment land to residentialis limited by its location. Most sites are within employment areas and, apartfrom the two sites mentioned above, are not adjacent to residentialdevelopment. To mix employment and residential use would be undesirable.Moreover the closure of enterprises currently trading would mean the loss ofjobs, which is economically undesirable.

5.72 It is therefore concluded that currently no sites in employment use should bere-designated to residential use.

5.73 Redevelopment of shopping areas/ buildings in other use within thetown centre.

5.74 There are only five local centres in the town, two of which are recentdevelopments at Stefan Hill and Lang Farm, two have been recently re-developed (Grange and Southbrook) and Headlands is of small scale and haslimited re-development potential . It is not therefore considered further re-development is possible from this source.

Year Total Gain Nature of Source2001/2002 6 Re-development of Grange Local

Centre.1996/1997 17 Re-development of Southbrook

shopping area.1995/1996 19 Re-development of Southbrook

shopping area.


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5.75 The document entitled ‘Daventry Town Centre Vision’ produced by theCouncil in consultation with the public also proposes major re-developmentproposals for the Town Centre which contain the potential for residentialdevelopment by re-developing buildings currently in use. The Town Centrevision document is to become a Supplementary Planning Guidance documentin September 2004. These include:-

Location Area(Ha)

Capacity

Redevelop current Police Stationfor retail use with potentialcapacity for flats or offices to bebuilt above the shop units (1-2floors possible).

0.17ha 13

Re-develop an area at Waterlooand the Old Gas Works toinclude single aspect terracedhousing to face ‘The Hollow’green area .

0.15 ha 11

Re-develop the current out doorpool area and car park to createa leisure Quarter and canal basinarea where new canal sidehousing could be developed.

As major re-development and re-alignment of roads is intended inthis area it is not possible at thisstage to assess exact siteboundaries, however it isestimated there could be potentialfor approximately 10 canal sidehouses.

5.76 Allotments

5.77 Allotments have only been included where they have a high vacancy rate andare not considered important for environmental reasons.

5.78 In 2003/2004 a survey of allotment sites was carried out to discover currentusage rates. The table below illustrates the findings This found that usagerates were high on a couple of the sites with vacancy rates of 66.4% and41.5% on a couple of the other sites. On the Drayton Green the occupancyrate has fallen from 56.44% in 2000 to 33.6% in 2004. On the Daneholme siteoccupancy has increased from 53.85% in 2000 to 58.5% in 2004.


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Usage March 24th 2004

Site Number ofPlots

Let % Used

Cherry Orchard 25 25 100Welton Road 29 25 86.2Drayton Green 101 37 33.6

Daneholme 39 24 58.5All sites 192 111 56.6

Change in usage patterns

Site 1980 1996 1997 1998 2000 2004Cherry Orchard 100% 100% 100% 100% 100% 100%Welton Road 100% 84% 81% 94% 96% 86.2%Drayton Green 98% 48% 64% 52% 64% 33.6%Daneholme 79% 64% 75% 68% 67% 58.5%All 91% 62% 69% 67% 68% 57%

5.79 As there are currently 192 plots on 4 sites in the town, and of these 111 areoccupied. Based on the 2001 census population figures there are 8.8 plots per1000 people which at current usage patterns is 5.11 plots per 1000 people.The population is projected to increase to 40,000 by 2021 which would require204 allotments on the basis of the current usage rates. This suggests existingallotment provision would be required to meet future demands.

5.80 Daventry District Council policy is contained in Local Plan Policy RC2 andRC19. RC2 is against the development of well used allotment sites and RC19provides for additional allotment sites off Welton Road (now provided as theDaneholme site). On the basis of the evidence there are two currently underused sites- Drayton Green and Daneholme.

5.81 However the evidence also shows that some sites are well used with otherspoorly used. In particular the Drayton Green , southern site is unoccupied ,isunsuited to allotment provision and is not related to areas of new residentialgrowth. This suggests there could be scope to develop this site for residentialuse and provide alternative provision as part of the growth proposals forDaventry Town. This site has therefore been included in the urban capacitystudy. The site covers an area of 0.99 hectares with a potential capacity of 22dwellings(discount of 25% applied due of shape of site)

5.82 In 1995, the Council, designated this site as a permanent sites/statutory sites.Section 8 of the Allotments Act 1925 requires the Secretary of State’s consentbefore an authority can dispose of statutory Allotment land . On the 25thMarch 1998 the Government introduced a requirement for authorities todemonstrate the steps they have taken to promote allotments in their areabefore they can obtain the Secretary of State’s consent to dispose of statutoryallotment land. Therefore if the site were to be developed there would have tobe extensive consultation and a consideration on whether the best use of the


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site would be residential. On this basis a discount rate of 80% has beenapplied.

