Housing, Character of Place and Residential Amenity

(2) Vision

In five years…

• New sustainable, residential developments are planned that are well related to infrastructure, community facilities, and play space. These have begun to be implemented. A number of residential developments, along with additional infrastructure, have been completed and are meeting the needs of local communities.
• The Council has adopted a Local List which has afforded additional protection to locally significant buildings.
• Work has begun on implementing the Conservation Area Management Plans which is having a positive impact on the character and appearance of the District’s Conservation Areas.

By 2025…

• A range of high-quality, sustainable new dwellings that meet the needs of local people of all social groups are in place and integrated into communities.
• The vast majority of the District’s Green Belt remains undeveloped.
• New infrastructure has accompanied new residential development, meeting the needs of local communities.
• The District’s distinctive character and historical built environment has been retained.
• New development has been implemented which contributes positively towards the District’s character.

(1) Objectives

1. Ensure the delivery of an adequate supply of sustainable dwellings to cater for the District’s growing demand, as per the requirements of the East of England Plan and a 15 year housing land supply.
2. Deliver a balanced strategy for the distribution of housing, directing housing growth to the most sustainable locations having regard to social, economic and environmental considerations.
3. Ensure the District’s settlements remain viable and that rural services can be sustained.
4. Prioritise the redevelopment of appropriate brownfield sites for housing, to minimise the release of Green Belt land for development.
5. Ensure the delivery of housing which caters for the needs of all communities in terms of tenure, type and location.
6. Ensure that appropriate infrastructure accompanies new housing development.
7. Ensure that new development respect and make a positive contribution towards the built environment.
8. Support and enhance the local built heritage.

(2) Introduction

The emerging Core Strategy contains key policies to ensure the efficient use of available land for housing through the utilisation of previously developed land, and identifies general locations which could accommodate appropriate sustainable extensions to the residential envelope to ensure a 15 year supply of housing in line with the East of England Plan (2008). Whilst ensuring the required quantum of housing and gypsy and traveller accommodation in the District is sustainably delivered, the emerging Core Strategy also seeks to ensure the appropriate mix of housing tenure and dwelling types, and requires compliance with the Lifetime Homes Standard to ensure that new dwellings are capable of meeting the District’s changing demographic needs. Partnership working and consultation with the Council’s Housing Strategy Team is required to ensure that this is achieved.

The protection and enhancement of the District’s distinct settlement characteristics are also key issues which are covered in the emerging Core Strategy. It is important to ensure the high quality design of new developments and regard must be had to local design guidance. The Core Strategy also recognises the importance of protecting locally significant buildings which are of historic and architectural importance, through the appropriate management of the District’s Conservation Areas and the reintroduction of the Local List.

This chapter elaborates on the core strategic issues by providing policies on specific housing issues and the protection of the historic environment. The design, scale and form of new dwellings, or modifications to existing dwellings within existing settlements can impact on the character of the streetscene and the surrounding built environment. It is important to ensure a positive impact on the surrounding environment and a coherent and interesting character through following good design principles and using locally distinct settlement characteristics. The design of new developments must also be considered with respect to the wider implications of such development on the form, flow and character of the built environment and its impact on sustainability objectives.

Protecting and enhancing the existing character and individual identities of the District’s settlements is a key objective of the emerging Core Strategy. Therefore new development both within, and on the periphery of, existing settlements is encouraged to have regard to the character of the established streetscene in addition to the District’s dwelling type requirements.

Reducing the District’s carbon emissions and planning to adapt to climate change is an important theme running through the Sustainable Community Strategy (2009), and this is reflected in the emerging Core Strategy. Planning can play an important role through ensuring the sustainability of new developments and alterations to existing buildings, whilst seeking to increase the energy efficiency of existing dwellings, as appropriate.

The historic environment of the District contributes to the unique character and history of individual settlements, as well as the established local streetscene. The significant historic townscapes are protected through Conservation Area designation and the most nationally important buildings are protected through Listed Building status. It is, however, also important to consider the impact of development and change on the wider area beyond the boundary of protected areas and on locally important unlisted buildings which are cherished by the local community.

