Housing and residential moorings

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30.1 Allocations for residential dwellings and residential moorings

Following the Call for Sites as part of the Issues and Options consultation held towards the end of 2022, the sites put forward were assessed against set criteria with stakeholders providing comments. The Housing and Economic Land Availability Assessment (HELAA) concluded if sites were suitable for development or not.

The following table shows the sites that are allocated for residential dwellings. It shows a total of 271 residential dwellings would be allocated. The need to be addressed in the Local Plan is 358 dwellings. Please note that permissions granted since April 2021 will count towards the need (21/22 period, 21 dwellings and 22/23 period, 3 dwellings - totalling 24 dwellings). The Authority will need to undertake another call for sites as part of this Preferred Options consultation. Please note that POSTO1 (4 dwellings), POTHU1 (16 dwellings) and POOUL2 (76 dwellings) already have planning permission and were not assessed in the HELAA but will still be included in the Local Plan until they are built out.

The following table shows the sites that are intended to be allocated for residential moorings. It shows a total of 53 residential moorings are allocated. The need to be addressed in the Local Plan is 48 residential moorings.

30.2 Housing and Residential Moorings Trajectories

The housing and residential moorings trajectories can be found at Appendix 11. These set out when development allocated in this Local Plan is estimated to come forward.

30.3 Call for Sites

We are undertaking a call for sites for residential dwellings, gypsy and traveller sites and residential caravans. This will require the provision of information and a form is available for you to fill in. This needs to be completed in full and submitted to the Broads Authority for assessment by 4pm 17 May 2024 (the date the consultation on the Preferred Options ends). We will work with stakeholders to assess any sites brought forward. We cannot guarantee that your site will be allocated as we may not deem it suitable for allocation in the Local Plan. We will set out our reasons for any decision we make. There are many constraints to development in the Broads.

• Policy POSP15: Residential development
• Policy PODM42: Affordable housing
• Policy PODM43: Residential development within defined Development Boundaries
• Policy PODM44: Gypsy, Traveller and Travelling Show People
• Policy PODM45: New residential moorings
• Policy PODM46: Permanent and temporary dwellings for rural enterprise workers
• Policy PODM47: Elderly and specialist needs housing
• Policy PODM48: Residential ancillary accommodation
• Policy PODM49: Replacement dwellings
• Policy PODM50: Custom/self-build

Policy POSP15: Residential development

Reasoned Justification

The Objectively Assessed Housing Need for the Broads is as follows:

For the avoidance of doubt, each element of the Broad’s Objectively Assessed Need identified in the table above for each of the six districts also forms part of each district’s objectively assessed need and is not additional to.

The residential moorings need is 48.

The Gypsy and Traveller need is <<to be included in next version of Local Plan>>

The NPPF at paragraph 11. b) requires Local Planning Authorities to meet the needs for housing, but the through the footnotes, protects the Broads as follows:

‘strategic policies should, as a minimum, provide for objectively assessed needs for housing and other uses, as well as any needs that cannot be met within neighbouring areas⁶, unless:

i. the application of policies in this Framework that protect areas or assets of particular importance provides a strong reason for restricting the overall scale, type or distribution of development in the plan area⁷; or

ii. any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole’.

Footnote 6 ‘As established through statements of common ground (see paragraph 27)’.

Footnote 7 ‘The policies referred to are those in this Framework (rather than those in development plans) relating to: habitats sites (and those sites listed in paragraph 187) and/or designated as Sites of Special Scientific Interest; land designated as Green Belt, Local Green Space, an Area of Outstanding Natural Beauty, a National Park (or within the Broads Authority) or defined as Heritage Coast; irreplaceable habitats; designated heritage assets (and other heritage assets of archaeological interest referred to in footnote 72); and areas at risk of flooding or coastal change’.

The Housing Target for the Local Plan for the Broads and how this will be met.

The Authority must balance the demands of meeting the housing needs and protecting the special qualities of the Broads. The Housing Target for the Broads is 358 net new dwellings as set out in POSP15. The housing need for the Broads is met in the following ways.

For residential dwellings

1. Completions and permissions between April 2021 and April 2023 as well as allocations in this Local Plan (that have not commenced). This shows a residual need of 58 dwellings.

1. A second call for sites

A call for sites was held during the Issues and Options consultation. Some sites for housing were put forward, but through the HELAA process, were deemed not suitable for development and consequently, not allocated in the Local Plan. This Preferred Options version of the Local Plan contains another call for sites.

1. Cooperating with Neighbouring Districts

Depending on the outcome of the second call for sites, it may be that the Authority works with the Districts in relation to meeting the outstanding need for housing in the Broads. It is important to note that the need for the Broads is part of the need for the districts, and not additional to.

For Residential moorings

The following table shows the sites that are allocated for residential moorings. It shows a total of 53 residential moorings would be allocated. The need to be addressed in the Local Plan is 48 residential moorings.

For Gypsy and Traveller sites:

<<to be updated in next version of Local Plan. A call for sites for Gypsy and Traveller sites is being held as part of the consultation on this version of the Local Plan>>

Affordable housing

The provision of affordable housing is a key issue in local communities, particularly in rural areas where sites appropriate for development may be limited or may fail to meet sustainability criteria. In the Broads, this is exacerbated by the limited availability of land due to flood risk and the demand for second/holiday homes that inflates land and property prices and is a disincentive for the provision of lower cost housing.