5.83 Playing fields/marginal open space

5.84 Policies RC12, RC13 and RC14 refer to playing pitch provision in DaventryTown. These policies have been supplemented by Supplementary PlanningGuidance on the retention of sport pitches in the Town.

5.85 This Supplementary guidance was compiled following a study commissionedin November 1999 by the Leisure Services Department of Daventry DistrictCouncil, using a method based on the Sport England Playing Fieldassessment Method. This assessment takes in to account guidance inparagraph 42 of PPG17 as follows:-

‘Playing fields should normally be protected except where:-

sport and recreational facilities can best be retained and enhancedthrough the redevelopment of a small part of the site;

alternative provision of equivalent community benefit is made available;or

the local plan shows an excess of sports pitch provision and publicopen space in the area, taking account of the recreation and amenityvalue of such provision.

5.86 Under PPG17 local authorities can draw up their own standards of provisionfor formal and informal sport and recreation based on their own assessment ofneed and include these in their local plan.

5.87 The Town and Country (playing Fields)(England) Direction 1998 also requiresSecretary of State approval for any development of sports pitches proposed towhich the Sports Council have an outstanding objection. New legislation wasintroduced in the School Standards and Framework Act and the subsequentDFEE Circular 3/99, which requires state schools to gain consent beforeselling playing fields.

5.88 On the basis of a report commissioned by the Council in 1999 there wereestimated to be 33.34ha of pitches in community use in Daventry Town or 1.7ha for every 1000 people. This finding suggests the current area of pitchspace is sufficient to satisfy current demand and can cater for any suddenincrease in demand. However this assumption is based on all pitches beingavailable for community use. Some pitches are privately owned or used byeducational establishments but allow community access. These pitches arenot in secure use and if they may not continue to be available. Ideally the percapita ratio should therefore be based on pitches in secure community use.The current level of provision on this basis is 0.91 ha per 1000 people andbelow the level required of 1.7ha per 1000 people.


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5.89 The Council’s Supplementary Planning Guidance on the retention of sportspitches considers the advice of Sports England and states planningpermission will not normally be granted for the loss of sports pitches except inexceptional circumstances ,or where appropriate compensatory provision maybe accepted. If relevant to the residential development of sports pitches,exceptional circumstances relate if there is surplus provision (which currentlythere is not), and where the development land affects land incapable offorming part of the playing pitch and does not result in the loss of or theinability to use the pitch. The definition of a playing pitch is currently definedas an area of 0.40ha or more and under 11 and most under 16 games aplaying pitch is defined as 0.2 ha.

5.90 The potential to develop any playing pitches is therefore limited .There is nota surplus of sport pitches and the only scope could be if it can be shown thatthe surplus land does not form part of the pitch area , it does not affect theability to use the pitch and any land currently not being used could be utilisedto form additional pitch area. In addition many pitches form important greenspaces within the urban areas so even if pitch areas can be safeguarded theloss of environmental amenity and informal open space must be assessed.

5.91 A study commissioned in November 1999 by the Leisure Services Departmentidentified the following pitches in Daventry Town:-

Playing Pitch Number ofPitches

Potential forDevelopment

Secure Community use in Council ownershipStaverton Road 8 Purpose built playing pitch

provision. No potential fordevelopment.

Hollow 1 Pitch use could be affectedby any development. Goodplaying pitch facilities.Attractive green space withenvironmental value.No potential fordevelopment

Headlands 2 Large flat recreational areaideal for pitches. 2 pitchescan easily beaccommodated on the land.A small parcel of landcould be developed to thewest of the site withoutaffecting the pitch area.(0.40ha) . However theland also serves asinformal open space forthe high densitydevelopment around. It isnot therefore


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Potential forDevelopmentrecommended fordevelopment.

Southbrook 2 Part development of theland could not take placewithout affecting the pitcharea. Site also has valuefor its environmental value.There is a derelict area tothe south of the site butthis land could notaccommodatedevelopment due to its sitecharacteristics.

Stefen Hill 1 Includes play area. Partdevelopment of the sitecould not take placewithout affecting the pitcharea. Pitch was providedas part of developmentbrief for the Stefen HillDevelopment.

Grange 1 Flat area accommodatingpitch. No potential fordevelopment as no surplusland could be developedwithout affecting the pitcharea. Also hasenvironmental value.

