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Land Supply Statement

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1. Land Supply

Introduction

As of 1 April 2024 there is a housing land supply of 6.75 years

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 2024, to be used for decision making.

Housing Requirement

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 717 dwellings per year

The revised NPPF was published on 19 December 2023. This stated the LPAs which have an emerging local plan that has either been submitted for examination or has reached Regulation 18 or 19 state, are required to identify and update annually a supply of specific deliverable sites sufficient to provide a minimum of 4 years' worth of housing (with a buffer, if applicable). The Local Development Scheme shows we expect to have the Local Plan adopted within 2 years of this date.

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 December 2023 was 75% therefore we are applying a 20% buffer.

Table 1 - Required housing land supply

Four year housing land supply + buffer Calculation
Four year housing land supply requirement + 20% (2,868) X 120% = 3,011 dwellings

Deliverable Land Supply

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.

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.

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.

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.

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

1,001+ 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

Over the plan period we 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.

Considering the evidence above, the land supply component from allocated sites is as follows. Section 9 provides details of those allocated sites contributing to the Housing Land Supply.

Table 3 – Planning status of Sites contribution to trajectory
Planning Status Trajectory
Full approval and site commenced 2,179
Full approval not commenced 509
Full, hybrid or outline application pending 866
Outline approval 1,085
No permission/application 87
Total 4,726

Table 4 provides the delivery trajectory and details of the site status and deliverability, relating to local plan 2013-33 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 0 0 7 8 0 15
NA1 Houghton Barton, Newton Abbot - Allocated no permission 0 50 100 100 100 350
NA2 Whitehill, Newton Abbot - Approved 5 0 0 5 10 20
NA2 Whitehill, Newton Abbot - Allocated no permission 0 0 0 0 28 28
NA3 Wolborough, Newton Abbot - Approved 15 70 140 205 201 631
NA3A Beverley Way, Newton Abbot - Allocated no permission 0 5 0 0 0 5
NA6 Bradley Barton, Newton Abbot - Approved 0 0 0 0 4 4
NA10 Bradley Lane, Newton Abbot - Allocated no permission 0 30 59 0 1 90
BT1 Dean Park, Bovey Tracey - Approved subject to S106 0 0 0 0 25 25
BT2 Bradley Bends, Bovey Tracey - Approved 0 0 0 0 18 18
BT2A North of Indio Road, Bovey Tracey -Approved 21 2 0 0 0 23
BT3 Challabrook, Bovey Tracey - Approved 17 40 40 40 13 150
KK1 Torquay Road & Embury Road, Kingskerswell - Approved 0 0 0 42 55 97
KK2 Mount Pleasant Road, Kingskerswell - Approved 24 0 0 0 1 25
KK3 Land to the rear of The Barn Owl, Kingskerswell - Approved 2 0 0 0 0 2
KS6 Penns mount, Kingsteignton - Approved 18 0 0 0 0 18
TE3 West of Higher Exeter Road, Teignmouth - Approved 22 50 50 50 50 222
TE3A New Road, Teignmouth - Allocated no permission 0 0 40 40 0 80
DA2 North West Secmaton Lane, Dawlish - Approved 110 129 123 95 101 558
CH1 Rocklands, Chudleigh - Approved 42 0 0 0 11 53
CH2 north east Chudleigh - Allocated no permission 0 0 35 40 40 115
CH3 James House, Chudleigh - Approved 0 19 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 7 0 0 7
SWE1 South West Exeter, Exminster - Approved 331 236 248 179 139 1,133
TOTAL APPROVED 607 546 627 639 610 3,029
TOTAL NO APPROVAL 0 85 241 180 187 693
GRAND TOTAL 3,722

Windfalls

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.

Having also taken into account projected windfall completions, a windfall allowance has been applied.

In order to reflect windfall data over the appropriate timescales, we use a 10 year average for plan making purposes and a 5 year average for decision taking. The following table summarises the windfall completions over the past 10 years, which includes all non-allocated housing. The average number of windfalls over the past 10 years has delivered 136 homes per year. If the windfall rate is based on a 5 year average, the windfall rate is 100 homes per year. Using the 5 year average results in a land supply of 6.49 years.