The requirement for a percentage of properties within a development to be ‘affordable’ is an established mechanism used by planning authorities to achieve provision of social housing (see Developer Contributions section of the Local Plan). This mechanism, however, is not easily applied within the Broads, as development is of a small-scale and is often individual properties, and larger sites that trigger such a requirement come forward rarely. See Policy PODM42 for more information.

Developers are encouraged to use Rural Housing Enablers to carry out Local Housing Needs Surveys where affordable housing contributions for local need will be sought.

Type

Because the Broads Authority is not the Housing Authority for its planning area, it will work closely with its districts who undertake this function to determine the type of housing that needs to be delivered in a certain area.

Project level HRA

all development will need to ensure compliance with Policies in the natural environment section to ensure compliance with the habitats regulations or to ensure no adverse impacts on the site integrity of any habitat site alone or in-combination.

Location of development

The policy approach will be to prevent residential development beyond settlements other than in exceptional circumstances, or which accords with the Authority’s statutory purposes. Development within settlements will be permitted only where it meets criteria covering issues such as flood risk, satisfactory provision of infrastructure, and design.

If needed, the criteria used to assess settlements in the Settlement Study^[126] as well as that relating to access to services and facilities in the Housing and Economic Land Availability Assessment (HELAA)^[127] will be used to determine sustainable patterns of development.

In most cases, settlements in the Broads straddle the Broads boundary, and the greater part of the settlement lies within the neighbouring local planning authority’s jurisdiction. Because of the national protection afforded to the Broads and the vulnerability to flooding of most of the Broads area (the boundary generally follows the edge of the flood plain), it will usually be the case that both the greatest need and greatest opportunity for development in any settlement straddling the boundary will be in that part of it outside the Broads.

The spatial strategy aims to ensure that communities across the Broads continue to thrive and are economically resilient, environmentally sustainable, socially mixed and inclusive. The spatial strategy is the overall framework for guiding development across the Broads, determining in what general locations and settlements different kinds of development will be encouraged or restricted. It offers the most sustainable way to accommodate housing in the Broads as:

• it makes the best use of previously developed land;
• it places new residents in close proximity to jobs, shops, leisure and cultural facilities and public transport nodes to support sustainable lifestyles; and
• it regenerates some of the more run-down areas around the Broads.

Five-year land supply on adoption of the Local Plan

This will follow in the Submission version of the Local Plan.

Reasonable alternative options

No policy

Original policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Policy – Preferred Option. 6 positives. 0 negatives. 0 ? Overall, positive.

B: No policy. 0 positives. 0 negatives. 6 ?

C: Original policy. 6 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have generally been in conformity with it.

Why have the alternative options been discounted?

The policy needs updating to reflect the various different housing needs, the stepped trajectory and referring to nutrient enrichment and recreational impacts; these are factual updated. Other changes, like referring to the loss of homes and including more text on residential moorings and gypsy and travellers is prudent and preferred.

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Policy PODM42: Affordable housing

Reasoned Justification

The NPPG notes that affordable housing need is based on households “who lack their own housing or live in unsuitable housing and who cannot afford to meet their housing needs in the market”.

It is accepted that the Broads Authority defers to the affordable housing policy of its constituent District Councils, as this gives consistency across a district. As the Authority is not the Housing Authority, it works closely with its constituent District Councils who undertake the housing function for the Broads Authority Executive Area.

The NPPF definition of affordable housing will apply in implementing this policy.

Delivering affordable housing in the Broads

There is a very limited supply of suitable sites in the Broads for housing to meet local affordable housing need due to the protected landscape of the area, and to the extent and severity of flood risk. In addition, the high demand for second/holiday homes inflates land and property prices and provides a disincentive for the provision of lower cost housing.

In recent years (between April 2019 and March 2023), applications for dwellings have tended to be in the region of on average 2.18 dwellings per application^[131] (according to an assessment of the Authority’s planning applications). The NPPF2023 says that ‘Provision of affordable housing should not be sought for residential developments that are not major developments other than in designated rural areas (where policies may set out a lower threshold of 5 units or fewer)’. Presuming that the current trend of size of housing applications continues (windfall), it is unlikely that affordable housing will be delivered through windfall schemes.

Regarding seeking commuted sums on 6-9 dwellings, the Broads part of North Norfolk is designated as a rural area and so, according to the NPPG, it can seek planning obligations and affordable housing commuted sum contributions from schemes of that size. The policy goes further to apply the commuted sums approach to all 6-9 dwelling sized schemes in the entire Broads area. This is because the opportunities for schemes of 9+ dwelling are significantly diminished by the rural character of the area and the environmental constraints. However, there is a clear need for affordable housing and all possible reasonable measures should be taken to address the deficiency. To be clear, the policy goes further than the NPPF by requiring off-site contributions to affordable housing for schemes of 6 to 9 dwellings. None of the districts relevant to the Broads seek affordable housing on schemes of 9 or below and their policies will reflect this^[132] . It should be noted that as part of the next version of the Local Plan, the viability assessment will test the threshold that is currently set at 6-9 dwellings.

The policy applies to all net new homes (excluding holiday accommodation with occupancy conditions^[133] ) permitted anywhere in the Broads Authority Executive Area, in line with the thresholds set out in the policy and the districts’ policies.

