Wilsden Neighbourhood Plan 2020-2038

2 HOUSING NEED

2.0.1 This section considers the amount, location and type of housing over the Plan period. The consultation showed that this is an issue of great concern and interest to local people. The Parish's good quality natural and built environment coupled with its proximity and accessibility to the main urban centres such as Bradford means that it is a popular place to live. Therefore, demand for housing in the Parish is strong.

2.1 Housing Demand

2.1.1 The Plan recognises that future housing development will help to support and enhance local amenities, such as shops, and help to support a balanced and sustainable community. The impact on the area of the high rate of housing growth in recent years was highlighted as the major concern of local residents as evidenced by consultation undertaken as part of the development of this Plan.

2.1.2 The consultation shows that residents are generally supportive of limited, carefully controlled house building in the Parish that meets a local need. They appreciate that it could help support local services, such as shops, and create a more balanced community and housing stock, especially in the context of the Parish's ageing population. A household survey undertaken in 2015 showed that the community was generally supportive of small housing developments with 76% of respondents favouring developments of no more than 50 houses. There was also strong support for the re-use of previously developed land.

2.1.3 They were concerned about the scale of new housing development that had already taken place and could take place in the future. It was placing pressures on already stretched facilities such as medical, education, sporting and recreational. The general view was that the Parish was not a suitable or a sustainable location for major new housing building as this would inevitably result in high and unsustainable levels of commuting away from the Parish for jobs and services and would have an adverse impact on the natural and built character of the Parish.

2.2 Housing Provision

2.2.1 Wilsden is an attractive parish with generally good local facilities and services such as shops, schools and health care. Transport links to Bradford, Leeds and other nearby towns are good. Consequently, it has a buoyant housing market, as reflected in house prices, which are above the District average.

2.2.2 Land for future housing development in the Parish, however, is extremely limited under existing planning policies. The land outside Wilsden Village lies within the designated Green Belt. Green Belt designation is intended to protect the open character of land designated as such, and within the Green Belt development is only allowed in very special circumstances. Furthermore, the village of Wilsden is largely 'built-up' and consequently finding suitable land for new housing is difficult.

2.2.3 Legislation requires that a Neighbourhood Plan must support and be in general conformity with the strategic policies contained in the development plan for the wider area. In the case of Wilsden, this means that it must be in general conformity with those contained in the adopted Core Strategy of the CMBDC Local Plan. This includes ensuring that the Plan makes its full and proper contribution to meeting any housing requirement these policies set out.

2.2.4 The Core Strategy for CBMDC is required to provide for at least 42,100 new homes between 2013 and 2030 across the District. However, in developing the Core Strategy CBMDC did not make a detailed settlement by settlement assessment of housing need but assessed this on a district-wide basis.

2.2.5 The adopted Core Strategy establishes a hierarchy of settlements across the district as the basis for a district-wide growth strategy. The general principle being the higher up a settlement comes in the hierarchy the more suitable it is considered for future development in the most sustainable way. All the main settlements across the Bradford District were reviewed as part of this hierarchy, including Wilsden. The village of Wilsden has been identified as a local service centre in the hierarchy with an emphasis on small scale development.

2.2.6 The aim of Policy SC4 of the Core Strategy is to prevent un-necessary dispersal of development to smaller settlement and the open countryside, whilst allowing for limited types of development within the open countryside. Any development proposals that come forward should be in line with the provisions of national policy as set out in the NPPF.

2.2.7 The adopted Core Strategy identified a requirement for at least 200 homes in Wilsden between 2013 and 2030. Up to the end of 2020, 93 homes had been completed and a further 13 were under construction leaving a residual requirement of 94 homes. A review of the CBMDC Local Plan is ongoing and based upon the emerging 2021 allocations a minimum of 125 homes will be required between 2020 and 2038.

2.2.8 The consultation shows that the community is concerned about the scale of housing development proposed for Wilsden. Residents feel strongly that the land in the Green Belt should be protected. They are also concerned about the adverse impact it will have on the distinctive character of the Parish, and that it will inevitably worsen the already high levels of commuting away from the Parish for jobs and services. Although residents object in principle to any changes to the Green Belt it is recognised that some Green Belt changes will be required in order to meet the housing allocation. More details of a green Belt review process are given in 1.4 above.

