1. Five Year Land Supply
Introduction
As of 1 April 2022 there is a housing land supply of 6.14 years.
1.1 The National Planning Policy Framework (NPPF), requires that Local Planning Authorities “identify and update annually a supply of specific deliverable sites sufficient to provide five years’ worth of housing against their housing requirement.” This Land Supply Statement summarises Teignbridge’s housing land supply position as at April 2022.
Housing Requirement
2.1 We adopted the Local Plan 2013 – 2033 on 6 May 2014. The Local Plan turned 5 years old on 6 May 2019. We must therefore apply the ‘standard method’ for calculating housing need that has been introduced by Government. On the basis of current data our annual housing target is 763 dwellings per year. This number may fluctuate slightly during the year but we will ordinarily only update this statement annually.
2.2 To the housing target we must add a “buffer” in accordance with NPPF advice. Local planning authorities are required to identify an additional buffer of either;
- 5% to ensure choice and competition in the market for land,
- 20% for authorities where there has been persistent under delivery of housing.
The buffer is informed by the Housing Delivery Test (HDT). If the HDT shows that delivery was below 85% of the housing requirement (NPPF paragraph 74) there must be a 20% buffer. The latest HDT published in January 2022 was 86% therefore Teignbridge is applying a 5% buffer.
Table 1 - Required housing land supply
Five year housing land supply + buffer | Calculation |
Five year housing land supply requirement + 5% | (3,815) X 105% = 4,006 dwellings |
Deliverable Land Supply and Forecast Net Additions
3.1 The NPPF explains that, to be considered deliverable, housing sites should be available now, offer a suitable location for development now, and be achievable with a realistic prospect that housing will be delivered on the site within 5 years. In particular:
3.2 Sites which do not involve major development and have planning permission, and all sites with detailed planning permission, should be considered deliverable until permission expires, unless there is clear evidence that homes will not be delivered within 5 years. For example, this could be because the site is no longer viable, there is no longer a demand for the type of units or sites have long term phasing plans.
3.3 Where a site has outline planning permission for major development, has been allocated in a development plan, has a grant of permission in principle, or is identified on a brownfield register, it should only be considered deliverable where there is clear evidence that housing completions will begin on site within 5 years.
3.4 We have assessed the deliverable supply of housing land in response to the following sources of information:
- Correspondence with developers, landowners and agents on a site by site basis.
- Intelligence provided by planning officers who are working on projects associated with the various sites
- A review of the status of planning permissions and planning applications.
3.5 Nearly all land owners/developers responded to our request for information, including sites under construction. This information shows robust evidence that the basic delivery rate assumption below are correct. Interestingly the number of confirmed by developers completions are higher in all cases than our records show, demonstrating a delay in the information reaching the council for completions.
3.6 We have also had regard to an agreed joint methodology (with East Devon Council, Exeter City Council, Mid Devon Council, Dartmoor National Park and Devon County Council) that addresses the expected annual rate of housing completions. The basic assumption of this methodology is that each sales outlet will complete 50 dwellings per annum on average.
Table 2 Illustration of baseline build out rates
Size of site (number of dwellings) | Sites where dwellings are under construction | Sites where dwellings have planning permission | Suitable sites without planning permission | Build out rate |
1-15 dwellings (assumes one developer) | Commence in Year 1 | Commence in Year 1 | Commence in Year 3 |
1st year - 25 maximum 2nd year onward - 50 per year maximum |
16-500 dwellings (assumes one developer) | Commence in Year 1 | Commence in Year 2 | Commence in Year 3 |
1st year - 25 maximum 2nd year onward - 50 per year maximum |
500-1,000 dwellings (assumes two developers) | Commence in Year 1 | Commence in Year 3 | Commence in Year 4 |
1st year - 25 maximum 2nd year onward - 100 per year maximum |
1,000+ dwellings (assumes three developers) | Commence in Year 1 | Commence in Year 3 | Commence in Year 4 |
1st year - 25 maximum 2nd year onward - 150 per year maximum |
These joint methodology assumptions reflect overall real-world delivery rates and development industry feedback. However, each site is likely to have its own development profile, which is why we also report on site specific evidence and feedback.
