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1. Introduction
Purpose
4. This SPP sets out The Scottish Government's policy on the role of planning in the identification of housing requirements and the delivery of quality houses in the right locations. A number of factors have contributed to pressures on the housing market. Difficulties in bringing forward and developing land has been identified as an area which has to be addressed. It has been argued that SPP3, published originally in February 2003, has not succeeded in bringing about the quicker delivery of land for housing. As pressure on the housing market continued to grow, and with the passage of the Planning etc (Scotland) Act 2006, the need to review SPP3 became clear. When published as a final document, this SPP will replace the version of SPP3 published in 2003.
The housing market
5. The housing system in Scotland has been under pressure for several years. A range of factors have contributed to house price inflation and growing divergence between incomes and house prices. As a result, many households have been excluded from the market, or have found it difficult to realise their aspiration for owner occupation. This has increased demand in the rental and social housing sectors in particular areas. There has been no corresponding increase in the supply of new housing in response to increases in both demand and cost. Difficulties in bringing forward sufficient land for housing has been identified as one of the most significant obstacles to the delivery of new housing. 1
6. In Firm Foundations: the Future of Housing in Scotland, The Scottish Government has proposed a national goal to increase the rate of new housing supply to at least 35,000 houses each year by the middle of the next decade to meet Scotland's housing requirements. 2 This aspiration underlines The Scottish Government's commitment to set a national political context that is strongly supportive of house building. The planning system has an important role to play in achieving that goal and The Scottish Government's overarching aim of ensuring sustainable economic growth through supporting the efficient release of land for house building. SPP3 sets out The Scottish Government's policy on how local authorities should make provision in development plans for new housing taking account of identified need and demand. The scale of annual housing completions across Scotland currently represents around 1% of the existing stock of housing. 3 Development plans should be based on assessment and analysis of the local housing market, through Strategic Housing Need and Market Assessments. This will provide a robust evidence base and clear vision for the provision of housing, to be set out in the local housing strategy which will include housing supply targets and guide the preparation of the development plan. All housing tenures should be provided for and issues of affordability addressed. Suitable available land to meet the housing requirement identified in the local housing strategy should be allocated through development plans. SPP3 encourages local authorities to adopt an outcome-focussed approach which seeks to secure the speedier delivery of new housing.
7. The allocation of housing land is key to ensuring continued opportunities for house building. SPP3 also sets out The Scottish Government's policy on issues affecting the location, quality, design and energy efficiency of new houses and housing developments. Successful developments will remain desirable, attractive and safe places to live for many years. This can be achieved through appropriate location, links to transport networks and other settlements, attractive and functional layouts, good design and high building and energy efficiency standards, as well as innovation and creativity. SPP3 emphasises that planning authorities and developers should work together to ensure the creation of quality residential environments that will provide stable places to live.
8. The planning system alone cannot provide appropriate housing developments. The attitudes, knowledge, confidence and skills of all those involved in the planning, design and development process are crucial to the creation of new housing that meets the needs and aspirations of the Scottish people.
Policy context
9. SPP3 reflects the provisions of the Planning etc. (Scotland) Act 2006, particularly the strengthening of the plan-led system. It also accords with Scottish Government housing policy, set out in Firm Foundations, which proposes a national goal of building at least 35,000 new houses per year by the middle of the next decade. The planning system has a role in providing the framework for greater partnership working within and between local authorities and with other stakeholders to help realise that aspiration, and this is reflected in SPP3.
10. SPP3 incorporates annexes providing other closely-related policy advice and guidance. The Strategic Housing Need and Market Assessment ( SHNMA) guidance should be used by local authorities to assess housing need and demand, and will provide greater consistency and a more robust approach in the context of the Scottish Government's aspirations for new house-building. The guidance also recommends that local authorities should work together in housing market partnerships where appropriate. Firm Foundations encourages local authorities to co-operate regionally in setting realistic housing targets for housing market areas, and in enabling the delivery of these targets. The establishment of housing market partnerships will be a new challenge for some. Views are being sought through the consultation process on Firm Foundations as to how Partnerships may be established and supported. Annex A provides an overview of the key principles of the SHNMA guidance. The Scottish Government's policy is that local authorities should follow the process set out in the guidance. Annex A is not a substitute for the full guidance, which should be consulted when undertaking strategic housing need and market assessments.
11. Guidance on the interface between planning and the licensing of Houses in Multiple Occupation is also provided as an annex. This replaces Circular 4/2004: Guidance on the interface between planning control and licensing, and brings this guidance into the main policy statement on planning for housing. High densities of HMOs can have a damaging effect on the communities in which they are situated. Local authorities should consider the use of policies to set maximum densities of HMOs in particular areas as a way to manage HMO density and protect community amenity. This is a planning policy, and does not affect the licensing of HMOs.
Q1: Do you think that planning guidance on HMOs should be provided as an annex to SPP3 which replaces the existing Circular 4/2004?
12. SPP3 also provides guidance on good practice in the preparation of housing land audits. Annex C seeks to develop a more consistent approach to the preparation of housing land audits, including the interpretation of definitions and involvement of relevant organisations. It also enhances the status of the audit as a useful tool, not only in providing data to assess the available land supply and success in delivering the housing land requirements but also in identifying how blockages to the delivery of housing sites might be overcome.
Other relevant policy, guidance and advice
13. Planning for housing also requires careful consideration of other policy. This includes SPPs and PANs on fitting new developments into the landscape; transport and planning; renewable energy; micro-renewables; planning and natural heritage; housing quality; and planning in small towns. SPP3 sets out policy on planning for housing, but the wider planning policy framework, as well as the contribution of housing development to The Scottish Government's overarching purpose of promoting sustainable economic growth, must be taken into consideration throughout the process. The policy set out in SPP3 should also be followed in conjunction with appropriate environmental legislation, such as the Environmental Assessment (Scotland) Act 2005.
14. SPP3 focuses on guidance for planning for housing, and does not restate in detailed guidance and policy provided elsewhere. Nonetheless, SPP3 should be read in conjunction with other relevant policy, guidance and advice. Annex D compiles relevant policy and guidance from planning and other policy areas that should be consulted when working through the process set out in SPP3. The policy and guidance identified in annex D links to wider considerations, such as transport, renewable energy, sustainability, quality housing and design, all of which contribute to the achievement of high quality new housing developments in the right locations.
SPP Objectives
15. The key objectives of the SPP are to provide policy guidance on the:
- identification of housing need and demand on a more aspirational, but consistent and robust, basis;
- allocation of sufficient appropriate land to meet identified need and demand for housing, including affordable housing, across all tenures, and mechanisms to ensure those houses are built; creation of high quality residential environments; and
- interface between planning control and licensing of Houses in Multiple Occupation.
Q2: Do you agree that this revised structure, including the annexes, improves upon the existing SPP3? In what ways do you think the revised structure provides more effective guidance?
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