2.3 Providing this Housing Requirement

2.3.1 Government policy states that neighbourhood plans should positively support the strategic policies for the area and should not promote less development than is required by the Local Plan. The housing allocation for Wilsden will be met by a mixture of sites within the Settlement Boundary and those that may be newly released from the Green Belt. Wilsden village is largely built-up and undeveloped land suitable for housing (or other forms of development) is limited. This Neighbourhood Plan did consider allocating land to meet this housing requirement but ultimately determined not to do so. The Steering Group did undertake an assessment of potential housing sites capable of accommodating at least five dwellings located within the existing settlement boundary of the village. This assessment concluded that the only available site, off Crooke Lane, has been identified by CBMDC in the emerging Local Plan. It was therefore concluded that to allocate within this Neighbourhood Plan would only duplicate the allocation carried out by CBMDC. There are a small number of sites that could accommodate less than five dwellings including some that have an existing planning approval. These sites are considered as windfall developments and are covered by Policy W/HO5 and an allowance is included in the allocated number of dwellings in the emerging Local Plan. Wilsden also includes a number of green open spaces within the settlement boundary which the community believes should not be considered for development. These are identified within section 4.1 of this Neighbourhood Plan and covered by Policy W/EN1.

2.3.2 The emerging CBMDC Local Plan proposes to allocate one site within the Settlement Boundary. This site, off Crooke Lane, is partially developed and the proposed site allocation is described as WI/1H and shown in Figure 4. This site is partially in the Wilsden Conservation Area and as a result of Policy W/BH2 would be considered as being wholly within the Conservation Area. This site is capable of accommodating about 18 dwellings.

2.3.3 As a former mill village, Wilsden has retained a number of mill buildings, some of which have been converted for residential use. Other mill buildings remain as sources of local employment. As emphasised in section 5.1 and Policy W/E1 it is important that these mill buildings are retained as sources of employment where this is economically viable. Where there is no long-term economically viable employment use for these mill buildings residential conversion should be the preferred option. Where these mill buildings are included within the list of Locally Important buildings and structures detailed in section 3.2, Table 1 Policy W/BH1 will govern any conversion applications.

2.3.4 There is an example of a former industrial site, where the previous use may be no longer economically viable within the Wilsden Conservation Area. This site has residential support for housing development is at Prospect Mill, Main Street, Wilsden, a large Victorian former textile mill that was latterly used for furniture manufacture. When it was built in 1884 it was the largest of the Wilsden Mills and its importance to the Wilsden streetscape is evidenced by its listing as a locally important heritage asset in section 3.2. The size and layout make these mill premises is understood to be unviable for its current employment use and the parish council believes the optimum way to conserve this important part of the village's industrial heritage is through residential conversion. The site, shown in Figure 3, is currently subject to an outline planning application for conversion to 37 apartments which was supported by Wilsden Parish Council in February 2021 subject to the conversion taking into account Policy W/BH1. As previously stated, we have a strong desire that previously developed land such as this site is utilised before greenfield sites.

Figure 4 Crooke Lane and Prospect Mill

2.4 Design

2.4.1 In conjunction with this Neighbourhood Plan the Steering Group has adopted a Wilsden Design Code. A technical support package was obtained from Locality and AECOM was appointed to develop this Design Code.

2.4.2 The Wilsden Design Code, in conjunction the CBMDC Homes and Neighbourhoods Design Guide and the National Model Design Code will inform all applications for approval within the parish council area. The Wilsden Design Code also incorporates specific design codes for sites within the settlement area and for edge of settlement sites.

2.4.3 In July 2021 the NPPF was modified to contain updated policies with regard to design. In paragraph 127 it says Design policies should be developed with local communities so they reflect local aspirations and are grounded in an understanding and evaluation of each area's defining characteristics. Neighbourhood planning groups can play an important role in identifying the special qualities of each area and explaining how this should be reflected in development. In paragraph 134 it says Development that is not well designed should be refused, especially where it fails to reflect local design policies.

2.4.4 All developments within the parish council area should incorporate details of how they will address issues of Sustainability, Biodiversity Net Gain and Climate Change in their application. All developments must take full account of the site-specific design recommendations in the Wilsden Design Code and where they wish to deviate from the Code they should produce a detailed justification as to why this is the case.

2.5 Windfall Development

2.5.1 Windfall development is defined as any residential development that is granted planning permission on land or buildings not specifically allocated for residential development in an approved planning document such as a Core Strategy or a Neighbourhood Plan.

2.5.2 These sites often comprise redundant or underutilised buildings, including former farm buildings, or a small gap within an existing frontage of buildings. These are often small sites suitable for only a single dwelling but can be larger for example through the redevelopment of a business premises or a former mill. Normally windfall development is for new housing although, in principle, could comprise other forms of development such as new shops, employment or community facilities.

2.5.3 Such development has made a regular contribution towards housing supply in Wilsden. In recent years, this has averaged more than two dwellings a year. This is a trend which is expected to continue. Though these sites are not identified, the relatively high land values in the Parish coupled with the level of vacant and underutilised land and buildings, including agricultural related, mean that windfall sites have the potential to provide a modest source of housing and other forms of development.

2.5.4 The Plan is supportive of such suitable designed and located development, and where it respects the overall character of the area. It is recognised that some windfall development proposals may come forward outside the Wilsden Settlement Boundary; for example, the conversion of a disused agricultural building into residential use. In such circumstances, these will be considered in accordance with relevant policies contained in the Plan, especially, Policy W/HO4 and relevant district-wide and national planning policies.

