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Five Year Land Supply

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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.

  1. 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
  1. 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.