Allocations
4.1 Over the plan period Teignbridge have been successful in maintaining delivery with large major allocations providing a significant portion of the development. Masterplanning and infrastructure investment in the strategic urban extensions have come to fruition as these strategic sites are being delivered. A third strategic scale site at Wolborough in Newton Abbot now has outline permission for 1600+ dwellings and multiple volume housebuilders are involved in site preparation. Completions on this site are due to come forward over the coming five year period.
4.2 Taking into account the evidence above the five year land supply component from allocated sites is as follows. Section 8 provides detail of those allocated sites contributing to the Housing Land Supply.
Table 3 – Planning status of Allocated Sites contribution to five year trajectory
Planning Status | Trajectory |
Full approval and site commenced | 1,245 |
Full approval | 295 |
Full, hybrid or outline application pending | 380 |
Outline approval | 1,819 |
No permission or application | 303 |
Table 4 provides the delivery trajectory and details of the site status and deliverability, relating to local plan allocations and summarises their expected contribution over the next 5 years.
Table 4 - Allocations delivery trajectory
Allocations | 2022/23 | 2023/24 | 2024/25 | 2025/26 | 2026/27 | Total |
NA1 Houghton Barton, Newton Abbot - Approved | 30 | 27 | 10 | 0 | 0 | 67 |
NA1 Houghton Barton, Newton Abbot - Allocated no permission | 0 | 50 | 100 | 100 | 100 | 350 |
NA2 Whitehill, Newton Abbot - Approved | 11 | 25 | 45 | 0 | 0 | 81 |
NA2 Whitehill, Newton Abbot - Allocated no permission | 0 | 0 | 5 | 0 | 28 | 33 |
NA3 Wolborough, Newton Abbot - Approved | 16 | 200 | 233 | 251 | 214 | 914 |
NA6 Bradley Barton, Newton Abbot - Approved | 25 | 35 | 16 | 4 | 0 | 80 |
NA10 Bradley Lane, Newton Abbot - Allocated no permission | 0 | 39 | 50 | 0 | 0 | 89 |
BT1 Dean Park, Bovey Tracey - Approved | 0 | 25 | 41 | 0 | 0 | 66 |
BT2A North of Indio Road, Bovey Tracey - Approved | 0 | 0 | 0 | 9 | 13 | 22 |
BT3 Challabrook, Bovey Tracey - Approved | 72 | 26 | 0 | 0 | 0 | 98 |
BT3 Challabrook, Bovey Tracey - Allocated no permission | 0 | 15 | 52 | 50 | 11 | 128 |
KK1 Torquay Road & Embury Road, Kingskerswell - Approved | 0 | 0 | 0 | 0 | 42 | 42 |
KK2 Mount Pleasant Road, Kingskerswell - Approved | 26 | 1 | 0 | 0 | 0 | 27 |
KK3 rear of The Barn Owl, Kingskerswell - Approved | 23 | 12 | 0 | 0 | 0 | 35 |
KS6 Abbrook, Kingsteignton - Allocated no permission | 0 | 20 | 10 | 0 | 0 | 30 |
KS6 Penns mount, Kingsteignton - Approved | 37 | 20 | 0 | 0 | 0 | 57 |
KS8 Rydon Depot, Kingsteignton - Allocated no permission | 0 | 0 | 0 | 15 | 0 | 15 |
TE3 West Higher Exeter Road, Teignmouth - Approved | 25 | 50 | 50 | 50 | 50 | 225 |
TE3A New Road, Teignmouth - Allocated no permission | 0 | 35 | 25 | 0 | 0 | 60 |
DA2 North West Secmaton Lane, Dawlish - Approved | 50 | 109 | 166 | 145 | 73 | 543 |
CH1 Rocklands, Chudleigh - Approved | 20 | 31 | 55 | 0 | 0 | 106 |
CH3 James House, Chudleigh - Approved | 19 | 0 | 0 | 0 | 0 | 19 |
CH4/5 Colway Lane and Grovelands, Chudleigh - Approved | 34 | 0 | 0 | 0 | 0 | 34 |
CH6 North West Town Centre, Chudleigh - Allocated no permission | 0 | 0 | 0 | 0 | 10 | 10 |
SWE1 South West Exeter, Exminster - Approved | 123 | 207 | 210 | 215 | 179 | 934 |
TOTAL APPROVED | 511 | 768 | 826 | 674 | 571 | 3,350 |