Housing

(3) Design of New Developments

The design of new developments, whether major¹ or small-scale, can impact on the character of an area. It is important that additions or alterations to the residential envelope are in-keeping with the local characteristics and reflect the distinctiveness of the District’s towns and villages to ensure the cohesion of new communities into existing settlements.

The planning of sustainable extensions to the residential envelope will be design-led and community focused to secure high quality sustainable development. This will require the appropriate integration of the means of access for pedestrians, cyclists, cars etc. and allowing sufficient functioning of the Council’s recycling scheme. This will also require the integration of public open space, historic features, landscaping, public art and habitat creation, recreational facilities and educational provision, community facilities, including the provision of primary health care, as appropriate, and housing of mixed size and tenure within the new and adjoining communities. The provision of public open space within any proposed development should have regard to the findings of the Open Space Study.

It is also important to promote and support the enhancement of the environmental quality of the District’s countryside and settlements. As such, regard should be had to the landscape character areas, which define the different geographical regions with a recognisable pattern of landscape characteristics, which create a distinct sense of place. We will also encourage the preparation of Village Design Statements and Parish Plans by local community groups throughout the District which will provide developers with guidance on the local character of individual settlements and help ensure that developments are sensitive to the local area and designed in a way that would be acceptable to the local population. Village Design Statements will be expected to have been produced in consultation with the public to ensure that they reflect local opinions and must be endorsed by the Council before they can be used. It is also important to have regard to the findings of the District’s Historic Environment Characterisation Project (2006). This will enable the sensitivity of landscapes and the characteristics of local places to be fully considered in the context of individual planning applications.

We are concerned about the potential impact of climate change and will therefore expect developers to implement appropriate initiatives to mitigate the impact of new developments. The design and construction of buildings can directly affect the environment in terms of energy use and the generation of greenhouse gases and the subsequent impact on climate change through global warming. This will also affect the consumption of non-renewable natural materials. The implementation of appropriate measures to reduce the consumption of energy and natural resources will help achieve the wider objective of securing more sustainable forms of development within the District.

We will therefore expect that all new buildings are well designed, fit-for-purpose, appropriate for the site and its setting and adaptable for long-term use. New buildings should achieve high environmental standards through energy and resource efficient sustainable design and make best use of sustainable construction techniques. All dwellings must achieve the required Code for Sustainable Homes and Lifetime Homes Standards and non-domestic buildings must aspire to achieve the appropriate BREEAM rating. Further information on the Code for Sustainable Homes, Lifetime Homes and the BREEAM rating can be found in the emerging Core Strategy.

Whilst aspiring for sustainable construction of new buildings, we also actively encourage the provision of well designed high quality places, which is pivotal for both major and small-scale developments. Schemes should have a safe, inclusive layout with legible and well planned routes, blocks and spaces, integrated residential, commercial and community activity, safe public spaces and pedestrian routes without traffic conflict, secure private areas, attractive buildings and landscaped spaces.

All developments should consider the concept statements which will be prepared by the Local Planning Authority, where applicable. These will outline the appropriate design principles for a particular site in order to deliver the best possible social, economic and environmental benefits for the community.

(3) Density of New Developments

The density of new developments is critical to the efficient and appropriate use of available land in accessible and sustainable locations. However, it is also important to create high quality environments with sufficient public open space, parking and other amenities to promote good quality of life for new and existing communities. 

Planning Policy Statement 3 (PPS3 – Housing) provides guidance on the provision of high quality, sustainable housing, with a mix of housing tenures which reflects local needs, ensuring the effective use of existing housing stock, and providing enough homes in appropriate locations through the effective and efficient use of land. It gives the Local Planning Authority flexibility in setting appropriate densities to specific localities, through encouraging a minimum density of 30 dwellings per hectare as a national minimum standard to ensure that available land is appropriately utilised.

Density can impact on the character and form of development, and as such, we will maintain a flexible approach towards the appropriate density of new developments to reflect the individual identities of each area. It is recognised in the emerging Core Strategy, however that some locations are more sustainable in terms of infrastructure and amenities, and can thus accommodate higher density development.

We therefore do not seek to be overly prescriptive with regard to density but will encourage appropriate densities which reflect the character, scale and form of the locality to create cohesive, sustainable environments. 