The Authority will use the relevant Council’s approach/methodology for the calculation of affordable housing contributions. The Authority will liaise with the relevant Council to prioritise spend which will likely be first in the parish which generated the commuted sums, then to the adjoining parishes, and then to anywhere in the Council area and the Authority/District will have ten years to spend or commit the monies. The Authority will however have regard to the approach of the relevant district council in where the money is spent and for how long the money is held.

Assessing viability

Working with the relevant District Council and having regard/deferring to their policies, a viability appraisal may be required. The independent review process will require the applicant to submit a site-specific viability appraisal (to include a prediction of all development costs and revenues for mixed use schemes) to the Authority’s appointed assessor. They will review the submitted viability appraisal and assess the viable amount of affordable housing or the minimum number of market homes needed to cross subsidise the delivery of affordable housing on a rural exceptions site. This review shall be carried out entirely at the applicant’s expense. Where little or no affordable housing would be considered viable through the appraisal exercise, the Authority will balance the findings from this against the need for new developments to provide for affordable housing. In negotiating a site-specific provision with the applicant, the Authority will have regard to whether or not the development would be considered sustainable in social terms.

Information to accompany an application

Developers advancing specific proposals that incorporate an element of affordable housing should submit an affordable housing statement alongside their application. This should provide information on the number of affordable residential units, the mix of affordable units in terms of type, tenure (intermediate/ social or affordable rented) and size (number of bedrooms and gross floor space), and the arrangements for managing the affordable housing units. This statement is also required to explain and justify the layout and location of the affordable housing element of a scheme. The Authority expects applicants to liaise with Registered Providers and the Housing Teams of the relevant district council to get advice and recommendations regarding the layout (although the Broads Authority will be the determining body).

Rural exception sites

The applicant will be required to submit evidence showing how the proposed scheme meets local housing need. The Affordable Housing policy states that ‘Some of the dwellings proposed may be market dwellings if this is fully justified…’ when referring to affordable housing schemes outside of development boundaries. This is in keeping with the NPPF definition for rural exception sites ‘small sites used for affordable housing in perpetuity where sites would not normally be used for housing. Rural exception sites seek to address the needs of the local community by accommodating households who are either current residents or have an existing family or employment connection. A proportion of market homes may be allowed on the site at the local planning authority’s discretion, for example where essential to enable the delivery of affordable units without grant funding’.

How ‘small numbers’ is defined will reflect the specifics of the scheme but will be a small proportion of the scheme. Furthermore, the relevant District Council’s policies and approaches will be of relevance. Applications need to fully justify the proposed market housing element (the split between market and affordable) of rural exception site schemes through the submission of a site-specific viability appraisal. Only the minimum number of market homes required to provide the cross subsidy needed to deliver the affordable homes will be permitted. See ‘assessing viability’ section of the reasoned justification to this policy for more information.

Using planning obligations

So that all affordable housing remains affordable to the local community in perpetuity, planning obligations will be sought to ensure that the initial and successive occupation of the dwellings is restricted to people with a housing need. In relation to exception housing sites, the planning obligations will include the requirement that the homes are prioritised for occupiers who have strong local connections, as demonstrated by the relevant Council’s local connection criteria for such schemes, and who need to live in the immediate area. This will include people who need to live in the Broads because of their current employment, and existing residents needing separate accommodation in the area (for example people in housing need due to sub-standard, overcrowded or otherwise unsuitable accommodation). Please note that starter homes will be delivered in line with specific regulations applicable at the time of application.

Offsite provision

Financial contributions in lieu of on-site provision (for schemes of ten or more dwellings) will only be acceptable in exceptional circumstances, where the Authority is satisfied that an element of affordable housing either could not practically be accommodated on site, or if it can be demonstrated that on-site provision would be unviable. In all cases, planning obligations will be sought to ensure an appropriate contribution to affordable housing is secured.

Please note, however, the requirement for off-site contributions for developments of 6-9 dwellings (as discussed in the policy and under ‘Delivering affordable housing in the Broads’ section of the reasoned justification to this policy). It should be noted that as part of the next version of the Local Plan, the viability assessment will test the threshold that is currently set at 6-9 dwellings.

Starter Homes

According to the Housing and Planning Act (2016)^[134] a ‘starter home’ means a building or part of a building that—

1. is a new dwelling,
2. is available for purchase by qualifying first-time buyers only,
3. is to be sold at a discount of at least 20% of the market value,
4. is to be sold for less than the price cap, and
5. is subject to any restrictions on sale or letting specified in regulations made by the Secretary of State (for more about regulations under this paragraph, see section 3).

The Act goes on to say that “an English planning authority must carry out its relevant planning functions with a view to promoting the supply of starter homes in England” and “local planning authority in England must have regard to any guidance given by the Secretary of State in carrying out that duty”. The Act also defines the various elements to starter homes.

Starter homes will be required in line with national policy and will reflect the relevant Council’s policy requirement for such homes.

Habitats Regulations Assessment

If a proposal is considered in the context of this policy to potentially have an effect on habitat sites, then it will need to be considered against the Habitats Regulations and a project level Appropriate Assessment will need to be undertaken. Depending on the location of the scheme, there may be a need to mitigate recreation impact and nutrient enrichment.

Reasonable alternative options

Original policy

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Keep original policy: 2 positives. 0 negatives. 0 ? Overall, positive.

B: Amended policy: 5 positives. 0 negatives. 0 ? Overall, positive.