TOTAL NO APPROVED | 0 | 159 | 242 | 165 | 149 | 715 |
GRAND TOTAL | 511 | 927 | 1,068 | 839 | 720 | 4,065 |
Windfalls
5.1 The NPPF makes provision for the inclusion of unallocated ‘windfall’ sites in the land supply calculation and we have evidence of an ongoing supply of windfalls, largely through changes of use, conversions and subdivision of existing buildings. Windfall developments tend to be completed fairly rapidly with shorter site servicing times and fewer reserved matters to be considered following permission.
5.2 Having also taken into account projected windfall completions, a windfall allowance has been applied.
5.3 Although the 2019 NPPF updated the definition of windfalls to remove references to previously developed land and gardens, for the current plan period Teignbridge is continuing to take a cautious approach, excluding garden developments and rural exemptions from the windfall calculation.
5.4 The following table summarises the LPA windfall and other non-allocated delivery over the past 10 years. The average number of windfalls in Teignbridge over the past 10 years had been 124 dwellings. Over the past 5 years, 111 windfall dwellings, on sites of up to 20 dwellings have been completed per annum. The latter has been applied as the more cautious forward windfall allowance and provides compelling evidence of ongoing windfall delivery.
5.5 As of 1 April 2022 there are 473 windfall dwellings with full permission and 58 windfalls with outline permission. In line with the NPPF all of those with full permission and prior approval for PD are considered to be deliverable within the five year period, but despite this we have taken a cautious approach and applied the 5 year average that’s described above. Those with outline permission and PIP are also considered deliverable in most cases but, again, we have not included these in the calculation.
Table 5 – Average Windfalls
TOTAL | 1 to 20 | 21 + | Rural exceptions | Gardens | Eligible Total | |
2012/13 | 245 | 123 | 122 | 2 | 18 | 103 |
2013/14 | 398 | 159 | 239 | 0 | 2 | 137 |
2014/15 | 353 | 194 | 159 | 6 | 26 | 162 |
2015/16 | 262 | 200 | 62 | 0 | 35 | 165 |
2016/17 | 248 | 142 | 106 | 6 | 20 | 116 |
2017/18 | 330 | 186 | 144 | 1 | 33 | 152 |
2018/19 | 237 | 140 | 97 | 0 | 17 | 123 |
2019/20 | 163 | 111 | 52 | 0 | 18 | 93 |
2020/21 | 161 | 110 | 51 | 9 | 18 | 83 |
2021/22 | 155 | 129 | 26 | 0 | 25 | 105 |
Average (rounded) over 10 years | 124 | |||||
Average (rounded) over 5 years | 111 |
Note that the 5 year average of homes that have previously been delivered on unallocated larger sites is 74 dwellings per annum – 370 dwellings over five years. Later in this statement we already have accounted for permitted unallocated sites but not otherwise made an assumption about future delivery on larger unallocated sites.
-
Unallocated larger sites
6.1 Currently there are 260 dwellings on unallocated larger sites within the five land supply. One of these is a large unallocated site, Berry Knowles site which the planning committee approved as a departure as it was:
- Geographically related to the NA2 large site allocation
- Formed part of the scheme design for the priority Jetty Marsh II link road which also benefits from a Department of Transport funding award as part of a package of significant improvements to the A382 corridor
6.2 Over the past 10 years there has been an average of 169 homes per annum permitted on large unallocated sites (over 15 dwellings).
