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Five Year Land Supply

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1. Five Year Land Supply

Introduction

As of 1 April 2023 there is a housing land supply of 5.22 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 2023.

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 720 dwellings per year

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 we are applying a 5% buffer. 

Table 1 - Required housing land supply
Five year housing land supply + buffer Calculation
Five year housing land supply requirement + 5% (3,600) X 105% = 3,780 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:  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.

3.2        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.

3.3        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.

3.4       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.

3.5        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
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 9 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 1,238
Full approval not commenced 126
Full, hybrid or outline application pending 1,169
Outline approval 501
No permission/application 70
Total 3,104

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  2023/24 2024/25 2025/26 2026/27 2027/28 Total
NA1 Houghton Barton, Newton Abbot - Approved 3 7 10 0 0 20
NA1 Houghton Barton, Newton Abbot - Allocated no permission 0 25 100 100 100 325
NA2 Whitehill, Newton Abbot - Approved 30 15 0 0 0 45
NA2 Whitehill, Newton Abbot - Allocated no permission 0 5 28 0 0 33
NA3 Wolborough, Newton Abbot - Approved 0 86 150 200 200 636
NA3A Beverley Way, Newton Abbot - Allocated no permission 0 5 0 0 0 5
NA6 Bradley Barton, Newton Abbot - Approved 39 8 0 0 0 47
NA10 Bradley Lane, Newton Abbot - Allocated no permission 0 0 30 59 0 89
BT2A North of Indio Road, Bovey Tracey -  Approved 14 12 0 0 0 26
BT3 Challabrook, Bovey Tracey - Approved 53 0 0 0 0 53
KK1 Torquay Road & Embury Road, Kingskerswell - Approved 0 0 42 55 55 152
KK2 Mount Pleasant Road, Kingskerswell - Approved 26 0 0 0 1 27
KS6 Penns mount, Kingsteignton - Approved 33 6 0 0 0 39
TE3A New Road, Teignmouth - Allocated no permission 0 25 35 0 0 60
DA2 North West Secmaton Lane, Dawlish - Approved 90 80 150 150 127 597
CH1 Rocklands, Chudleigh - Approved 36 63 0 0 0 99
CH2 north east Chudleigh - Allocated no permission 0 0 35 40 40 115
CH3 James House, Chudleigh - Approved 6 13 0 0 0 19
CH4/5 Colway Lane and Grovelands, Chudleigh - Approved 0 0 4 0 0 4
CH6 North West Town Centre, Chudleigh - Allocated no permission 0 0 0 0 10 10
SWE1 South West Exeter, Exminster - Approved 165 173 131 123 119 711
TOTAL APPROVED 495 468 445 486 460 2,354
TOTAL NO APPROVAL 0 55 270 241 192 758
GRAND TOTAL 3,112

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      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 has been 143 dwellings, and over the past 5 years, 113 windfall dwellings.  The latter has been applied as the more cautious forward windfall allowance and provides compelling evidence of ongoing windfall delivery. Please note these are PAST completions demonstrating a consistent supply of windfalls.  Therefore, we have only included large sites (over 15 dwellings) and an average of the smaller sites over the past 5 years within the 5 year land supply.

5.4       As of 1 April 2023 there are 466 windfall dwellings with full permission and 32 windfalls with outline permission. In line with the NPPF all of those with full permission and prior approval for Permitted Development 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 i.e. what has actually been completed in the past 5 years.

Table 5 – Average Windfalls
Year TOTAL 1 to 20 21 + Rural exceptions Eligible Total
2012/13 245 123 122 2 121
2013/14 398 159 239 0 159
2014/15 353 194 159 6 188
2015/16 262 200 62 0 200
2016/17 248 142 106 6 136
2017/18 330 186 144 1 185
2018/19 237 140 97 0 140
2019/20 163 111 52 0 111
2020/21 161 110 51 9 101
2021/22 155 129 26 0 129
2022/23 91 82 9 0 82
Average (rounded) over 10 years 143
Average (rounded) over 5 years 113

Note: that the 5 year average of homes that have previously been delivered on unallocated larger sites (over 15 dwellings) is 51 dwellings per annum – 254 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.

  1. Unallocated larger sites

6.1       Currently there are 229 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 100 homes per annum permitted on large unallocated sites (over 15 dwellings).

Table 6 unallocated large sites with permission
Status 2022/23 2024/25 2025/26 2026/27 2027/28 Total
Under construction 21 0 0 0 0 21
Permitted or pre-commencement 18 16 74 70 30 208
TOTAL 39 16 74 70 30 229
Under construction

22/02357/NPA

40 Courtenay Street, Newton Abbot 20
15/02732/MAJ Bishop Dunstan, Newton Abbot 1
TOTAL  21
Permitted or pre-commencement
16/00300/MAJ Shell Cove House, Dawlish 17
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
20/00445/CLDP Ross Park, Moor Road, Ipplepen 35
TOTAL  265
Unallocated sites without permission
22/00579/MAJ  22 - 26 Wolborough Street, Newton Abbot 38
TOTAL  38
  1. Land Supply Summary

7.1        Since the Local Plan 2013-33 was adopted 7,864 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 2023/24 2024/25 2025/26 2026/27 2027/28 Total
Allocations approved 495 468 487 528 502 2,480
Allocations without permission 0 55 238 199 140 632
Unallocated sites with permission 39 16 74 70 30 229
Unallocated sites without permission 0 0 38 0 0 38
other windfalls less than 15 dwellings 113 113 113 113 113 565
Total Land Supply 647 652 950 910 785 3,944

 

Table 8 – Final calculation (Teignbridge Local Plan 2013 to 2033)

A

Total Plan period Requirement (720 x 5)

3,600

B

plus 5%

3,780

C

Five year supply of deliverable sites April 23 to April 2028

3,944

D

Housing Land Supply ((C/B) x5 years)

5.22

Following planning policy and guidance, the council can demonstrate a sufficient supply of deliverable housing sites within allocated areas to contribute 3,112 which you can see demonstrated on table 4 additional dwellings during the period April 2023 to March 2028. As of 1 April 2023 there is a housing land supply of 5.22 years.