(4) Infilling and Residential Intensification

Infilling can be defined as filling the small gaps between existing groups of dwellings with new development. We consider the limited infilling of existing settlements to be acceptable where the development conforms to the existing street pattern and density of the immediate locality. We will also permit an appropriate level of residential intensification within town centre areas where permitted densities are higher due to their sustainable locations, which will help safeguard Green Belt land in the District. The suitable density for town centre locations is 75 dwellings per hectare as set out in the emerging Core Strategy. However, the appropriateness of infilling in residential areas will be determined on a case by case basis primarily having regard to residential intensification, ‘town cramming’ and the impact on the character of the streetscene.

A restrictive approach is appropriate as infilling and residential intensification can have a negative impact on the amenity and character of settlements, and lead to increased traffic generation, and ‘town cramming’. As such, we will seek to avoid these adverse effects.

‘Backland’ development is where development is proposed to the rear of existing residential dwellings in large back gardens, or where several smaller plots can be amalgamated into one. ’Backland’ development may be inappropriate due to the loss of private amenity space, residential intensification, the detrimental impact on the character of the streetscene and the amenity of neighbouring dwellings. Such development can often create problems of overlooking and loss of privacy as well as issues with inadequate access and parking. Generally such development is undesirable, although it may be considered appropriate in some circumstances. Thus the suitability of proposals will be determined on a case by case basis.

Whilst providing a mix of dwelling types within new developments is supported in the emerging Core Strategy, we seek to resist the loss of existing dwelling types, which can impact on the character of the streetscene in the District’s existing settlements. Therefore the replacement of dwellings should usually be on a one-to-one basis, as appropriate. However, if it can be demonstrated that an alternative dwelling type would be more appropriate and ensure better utilisation of a site, without creating undue residential intensification and ‘town cramming’ e.g. the replacement of one bungalow on a wide plot of land with a pair of semi-detached houses, then this may be considered acceptable. We will determine whether the loss of an existing dwelling type is appropriate and applicants should consult the Council’s Housing Strategy Team for advice and guidance. The demolition of individual dwellings to be replaced by multiple dwellings e.g. the replacement of a bungalow with a block of flats, is not supported.

(3) Habitable Floorspace for New Developments

The habitable floorspace of a dwelling is considered by the Council as encompassing the floor area covered by any bedrooms, living rooms, dining rooms, kitchens and spare rooms which are used for these purposes. The term ‘habitable floorspace’ in this context also encompasses large rooms greater than 20sq.m, which could be subdivided, and as such, will be counted as two habitable rooms. Habitable floorspace, however, does not include any bathrooms, separate toilet facilities, cupboards, landings, hallways, or conservatories.

We recognise the importance of ensuring high quality development in addition to providing enough dwellings to meet the District’s housing needs. Dwellings, whether comprising housing or flats, which are market or affordable, should be of an appropriate size and layout to provide suitable and comfortable accommodation for modern living.

Dwelling size must be proportionate and sufficient to meet the needs of the potential number of inhabitants and all habitable rooms must have an adequate size, height, and shape, with plentiful natural lighting and ventilation. An adequate dwelling size can also increase the adaptability and flexibility of the District’s housing stock, accommodate features of the Lifetimes Homes Standard and give greater choice, whilst supporting the needs of the population.

The internal floor area of a dwelling should comply with the minimum guidance standards set by the Homes and Communities Agency² to ensure that the District’s future housing stock is flexible and that all dwellings are of an adequate size to be utilised for affordable housing as appropriate. The Agency use Housing Quality Indicators (HQIs) to measure the quality of housing schemes funded through the National Affordable Housing Programme, however, these indicators score the internal dwelling area by bedspace rather than number of bedrooms, which from a development management perspective is considered to be impractical to implement. As such other standards have been sought, by number of bedrooms, which would meet the Homes and Communities Agency’s requirements. In 2007, English Partnerships (which is now part of the Homes and Communities Agency) produced a quality standards document³ which identified minimum internal floor areas according to the number of bedrooms and occupancy. 

The table below sets out English Partnership’s minimum internal floor area according to the Homes and Communities Agency standards based on bedspaces. As such, the former standards are considered to comply with the current standards of the Homes and Communities Agency.