Table 6 unallocated large sites with permission
Status | 2022/23 | 2023/24 | 2024/25 | 2025/26 | 2026/27 | Total |
Under construction | 30 | 1 | 0 | 0 | 0 | 31 |
Permitted or pre-commencement | 0 | 20 | 106 | 60 | 43 | 229 |
TOTAL | 30 | 21 | 106 | 60 | 43 | 260 |
Under construction | ||
16/00300/MAJ & 20/00805/FUL |
Shell Cove House, Dawlish | 26 |
15/02732/MAJ | Bishop Dunstan, Newton Abbot | 5 |
TOTAL 31 | ||
Permitted or pre-commencement | ||
21/02338/NPA | 40 Courtenay Street, Newton Abbot | 16 |
19/00043/MAJ | 56 West Cliff Road, Dawlish | 18 |
20/01736/MAJ | Tollgate, Chudleigh Knighton, Hennock | 60 |
16/02693/MAJ | Berry Knowles, Newton Abbot | 135 |
TOTAL 229 | ||
Unallocated sites without permission | ||
22/00579/MAJ | 22 - 26 Wolborough Street, Newton Abbot | 38 |
TOTAL 38 |
- Land Supply Summary
7.1 Since the Local Plan 2013-33 was adopted 7,423 dwellings (total numbers, not just those deliverable within the next 5 years and some which have been completed) within allocated sites have now secured planning permission These are full and outline consents and also includes those approved subject to the completion of Section 106 agreements.
Further planning applications have been submitted for several allocated areas and interests in other allocated areas have been acquired by developers who are currently in pre-application negations or pending a planning application decision.
Table 7 - Summary
Five Year Forward Projection | ||||||
Year | 2022/23 | 2023/24 | 2024/25 | 2025/26 | 2026/27 | Total |
Allocations approved | 511 | 768 | 831 | 674 | 571 | 3355 |
Allocations without permission | 0 | 159 | 237 | 165 | 149 | 710 |
Unallocated sites with permission | 30 | 21 | 106 | 60 | 43 | 260 |
Unallocated sites without permission | 0 | 38 | 0 | 0 | 0 | 38 |
other windfalls less than 15 dwellings | 111 | 111 | 111 | 111 | 111 | 555 |
Total Land Supply | 652 | 1,097 | 1,285 | 1,010 | 874 | 4,918 |
Five year forward projection |
||||||
Year |
2022/23 |
2023/24 |
2024/25 |
2025/26 |
2026/27 |
totals |
Past completions 2013 - 2022 |
5451 |
|||||
Allocations approved |
511 |
768 |
831 |
674 |
571 |
3355 |
Allocations without permission |
0 |
159 |
237 |
165 |
149 |
710 |
unallocated sites with permission |
30 |
21 |
106 |
60 |
43 |
260 |
unallocated sites without permission |
0 |
38 |
0 |
0 |
0 |
38 |
other windfall sites <15 |
111 |
111 |
111 |
111 |
111 |
555 |
Total Land Supply |
652 |
1097 |
1285 |
1010 |
874 |
4918 |
Table 8 – Final calculation
Teignbridge Local Plan 2013 to 2033 |
||
A |
Total Plan period Requirement (763 x 5) |
3,815 |
B |
plus 5% |
4,006 |
C |
Five year supply of deliverable sites April 22 to April 2027 |
4,918 |
D |
Housing Land Supply ((C/B) x5 years) |
6.14 |
Following planning policy and guidance, the council can demonstrate a sufficient supply of deliverable housing sites within allocated areas to contribute 4,065 which you can see demonstrated on table 4 additional dwellings during the period April 2022 to March 2027. As of 1 April 2022 there is a housing land supply of 6.14 years.