C: No policy: 0 positives. 0 negatives. 5 ?

How has the existing policy been used since adoption in May 2019?

Due to the size of schemes in the Broads, this policy has not been used that often. But it has been used when the thresholds have been met.

Why has the alternative option been discounted?

The amendments to the policy provide detail and add clarification to the policy and make it stronger.

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Policy PODM43: Residential development within defined Development Boundaries

Constraints and features

Oulton Broad

• Area is within Oulton Broad Conservation Area
• High potential for archaeological remains in the area
• Flood risk (mainly zone 1, plus some 2 & 3, by EA mapping and mostly 1 with some 2, 3a and indicative 3b using SFRA 2018)
• Nearby listed buildings

Thorpe St Andrew

• Area is within Thorpe St. Andrew Conservation Area
• Flood risk (mainly zone 2, some zones 1 & 3, by EA mapping and mostly 1 with some 2, 3a and modelled 3b using SFRA 2017)
• The bounded area includes safeguarded minerals (sand and gravel) resources, but the Minerals Planning Authority has advised this is unlikely to constrain the type and scale of development supported by the Policy
• Large number of listed buildings

Wroxham and Hoveton

Close to SPA and SAC
• Lies partly within Wroxham Conservation Area
• Flood risk (mainly zone 3 by EA mapping, and partly zones 1 & 2 and 1, 2, 3a and indicative 3b using SFRA 2017)
• The SFRA shows almost all of the area is at risk of flooding
• Capacity of minor roads in the area
• Wroxham Bridge is a Scheduled Monument
• The Grange - Grade II listed

Reasoned Justification

The purpose of a Development Boundary is to consolidate development around existing built-up communities where there is a clearly defined settlement and where further development, if properly designed and constructed, would not be incongruous or intrusive because of the size of the settlement. Development Boundaries have the twin objectives of focusing most of the development towards existing settlements while also protecting the surrounding countryside.

Early in the evolution of the Broads Local Plan, consideration was given to the merits of not having development boundaries, but it was concluded that they are a useful tool in promoting sustainable development in the Broads.

Development is directed to areas with Development Boundaries as listed in the policy and defined on the Local Plan Policies Map. Development in these areas could be acceptable, notwithstanding other policies, constraints, and other material considerations. It is important to note that just because an area has a Development Boundary, it does not mean that all proposals for development in the area are necessarily acceptable. The sensitivities of the Broads in terms of biodiversity, landscape, cultural heritage, and flood risk mean that careful consideration must be given to the appropriateness of developing a site, and each proposal will be determined against this and other policies of the Plan. Outside the defined Development Boundaries, new residential development will not be permitted except in the circumstances defined in the other housing policies.

To support the Authority’s approach, a Development Boundaries Topic Paper and a Settlement Study have been produced. This work assesses the suitability of settlements for Development Boundaries and seeks to justify why the three areas (Oulton Broad, Thorpe St Andrew and Wroxham and Hoveton) have Development Boundaries.

Development Boundaries are also important for residential moorings. One of the key criteria of policy PODM45 relates to the mooring being within or adjacent to a Development Boundary (a Broads Authority Development Boundary or one of our constituent Councils’). The Authority also regards other sites as suitable for residential moorings that are not adjacent to Development Boundaries.These sites, which are allocated in the Local Plan, are in Brundall (POBRU6), Loddon and Chedgrave (POLOD1 and POCHE1) Gillingham (POGIL1), Somerleyton (POSOM1) and Stalham (POSTA1). While the sites covered by these policies are not deemed suitable for Development Boundaries to reflect constraints on the land, they are still accessible to services and facilities that make them suitable for residential moorings.

Some development proposals could be acceptable outside of Development Boundaries in exceptional circumstances, although this will depend on detail, constraints in the area and accordance with other adopted policies and the NPPF, such as PODM46 (dwellings for rural enterprises) and PODM49 (replacement dwellings).

If a proposal is considered to potentially have an effect on a habitat site, it will need to be considered against the Habitats Regulations and a project level Appropriate Assessment undertaken. With respect to recreation impacts, development would need to mitigate, and this would most easily be done by paying either the Norfolk or Suffolk Coast RAMS tariff (and depending on scale, there may be a need for green infrastructure provision). Proposals for development in Thorpe St Andrew and Wroxham and Hoveton face nutrient enrichment issues and mitigation will be required.

Development Boundary for Hoveton and Wroxham

This combined area is one of the largest concentrations of development, population, and services in the Broads. It has a range of shopping, employment opportunities, leisure and health facilities and relatively frequent rail and bus services. Although there is little undeveloped land (aside from gardens and public spaces), there has long been a gradual renewal and replacement of buildings and uses within the area, and there is a limited number of derelict or underused sites ripe for redevelopment. The development boundary excludes areas identified as open space and includes boatyards and other development on the south (Wroxham) bank. It also complements the Hoveton Town Centre policy (POHOV5) to continue the focus of retail and related development in the village centre. Parts of the area are at risk of flooding. The relevant Local Plan and National Planning Policy Framework Policies will apply, and a site flood risk assessment may be required to establish the degree of risk.