As of 1 April 2024 there are 490 windfall dwellings from small sites (of less than 20) with full permission and 39 windfalls with outline permission, a total of 529. This is an average of 106 dwellings per year already with permission. Please note these are projected windfalls within the next 5 years, but are not included in Table 8 as part of the land supply to avoid double counting with the average small site windfall allowance described in paragraph 5.3. However, as they do clearly form part of the committed supply, the windfall allowance is applied from Year 1 as no lag for gaining permission needs to be included. In line with the NPPF all of those with full permission, prior approval for Permitted Development, Permission in Principal and outline permission are considered to be deliverable within the five year period.

Table 5 – Average Windfalls
Year TOTAL 1 to 20 21 + Eligible Total
2014/15 353 194 159 194
2015/16 262 200 62 200
2016/17 248 142 106 142
2017/18 330 186 144 186
2018/19 237 140 97 140
2019/20 163 111 52 111
2020/21 161 110 51 110
2021/22 155 129 26 129
2022/23 91 82 9 82
2023/24 68 67 1 67
Average (rounded) over 10 years 136

* eligible - total of windfalls, minus sites of over 20.

Unallocated larger sites

Currently there are 253 dwellings on unallocated larger sites, at pre commencement or under construction.

19/00043/MAJ - 56 West Cliff Road, Dawlish

This application for 18 dwellings is under construction and the developer confirmed delivery of final 7 in February 2024.

20/01736/MAJ - Tollgate, Chudleigh Knighton, Hennock

This reserved matters application for 60 dwellings is under construction and the developer confirmed delivery in February 2024.

16/00300/MAJ - Shell Cove House, Dawlish

This site was under construction and the final 13 dwellings are subject to a pending planning application. The development management officer and the developer confirmed delivery in February 2024.

22/00579/MAJ - 22-26 Wolborough Street, Newton Abbot

This site has full planning permission and agent confirmed delivery in February 2023.

16/02693/MAJ - Berry Knowles, Newton Abbot

This site is a hybrid application and land owner confirmed delivery in February 2024.

Over the past 10 years there has been an average of 121 homes per annum permitted on large (over 20 dwellings) unallocated sites.

Table 6 unallocated large sites with permission
Status 2024/25 2025/26 2026/27 2027/28 2028/29 Total
Under construction 22 30 15 0 0 67
Permitted or pre-commencement 0 20 81 50 30 186
TOTAL 22 50 96 50 30 253
Table 7 Large unallocated sites
Application number Under Construction Total Outstanding
19/00043/MAJ 56 West Cliff Road, Dawlish 7
20/01736/MAJ
Tollgate, Chudleigh Knighton, Hennock
60
Total 67

 

Permitted or pre-commencement
Application number Under Construction Total Outstanding
16/00300/MAJ Shell Cove House, Dawlish 13
22/00579/MAJ 22-26 Wolborough Street, Newton Abbot 38
16/02693/MAJ Berry Knowles, Newton Abbot 135
Total 186

Conclusion of windfalls

The windfall rate, considering all sources of supply and taking a longer term 10 year average is 136 per annum.

Land Supply Summary

Since the Local Plan 2013-33 was adopted 7,715 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.

From the summary below there are 4,650 dwellings that will be delivered within the next 5 years, against a target of 3,442 meaning there is a supply of 6.75 years worth of dwellings within the next 5 year period.

Table 8 - Summary - Five Year Forward Projection
Year 2024/25 2025/26 2026/27 2027/28 2028/29 Total
Allocations approved 607 546 627 639 610 3,029
Allocations without permission 0 85 241 180 187 693
Unallocated sites with permission 22 50 96 50 30 248
other windfalls less than 15 dwellings 136 136 136 136 136 680
Total Land Supply 765 817 1,100 1,005 963 4,650

Final Calculations

Table 8 – Final calculation

A

Total Plan period Requirement (717 x 4)

2,868

B

plus 20%

3,442

C

Five year supply of deliverable sites April 24 to April 2029

4,650

D

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

6.75

Following planning policy and guidance, the council can demonstrate a sufficient supply of deliverable housing sites within allocated areas to contribute 3,722 which you can see demonstrated on table 4 additional dwellings during the period April 2024 to April 2029. As of 1 April 2024 there is a housing land supply of 6.75 years.