Burtons Meadow 1 Part development of thesite at the southern endcould take place withoutaffecting the pitch usability.(0.44ha). Good access ispossible. The open spacearea does provide anattractive enclosed openspace with environmentalvalue and anydevelopment could affectthe amenity of this area sodevelopment is notrecommended.


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Potential forDevelopment

Educational or Private ownershipRoyal Oak Way 4 pitchesDanetre School 2 pitchesWilliam Parker School 3 pitchesTertiary College 4 pitchesStefen Hill Sports Club

5.92 This analysis shows there is currently no scope to release existingpitches to residential use.

5.93 Marginal Open Space

5.94 One site currently falls into this category. This is a site off EasternWay. This is a large open space area not currently used forrecreational activities. It is designated as a public open space in theLocal Plan. The site has good access and covers an area of 4.85hectares. There is a covenant on the land restricting its use to amillennium park or for community educational, recreational or leisurepurposes.As a result residential development is not an option on thesite.

5.95 Redevelopment of existing other uses:- Other

5.96 Contact with landowners also suggested the owners of Dennett nurserymay be willing to consider residential use. The site is surrounded byresidential use and could be integrated into surrounding housing. Thesite covers an area of 1.95 hectares and could have a potentialcapacity of 56 dwellings.

5.97 Summary of capacity for the development of existing uses

5.98 The table below shows that shows the capacity of sites identified wereidentified from the ‘redevelopment of existing other uses source’.

Site Potential CapacityPolice Station 13 dwellingsAdjacent the Hollow 11 dwellingsLeisure quarter canal side houses 10 dwellingsDennett Nursery site 56 dwellingsTotal Capacity 90 dwellings

6.0 Discounting, summary of findings and conclusions

6.1 This section identifies the unconstrained capacity for each site, andthen seeks to apply a discount of the unconstrained potential topresent an estimate of realistic urban capacity. The impact on thecurrent land supply situation is then summarised.


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Summary of findings and discounting

6.2 The rationale behind the determination of the unconstrained capacityand discounting applied is described in section 4 of this report.

6.3 The table below summarises the findings in terms of potential capacityfrom the various sources.

Capacity Source SurveyApproach

UnconstrainedYield 2004-2021

Discountrateapplied todwellingcapacity

Discountedpotentialdwellingcapacity(Total over planperiod)

Subdivision ofhousing

Trend-based

31 No discount 31

Flats over shops Trend-based

18 No discount 18

Empty Homes CouncilTaxrecords/sitesurvey

46 40% 28

Previouslydeveloped andderelict land andbuildings source

Trend-based

28 85% 4

Intensification ofexisting housingareas

Trend-based

37 85% 6

Redevelopment ofexisting housing

Trend-based

0 100% 0

Redevelopment ofcar parks

Site- based 0 100% 0

Conversion ofcommercialbuildings

Trend-basedSite- based

21 No discount 21

Review of existinghousingallocations in theLocal Plan


Review of otherexisting allocationsin the Local Plan(non housing)


Vacant land notpreviouslydeveloped

Trend-based

18 No discount 18

Redevelopment ofexisting other uses(excluding



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Capacity Source SurveyApproach

UnconstrainedYield 2004-2021

Discountrateapplied todwellingcapacity

Discountedpotentialdwellingcapacity(Total over planperiod)

allotments)

Redevelopment ofexisting other usesto include:-allotments


Overall capacity 311 175

6.4 This shows unconstrained capacity is estimated at 311 dwellings butafter applying relevant discount rates the potential capacity over theplan period (2004-2021) is estimated at 175 dwellings.

6.5 Mid 2004 land supply situation against the Consultation DraftMilton Keynes and South Midlands Sub-Regional Strategy

6.6 The table below illustrates the land supply position in Daventry Districtas of mid 2004 using information contained in the Daventry DistrictHousing Monitoring Report 2004. These figures are for illustrativepurposes and will be consulted on in more detail as part of the LocalDevelopment Framework process. However based on the informationin the 2004 Housing Monitoring Report and after taking into account theresults of the urban capacity study there is currently an under supply of7707 dwellings in terms of meeting the requirements of the subregional strategy. This increases to 7727 dwellings if the 20 dwellingsallocated in the local plan and deemed unlikely to come forward areexcluded from the commitments.Milton Keynes and SouthMidlands Study 2001-2021*