Development Boundary for Oulton Broad

Together with Lowestoft, the area has a wide variety of services, facilities, and employment opportunities. Although most of these are at some distance from the area under consideration, there is a bus service, and the distances involved mean walking and cycling are feasible options. The development boundary has been drawn to generally exclude the edge of the Broad except where there is already significant built development. This is to discourage building on the waterfront for flooding and landscape reasons, and to encourage continuance of the overall level of trees and planting that provides an important part of the setting of the Broad and contributes to its value for wildlife. Parts of the area are at risk of flooding. The relevant Local Plan and National Planning Policy Framework Policies will apply, and a site flood risk assessment may be required to establish the degree of risk. In the light of the potential for archaeological remains in the area an archaeological survey may be required in advance of any grant of planning permission.

Development Boundary for Thorpe St Andrew

Only part of the south side of Yarmouth Road in Thorpe St Andrew is within the designated Broads area. Elsewhere, Broadland District Council is the local planning authority, and this part of Thorpe St Andrew is urban in character. Thorpe itself has a range of facilities and services, including employment opportunities and good public transport links to the extensive facilities of Norwich (also within cycling distance). Although there is a range of buildings and uses within the identified boundary, in practice it is not anticipated that there will be a great deal of development in the foreseeable future. The development boundary provides additional scope for some redevelopment if opportunities arise, subject to flood risk - the relevant Local Plan and National Planning Policy Framework Policies will apply, and a site flood risk assessment may be required to establish the degree of risk.

Reasonable alternative options

There seems to be two reasonable options to consider when producing the development boundary policy:

Criteria based development boundary policy – would not use a spatial approach but use a criteria-based approach.

Spatial approach – using boundaries on a map.

To not have a policy that sets out where development could be located is seen as an unreasonable alternative.

In terms of actual locations for development boundaries, other than the four included in the policy, Brundall was considered.

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Criteria-based development boundary policy: 0 positives. 0 negatives. 8?

B: Plan based development boundary policy: 7 positives. 0 negatives. 1 ? Overall positive

The following is a summary of the assessment of the areas that could have a development boundary.

Brundall: 4 positives. 2 negatives. 4?

Horning: 7 positives. 1 negative. 2 ?

Hoveton and Wroxham: 8 positives. 0 negatives. 2 ?

Oulton Broad: 8 positives. 0 negatives. 2 ?

Thorpe St Andrew: 8 positives. 0 negatives. 2 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used regularly. Some schemes have been permitted outside of the development boundaries due to other material considerations.

Why has the alternative option been discounted?

On one hand, removing development boundaries in the Broads Authority Executive Area could be treating the whole area of The Broads as being in the open countryside which could help protect the character of The Broads area. On the other hand, it will not be possible to influence the location of development to built up/urban areas that have key services which could result in isolated dwellings. Indeed, development boundaries is a tried and tested policy approach. The Local Plan will also enable any development that is needed to come forward in more remote areas to do so, for example through rural enterprise dwellings and replacement dwellings. Development boundaries will also provide certainty to all involved as to where development is suitable in theory.

A development boundary for Brundall has not been taken forward because of the highways concerns.

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Policy PODM44: Gypsy, Traveller and Travelling Show People

Reasoned justification

This criteria-based policy enables the Authority to assess any applications that may come forward for such sites. The justification for each of the criteria in the policy is discussed below.

Location of sites

Sites in or near to existing settlements are prioritised. Such sites are generally more sustainable than those in remote areas, with better access to services, in particular education and health services. The Authority’s preference would be for well related sites located in and near to settlements with a development boundary (either in the Broads Authority Executive Area or in one of our constituent district council’s areas), and/or classed as local service centres and above in the settlement hierarchy of our constituent districts. The priority will be that access to services can be reasonably obtained so as to meet the day to day needs of the occupiers, recognising the differences in lifestyles, working patterns and transport preferences. The criteria used in the Settlement Study could be used to determine how well related to settlements proposals are.

To provide a healthy and safe environment for occupiers, sites should not be located on contaminated land and should avoid areas of unsuitable noise, air quality and major hazards such as pipelines. In line with adopted amenity, tranquillity and light pollution policies, the proposals should not have a negative impact on neighbours and tranquil areas and should have appropriate lighting that does not add to light pollution.

Previously developed/brownfield land

National planning policy encourages planning policies and decisions to encourage the effective use of land by re-using previously developed land (brownfield land), provided that it is not of high environmental value. The Authority encourages the use of brownfield land for development ahead of greenfield land. Other policies in the Local Plan may be of relevance in this regard such as landscape character impact, impact on peat and high quality agricultural land.

Access

Gypsy and Traveller sites are required to have safe and convenient vehicular access and provide adequate car parking space. The development should avoid significant impacts on local roads and be well located to major routes.

Screening and impacts of proposals

The Broads has a wealth of environmental assets, and site locations must not compromise the objectives of any designated areas.

The local topography and form of the landscape will affect the visibility of a Gypsy and Traveller site and its ability to integrate into its surroundings. Some sites will be highly visible, and others more visually contained. The Broads is a protected landscape and sites should respect the local environment, including the historic environment, be of a scale proportionate to the local community and be capable of visual privacy. Sites which allow appropriate natural screening will be considered more favourably. Other relevant policies of the Local Plan are policy PODM20 on Landscape, policy PODM51 on Landscaping and policy PODM25 on Settlement Fringe.

Proposals shall not enclose a site with so much hard landscaping, high walls or fences, that the impression may be given that the site and its occupants are deliberately isolated from the rest of the community.