Table 1 – Homes and Communities Agency floorspace standards compared with those of English Partnership

Unit Type (Number of bedspaces and storeys)	Homes and Communities Agency: Internal Floor Area	English Partnerships: Minimum Internal Floor Area
1 bedspace	30 to 35 sq.m
2 bedspace	45 to 50 sq.m	51 sq.m (1 bedroom/ 2 person homes)
3 bedspace	57 to 67 sq.m	66 sq.m (2 bedroom/ 3 person homes)
4 bedspace	67 to 75 sq.m	77 sq.m (2 bedroom/ 4 person homes)
5 bedspace (1 storey)	75 to 85 sq.m	93 sq.m (3 bedroom/ 5 person homes)
5 bedspace (2 storey)	82 to 85 sq.m
5 bedspace (3 storey)	85 to 95 sq.m
6 bedspace (1 storey)	85 to 95 sq.m	106 sq.m (4 bedroom/ 6 person homes)
6 bedspace (2 storey)	95 to 100 sq.m
6 bedspace (3 storey)	100 to 105 sq.m
7 bedspace (2+ storey)	108 to 115 sq.m
7+ bedspace	add 10 sq.m per bedspace

It is possible, not to mention desirable in respect of implementation, to translate standards relative to bedspaces into standards relative to number of bedrooms. 

Table 2 combines standards set by HCA with those of English Partnerships to provide a workable and relevant standard for development management.

Both market and affordable housing should aspire to meet minimum approved standards for internal floor area. Each dwelling should comply with the minimum acceptable floorspace standards as defined below in Table 2.

Table 2 – Minimum Floorspace Standards

Unit Type (Number of bedrooms)	Minimum Internal Floor Area (sq.m.)
Studio flat	32.5 sq.m
1 bedroom flat	51 sq.m
2 bedroom flat	66 sq.m
2 bedroom house	77 sq.m
3 bedroom dwelling	93 sq.m
4 bedroom dwelling	106 sq.m

In addition to the minimum floorpsace standards above, all habitable rooms should have a minimum floor to ceiling height of 2.5 metres⁴ (8.2 feet) and be of an appropriate width to accommodate their proposed uses/function. All non-habitable rooms should have adequate size, height and shape, with sufficient natural lighting, and be ventilated directly by external air via a window. These standards will apply to all dwelling types and both market and affordable housing.

Whilst dwellings should be reasonably sized, they must also have a suitably designed internal layout to ensure comfortable habitation for potential occupants. Therefore we will not only have regard to whether the minimum standard has been applied to all dwellings within the development, but will also determine if the internal layout is appropriate and fit for purpose.

(3) Light Pollution

Inappropriate lighting can create light pollution which can affect rural, coastal and urban areas. The pollution can have a detrimental impact on ecology and wildlife, obscure vision of the stars, and introduce a suburban feel into rural areas which can thus affect local character and cause stress and anxiety for those adversely affected.

Light pollution can take several forms including:

• Sky glow - the glow seen above urban areas caused by stray artificial light being scattered by dust particles and water droplets in the sky.
• Glare - the uncomfortable brightness of a light source when viewed against a darker background.
• Light trespass - light spilling beyond an area intended to be lit.

There is a need to minimise the adverse impacts of illumination by avoiding unnecessary lighting, ensuring the level of lighting in new developments (including roads) is the minimum necessary for public safety, is energy efficient and respects the character of the locality. In some cases, full horizontal cut-off (the prevention of light spillage into adjoining areas) and other forms of containment of the light source may be required to prevent spillage and glare.

(2) Telecommunications

The implementation and maintenance of effective telecommunications networks such as telephone and radio masts within the District are essential to the development of the local economy and for the benefit of the local community.

Planning Policy Guidance 8 (PPG8 – Telecommunications) recognises the need to ensure the continued functioning and extension of existing telecommunications systems and the development of new networks whilst balancing the need to protect visual amenity and minimise environmental impacts. As such, we will seek to ensure that, particularly in the more rural areas of the District, there are adequate telecommunications systems (either through the maintenance or extension of existing networks, or the provision of new networks). Adequate provision will be balanced against ensuring that there are no unacceptable effects on the built and natural environment (in particular sites of national and international importance, or historic significance such as Conservation Areas), and the impact on visual and residential amenity is minimal.