2.6 New Housing Mix

2.6.1 It is important that any housing growth in Wilsden supports the changing population of the Parish over the plan period. It is essential, therefore, that any homes that come forward are of the right type to ensure that Wilsden is a demographically mixed and balanced community, which provides for, and supports, people of all ages both now and in the future. This is consistent with both national and district wide policy where both the NPPF and Policy HO8 of the CBMDC Core Strategy require a mix of housing to meet the needs of the population. The type of housing must also take account of market conditions by ensuring commercial viability.

2.6.2 This is of special significance as there is evidence that the housing stock of the Parish completed in recent years does not reflect its changing needs and requirements. There is a predominance of under occupied detached dwellings with 4 or more bedrooms in the area. This is coupled with a stable and ageing population and a limited number of smaller new build properties. Since 1995, Land Registry data shows that 50% of new housing completions have been of detached properties, predominantly with 4 or more bedrooms. Data from the 2021 Census indicates that there is also an under representation of smaller type housing, with around 34% of dwellings having 2 or fewer bedrooms against 37% for the district and region and 39% for England.

2.6.3 In addition, there is some evidence of under-occupancy (having more bedrooms than the notional number recommended by the bedroom standard) in the Parish. Analysis of the 2021 Census shows that around 43% of households have two or more spare bedrooms and approximately 39% (828) have one spare bedroom. Under-occupancy is higher than the district, regional and national rates. The issue of under occupancy is especially an issue for older person households. Over half of pensioner households have an occupancy rating of +2 or more (meaning there are at least two more bedrooms than are technically required by the household).

2.6.4 At the same time, in common with the national trend, the Parish population is ageing. Around one in four (25%) of residents are aged 65 and over, which is above the district (15%) and national (18%) rates. The median age of people living in the Parish is 49 which is higher than the district (36) and national (40 rates. Over the last 10 years the median age of Wilsden residents has increased by 5 years compared to the district increase of 2 years. This further illustrates that the Wilsden population is ageing more rapidly than that in either the district or nationally.

2.6.5 This suggests a need for smaller homes of three bedrooms or fewer which would be suitable for residents needing to downsize, small families and those entering the housing market. Providing suitable accommodation for elderly residents will also enable them to remain in the local community and release under occupied larger properties onto the market which would be suitable for growing families.

2.6.6 This analysis is also supported by the findings from the consultation. When asked about what type of housing is most needed the preference was for smaller homes that are suitable for young families and for older residents wishing to downsize to remain in the Parish. More detailed evidence on this is given in a separate document "Supporting evidence Housing Need and Characteristics". Where a development wishes to deviate from the housing mix requirements detailed below they must provide evidence to justify why it is proposed to override the general housing requirements for the Plan area.

2.6.7 It is possible to assess the impact of this housing mix on commercial viability by using the evidence base developed for CBMDC in the preparation of the CIL Charging Schedule. Because this evidence included a specific example in Wilsden there is relevant data on the impact of this policy. This indicates that while a reduction in the number of larger houses may reduce overall profitability it will not impact upon the overall commercial viability.

2.6.8 It is proposed to achieve the desired housing mix by a requirement that all developments in the designated area should have no more than one dwelling in every three with more than three bedrooms. For small developments of more than one or two dwellings this is not practicable, but the policy will apply to all developments of three or more dwellings.

2.7 Affordable Housing

2.7.1 In the NPPF affordable housing is defined as being for sale or rent, for those whose needs are not met by the market. Eligibility is determined with regard to local incomes and local house prices. While developments such as at Crack Lane have contributed some much-needed affordable housing in recent years, its provision remains a major challenge in the Parish.

2.7.2 There is a high level of disparity between average house prices (both for sale and rent) and average income. The average house price in the Parish (£237,184 in 2023) is well above the equivalent district figure, although lower than the national averages. Further, the proportion of the local housing stock, which is 'socially rented' is significantly below national and district norms. Indeed, its provision at 5% is about a third of the district average (15%) and the national average (17%), according to the 2021 Census.

2.7.3 In addition, the community consultation indicated that those with a strong local connection were not given sufficient preferential access to affordable housing when it becomes available. As a consequence, many people who wish to live in the Parish, including those with a local connection, are unable to do so as they cannot find suitable accommodation either to buy or rent. The affordable housing needs of many residents are not being met. Core Strategy Policy HO11 requires that all new housing developments in Wilsden, involving 11 or more dwellings, should have an affordable housing target of 20%

2.7.4 This Plan supports the provision of affordable housing that clearly reflects and meets local housing need. As part of the development of this Neighbourhood Plan a study was carried out to establish the local requirement for affordable housing for sale. This study did not identify a local affordable housing requirement that is significantly different to that of similar areas within the CBMDC area.