Service infrastructure

To meet the needs of occupiers, proposals need to be capable of being served by appropriate service infrastructure, including public and/or private water supplies and treatment works as appropriate (see policy PODM4 on Water Quality).

Planning conditions

Any planning permission will include a planning condition or obligation to ensure that occupancy of the site is limited to persons able to demonstrate an essential need for the accommodation. When any temporary permission is granted, a planning condition will be attached or an obligation secured to ensure that the permission is for a limited time period, after which time the use shall cease and the land must be restored to its former condition, within a specified period.

Flood risk

Caravans and mobile homes are vulnerable to flooding. National and local policies dictate that sites should not be allocated in areas of high risk of flooding, including that of functional flood plains. Policy PODM7: Development and flood risk could be of relevance because any Flood Risk Assessment for such accommodation would need to show how the safety of the occupants would be managed and ensured, considering the transient nature of the site and its potential effects on the occupant's ability to receive flood warnings.

Need

It should be noted that work to assess the need for the rest of the Broads Authority Executive Area will commence around April 2024 and will inform the next version of the Local Plan. There is a Call for Sites form for any Gypsy and Traveller sites – see section 13.1.

The Government’s Planning Policy for Traveller Sites document states ‘where there is no identified need, criteria-based policies should be included to provide a basis for decisions in case applications nevertheless come forward. Criteria based policies should be fair and should facilitate the traditional and nomadic life of travellers while respecting the interests of the settled community’. The policy refers to there being an identified need in order for sites to be considered within the Broads. This need could be identified through a local survey or through liaison with the district’s housing team.

Reasonable alternative options

No policy

Original policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Policy – Preferred Option. 13 positives. 0 negatives. 0 ? Overall, positive.

B: No policy. 0 positives. 0 negatives. 13 ?

C: Original policy. 11 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has not been used.

Why have the alternative options been discounted?

The amendments follow the Planning Policy for Traveller Site as well as referring to nutrient enrichment, recreation impacts and biodiversity considerations and is favoured as it updates the policy and provides more detail.

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Policy PODM45: New residential moorings

Reasoned Justification

The Authority acknowledges that the high environmental quality of the Broads and wide range of opportunities it offers for boating make the area a popular location. As a consequence, there is a significant associated demand for residential moorings. The provision of residential moorings must, however, be carefully managed to make sure the special qualities of the Broads and their enjoyment are protected.

Preventing the loss of visitor/short term moorings.

Tourism makes a valuable contribution to the local economy, and a statutory purpose of the Broads is to provide opportunities for the understanding and enjoyment of the special qualities of the area by the public. To make sure there are sufficient facilities to allow visitors to enjoy the Broads, the Authority will resist proposals for permanent residential moorings where they would result in the loss of visitor/short term moorings or boatyard services.

Lighting and dark skies.

The provision of residential moorings could result in additional lighting. The impact of artificial light on local amenity, intrinsically dark landscapes and nature conservation should be minimised as schemes are likely to be on the edge of settlements and the Broads is generally as area of good dark skies – see policy PODM27.

Key services and access to facilities.

To ensure that people living on boats have access to adequate facilities and services such as education, recreation, and domestic waste collection, and to minimise impact of new development on landscape character, the Authority will require new residential moorings to be directed to mooring basins, marinas or boatyards within walking distance of at least three of the key services listed below or in or adjacent to defined development boundaries (which could be within the Broads Authority Executive Area or in the planning area of our constituent districts). Residential moorings may also be appropriate on parts of the river in Norwich, subject to other policy considerations in particular the impact on neighbouring uses and impact on navigation of the river. Proposals for residential moorings will be expected to be commensurate in scale with the size of the settlement and the level of residential development proposed for the settlement by the relevant Local Planning Authority. Furthermore, converting an entire marina, basin or boatyard, or in Norwich the entirety of the riverbanks, may not be appropriate because of the potential impact on neighbouring uses and infrastructure in the area, as well as the consequences of the loss of the facility for non-residential boaters; the Authority will consider such proposals on a case-by-case basis.

The key services referred to in the policy could be three or more of the following. These key services reflect the Housing and Economic Land Availability Assessment methodology:

• A primary school
• A secondary school
• A local healthcare service (doctors' surgery)
• Retail and service provision for day-to-day needs (district/local shopping centre, village shop)
• Local employment opportunities which are defined as follows, which reflect areas with potentially a number of and variety of job opportunities:
  • Existing employment areas allocated/identified in our districts’ Local Plans; or
  • City, Town or District Centre as identified in the Local Plan for the Broads or our District’s Local Plan. We note that this means such centres count towards two of the three key services test; or
  • These sites that are allocated in the Local Plan for the Broads: POBRU2, POBRU4, POCAN1, POHOR6, POPHRB1, POSTA1, POTSA3.
• A peak-time public transport service to and from a higher order settlement (peak time for the purposes of this criterion will be 7-9am and 4-6pm)

Residential moorings and the natural environment.

Residential moorings that have the potential to affect a protected site or species will only be permitted where a project level Appropriate Assessment (under the Habitats Directive) can successfully demonstrate that there are no adverse effects on qualifying features on the site or a detrimental impact on the species. Schemes may need to mitigate recreation impacts, and this is most easily done through paying the GI RAMS tariff. In terms of nutrient enrichment impacts, the Broads Authority will assess the location of any scheme and whether there is a need to mitigate impacts which will probably be through Nutrient Neutrality.