Where environmental improvements are to be encouraged, especially in the District’s Conservation Areas, and other town and village centres, we will seek the co-operation of telecommunication providers in ensuring wherever possible that telephone cables are provided underground and that telephone boxes are sensitively designed and appropriately sited. Providers will be encouraged to dismantle all disused overhead lines.

The siting of substantial masts, which are essential to the operations of the various mobile phone companies, must be carried out with great care to ensure that sensitive areas do not suffer a loss of residential or visual amenity. Regard must be had however, to the limitations imposed by the nature of the telecommunications network and the technology that can constrain operators' choice of sites. A balance, therefore, needs to be struck.

Where the erection of a mast requires planning permission, their siting should be avoided in the sensitive areas of the District, as appropriate. These areas include Sites of Special Scientific Interest (SSSIs), the Coastal Protection Belt, Conservation Areas, Ancient Woodland, Special Areas of Conservation (SACs), Special Landscape Areas (SLAs) and the Upper Roach Valley. There is also a need to assess whether masts will affect any bird migration patterns and consultation will be undertaken with Natural England to assess this risk.

Furthermore, there is a clear need to ensure communication between the different companies to avoid the need for the erection of duplicate masts. Careful consideration needs to be given to the potential for mast sharing and also the placing of masts on existing buildings where their overall impact can be less than for a freestanding structure.

Character of Place

(3) Local List

The new Local List, which is being reintroduced through the emerging Core Strategy, identifies individual buildings, groups of buildings or items of street furniture which are of local historic, architectural or visual importance, are locally distinctive or are considered to be character enhancing.

We recognise the importance of such buildings which contribute to the distinctive character of each area within the District and enhance the local environment. The setting of such buildings is considered to be of particular importance. We do not want to be overly restrictive but aim to provide guidance and criteria which will help to protect special characteristics of locally listed buildings or street furniture and encourage sensitive alterations and modifications, where appropriate.

(1) Demolition within Conservation Areas

Conservation Areas, as designated by the Council, are areas of special architectural or historic interest where we have a statutory duty to preserve or enhance their character and appearance. The character of an area derives from a number of elements; these can include the siting and design of its buildings, open spaces, views and features such as walls, the landscape, streetscene, materials and the activities that take place there.

We have control over the demolition of most buildings (including walls and structures) within Conservation Areas by virtue of Section 74 of the Planning (Listed Building and Conservation Areas) Act 1990.

The prime consideration when assessing such applications will be the desirability of preserving or enhancing the appearance of the area. The contribution made by the building to the architectural and / or historical interest of the area, and the wider implications of the building's demolition on its surroundings and on the Conservation Area as a whole will be taken into consideration.

Consent for the demolition of any building will not be granted unless there are acceptable plans for the future use of the site. In cases where redevelopment of the site is proposed, consent for the demolition will not be granted until full planning permission has been approved for the redevelopment scheme, and no demolition may occur until a legal agreement between Rochford District Council and the developers for redevelopment is in place.

Development on the edge of Conservation Areas

Conservation Areas are designated to protect the character and important value of particular townscapes. Conservation Area Appraisal and Management Plans have been produced to aid their protection and enhancement, and Conservation Areas are protected through national guidance and legislation. Development in areas adjacent to Conservation Areas can have an impact on the visual amenity, character and value of those areas which are protected and so will seek to ensure that they do not have a negative impact on the Conservation Area.

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¹ The Council considers major development as defined within the Town and Country Planning (General Development Procedure) (Amendment) (England) Order 2006² Housing Quality Indicators (HQIs) available from www.homesandcommunities.co.uk/  ³ Place, Homes, People Policy Guidance – English Partnership’s Quality Standards Delivering Quality Places. Revised: from November 2007 available from www.englishpartnerships.co.uk/qualityandinnovationpublications.htm  ⁴ Housing Quality Indicators Form (updated April 2008) which identifies design and quality standards for affordable dwellings – available from www.homesandcommunities.co.uk/