2001-2021 10800 dwellings

Completions 2001-2004 1118 dwellings

Windfalls on previouslydeveloped land

2004-2021 902 dwellings

Dwellings likely to lapse 2004-2021 357 dwellings

Remaining allocation 2004-2021 9137 dwellings

Commitments 2004-2021 1294 dwellings

Allocations 2004-2021 20** dwellings

Urban Capacity Study 2004-2021 116*** dwellings

Allocation under 7707 dwellings


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* This includes revised figures resulting from the Proposed changes to the Milton Keynes and South MidlandsSub Regional Strategy, October 2004. This increases the allocation in the consultation draft from 9300 dwellingsto 10800 dwellings.**20 dwellings relate to an allocated site in Daventry Town which has been considered in the urban capacity anddeemed to be unlikely to come forward. For the purpose of the land availability analysis the Buckton Fields sitehas not been included as a commitment, as the this allocation is currently the subject of an objection by thecouncil to the Milton Keynes and South Midlands Sub- regional strategy.*** 59 dwellings are allowed for in the windfalls on previously developed land.


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APPENDIX 1:- SITES IDENTIFIED IN 2001 URBAN CAPACITY STUDY

SITE SITENO

POTENTIALCAPACITY

LIKELY TO BEDEVELOPED

MAY BEDEVELOPED

UNLIKELY TO BEDEVELOPED

CURRENT POSITION

Sites Committed For Housing Without Planning PermissionLand adj to the workingmen’s club

1 79-86 21-23 58-63 0 Still occupied by working men’s club.Approaches for residential development butcurrently earmarked in the Daventry TownCentre Vision for bulk goods retail. Partallocated in Daventry District Local Plan.The allocated part of the site is in Councilownership.

Due to change in Council policy the site isunlikely to be developed for residential use.

Marginal Open SpaceEastern Way 6 130-175 0 0 130-175 Local plan designation as a public open

space. Legal agreement preventingresidential development. Developmentwould be contrary to policy and legalagreement Application would be subject toPlaying Field Direction.

Jubilee Road Allotments 2 11 11 0 0 Development Completed .

Existing Parking AreasTennyson Road/Wordsworth Road garages.

3 12 12 0 0 Development competed.

Rear of Willoughby Close 4 3 3 0 0 Development competed.Shelley Crescent 5 2 2 0 0 Development competed.


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SITE SITENO

POTENTIALCAPACITY


MAY BEDEVELOPED


CURRENT POSITION

Derelict, underused or unused sitesMarlow Close 7 10 0 0 10 Low density due to location. Permission

refused in 1999 for affordable housing.Stong local opposition. No appeal and nofurther applications submitted.

Site may be required for expansion of fireand ambulance station in light of plannedgrowth to Daventry Town.

Ashby Road 13 24 24 0 0 Brownfield site. Development interest hasbeen shown but access issues to beresolved. No applications submitted to date.

Danetre Hospital 15 50 0 0 50 Planning application approved for PrimaryCare Home. In addition PCT proposing newcommunity hospital .On this basis nowthought that Danetre Hospital is unlikely tobe developed for residential.

Muirfield Drive 8 44 0 0 44 Planning permission granted for 38dwellings.

Derelict, underused or unused industrial sitesBritish Timken 9 80 80 0 0 Planning permission granted 07/04/2004 for

148 dwellings.Kohen Windsor 10 40-53 0 40-53 0 Site now occupied with a lease until Spring

2008.Conversions and re-use of buildingsThe Abbey 11 37 37 0 0 Planning permission was granted in

December 2003 for 34 dwellings.


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SITE SITENO

POTENTIALCAPACITY


MAY BEDEVELOPED


CURRENT POSITION

4-6 Church Street 12 3 0 3 0 Now occupied by offices so unlikely to bedeveloped for residential. As a result of theMilton Keynes draft sub regional strategyand associated reports the retention of thesite in employment land is now the policyposition as a result the site is no longerconsidered suitable for residential use.

32-43 Bowen Square 14 12 12 0 0 Site completed.Conversions in the TownCentre

- 24 12 0 12

Conversions outside theTown Centre

- 5 5 0 0

Brownfield site, Between 2000-2004 therehas been a net guide of 13 dwellings fromthis source. This is 2 dwellings above therequired number judged on a pro rota basis.

Small Windfalls 9 9 0 0 Urban Greenfield. Between 2000-2004 4dwellings have resulted from this source.This is 2 dwellings less than the requirednumber judged on a pro rota basis.

TOTALS 575-640 228-230 101-119 246-291

DAVENTRY URBAN CAPACITY STUDY

APPENDIX 2:- Map showing boundary ofurban capacity study area

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daventry urban capacity study january 2005 · 2.12 the proposed changes to the milton keynes and...

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