Depending on the details of the scheme, they may need to meet Biodiversity Net Gain requirements. That being said, schemes that are changing the use of existing moorings to residential moorings are not likely to result in any habitat degradation and so BNG may not be a requirement.

Schemes may be required to provide biodiversity enhancements in line with policy PODM14 on the Natural Environment as there are likely to be significant opportunities for waterside biodiversity enhancement.

Management of moorings and surrounding land.

Where permission is granted for a new permanent residential mooring, planning conditions and/or obligations will be used to secure agreements for the management of the mooring and surrounding land. This will be done to protect visual and residential amenity and make sure the use of residential moorings does not compromise public safety. The use of surrounding land for incidental purposes such as storage and seating can have a negative impact if incorrectly managed. Proposals will need to set out how they will address areas for the drying of clothes and amenity space, as well as any other related facilities for those living on the boats. In terms of storage, the form, design, and location will be important in understanding any impacts on the character of the area. The Authority does not expect marinas and boatyards to subdivide or demarcate areas of land to be associated with residential moorings. Policy PODM62 provides guidance on the forms of development permissible on the adjacent waterside environment associated with a mooring.

Management Plan

The policy requires a management plan for the site as well as a register of those boats being lived on. These will be required through conditions on planning application(s). The management plan will help ensure the site as a whole is appropriately managed. This would normally cover things like noise, waste, delivery times etc. and would have contact details of who to contact if the management requirements of the site are not adhered to. A breach of this management plan would then be a breach of condition and could be enforced. The register of who lives on which boat will be maintained at all times. The Authority has produced a Residential Moorings Guide that includes a section on Management Plans.

Definition of a residential mooring and what can moor there.

For the purposes of this policy, a ‘residential mooring’ is a mooring where someone lives aboard a vessel, the vessel is capable of navigation, where the vessel is used as the main residence, and where the vessel is moored in one location for more than 28 days in a year. The vessel may occasionally/periodically go cruising and return to base. For the purposes of this policy, it should be noted that there is an expectation that the moorings will be occupied by a vessel of standard construction and appearance, and which is conventionally understood to be a boat.

Houseboats and lodges or other structures that float.

Houseboats and lodges or other structures that float are structures without means of independent propulsion. They are not considered to be vessels for the purposes of this policy. They may also be considered differently in terms of flood risk when compared to more traditional boats that are lived on. Any such proposals will be dealt with on a case-by-case basis due to their potential impact on character of the area. This policy on residential moorings may be used to help determine the acceptability and suitability of such schemes.

Flood risk.

Whilst the Authority acknowledges that boats float, there are some issues that could arise with boats being lived on at times of flood. A Flood Risk Assessment will be required and proposals for residential moorings must ensure they have adequately considered the following:

1. The technique/method of mooring the vessel. The Flood Risk Assessment (FRA) should show how the boat will be moored to prevent it being too tight or too loose. If the vessel is moored too tightly it could list, and by being too loose it could float onto the landside of the quay heading or be cast adrift at times of flooding. Both scenarios have safety concerns for occupiers, possessions and other objects or vessels that could be hit by a loose boat and should be addressed within the FRA.
2. A Flood Response Plan needs to be produced. While it is acknowledged that residential boats will float, the access to the boat could be disrupted at times of flood, causing the occupier to be stranded on board the boat. The Flood Response Plan needs to advise what the occupier should do at times of flood to ensure their safety - whether they should evacuate the boat in advance of flooding or take refuge in the boat and therefore have supplies to help them sit out the flood. See Appendix 6: Flood response plan guidance and structure.
3. Finally, the FRA should include consideration of how the boat moored at the residential mooring will be monitored at times of flood to make sure it does not cause damage to other vessels, and to prevent damage to the belongings on board and the boat itself.

Additional information

The Broads Authority has produced a guide to help make schemes for residential moorings as successful as possible.

HSE Safety in docks ACOP (www.hse.gov.uk/pubns/books/l148.htm) is applicable to Marinas and will set out the minimum standards expected in relation to the safety provision.

Meeting the need for residential moorings

The Accommodation Needs Assessment completed in August 2022^[136] identifies a need for 48 residential moorings. This figure needs to be interpreted with some caution, as it is based on limited interviews with boat dwellers and on anecdotal estimates rather than a comprehensive count or survey of the people who live on boats.

The study also indicates that those living on boats do so from choice, rather than from an ethnic background, and that most are single people or childless couples.

The Local Plan seeks to address the need for residential moorings by allocating sites for residential moorings to meet the need. See polices POBRU6, POCHE1, POLOD1, POSOM1 and POSTA1 . It is important to note that whilst those sites have their own policies, they will also need to address the criteria in this general policy on residential moorings.

Reasonable alternative options

The original policy, with no amendments.

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 11 ?

B: Keep original policy: 7 positives. 0 negatives. 0 ? Overall, positive.

C: Preferred Option - amend policy: 11 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have been determined in accordance with the policy.

Why has the alternative option been discounted?

We need to assess and then meet the need for residential moorings as we produce this local plan. Therefore, it is appropriate to have a policy that identifies and addresses issues that could arise because of schemes for residential moorings. Therefore, to not have a policy has been discounted. In terms of the amended policy, this reflects use over the previous years as well as emphasises the importance of considering flood risk, impact of storage and lighting as well as referring to nutrient enrichment and recreation impacts that need mitigating. The amended policy is therefore preferred.

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Policy PODM46: Permanent and temporary dwellings for rural enterprise workers

Reasoned Justification

The erection of dwellings outside defined development boundaries has the potential to have a negative impact on the openness and special character of the Broads. Rural Enterprise dwellings outside development boundaries will require special justification for planning permission to be granted. The NPPF states one such example as accommodation required to enable agricultural, forestry and certain other full-time rural workers to live at or nearby their place of work.

For the purposes of this policy, the term ‘rural enterprise workers’ relates to those who work in agriculture, horticulture, forestry, tourism and boatyards and other enterprises that require a rural location. Any application would need to fully justify why it considers the dwellings to be linked to a rural enterprise.

Proposals that support the proper functioning of rural enterprises will generally be supported because of the contribution such enterprises make to the local economy. However, to protect the landscape character of the Broads, as well as considering the issue of dwellings isolated from services and facilities, rural enterprise worker dwellings will only be permitted where there is a demonstrable need for a full-time worker to live at or very close to the site of their work, and that this functional need cannot be met by an existing dwelling on the site or in the locality.

When judging locality, the Authority will consider the requirement of the business for an employee to live nearby, and a reasonable distance to travel to the business. This will vary on a case-by-case basis, and an application should explain what distance is appropriate and why.

To make sure the demand for a dwelling is likely to be sustained, proposals must be accompanied by evidence to demonstrate that the business has been established for at least three years, profitable for at least one of them, currently financially sound and with a clear prospect of remaining so. A business plan for the subsequent three years will assist in assessing the future prospects.

Any proposals to convert buildings to a rural enterprise dwelling (criterion e) will be considered against the relevant conversion policies in the Local Plan. When looking at dwellings that already exist nearby (criterion d), properties available for rent need to be considered as well as those available to buy, and it should be demonstrated what price the enterprise can reasonably afford. Properties that are outside of the Broads Authority Executive Area (but nearby) will also need to be considered.

Any new dwelling permitted under this policy will be restricted in size and scale to one which is commensurate with the needs of the enterprise, so that the proposal does not have an unacceptable impact on the special landscape character of the Broads. The cost of constructing the dwelling in relation to what can be afforded by the enterprise is an important consideration, as the erection of a dwelling should not affect the finances such that the enterprise would no longer be financially viable. Permitted development rights for future extensions and alterations may be removed to maintain control over the size of the dwelling, and in the interests of protecting the landscape and local character.

If a proposal is considered in the context of this policy to potentially have an effect on a habitat site, it will need to be considered against the Habitats Regulations and a project level Appropriate Assessment undertaken. The policy raises recreation impacts and nutrient enrichment as two issues which may need mitigation, depending on the location. For both nutrient enrichment and recreation impact, given the small-scale nature of rural enterprise dwellings, this may easily be mitigated through the RAMS payments that are in place as well as through nutrient neutrality mitigation schemes.

Applicants should be aware that the Authority will use appropriate external expertise when necessary to assess the more technical information needed to accompany proposals. The independent review shall be carried out entirely at the applicant’s expense - the applicant will need to meet the cost of this.

Where a new dwelling is permitted, the occupancy will be restricted by condition to ensure that it is occupied by a person, or persons currently or last employed working in local agriculture, horticulture, forestry and other rural activities, or their surviving partner or dependant(s).

Because of changing farm practices, the vulnerability of the agricultural sector and potential decline in other rural businesses, there may be instances where a dwelling or mooring for a rural worker is no longer needed. The Authority will only consider favourably applications to remove occupancy conditions where it can be demonstrated that there is no longer a need for the dwelling on the particular enterprise on which the dwelling is located, either due to changes in the nature of the business or because the business is no longer viable. Applications for the removal of occupancy conditions will also need to be accompanied by robust information to demonstrate that unsuccessful attempts have been made, for a continuous period of at least 12 months, to sell or rent the dwelling at a reasonable price. This should take account of the occupancy condition, including offering it to a minimum of three local Registered Social Landlords operating locally on terms which would prioritise its occupation by a rural worker as an affordable dwelling, and that option has been refused. With regards to criterion j), unless there are special circumstances to justify restricting the dwelling to the particular enterprise where the dwelling is located, an occupancy condition is likely to allow occupation by other workers in the locality. In this case it should be considered whether there is other demand locally, not just whether the demand for this particular enterprise has ceased.

Proposals for a temporary mobile home or residential mooring for rural workers will only be permitted for a period of up to three years. To protect the landscape character of the Broads, a planning condition will be attached to any permission to ensure that any mobile home or vessel is removed at the end of this three-year period.

The NPPG lists caravans and mobile homes for permanent occupation as a ‘highly vulnerable’ use. Accordingly, a proposal to site a caravan or mobile home in an area defined as being within Flood Zone 3 will be contrary to the NPPG on flood risk.

The policy highlights the need for the scheme to ensure Biodiversity Net Gain in line with national policy and policy PODM15.

The design of the development shall meet the requirements of the Design Guide and design policy PODM51.

Reasonable alternative options

No policy.

Amended, preferred policy.

The original policy, with no amendments.

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 9 ?

B: Preferred Option: 6 positives. 2 negatives. 1 ? Overall, positive.

C: Original policy: 5 positives. 2 negatives. 1 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have been determined in accordance with the policy.

Why have the alternative options been discounted?

There are some rural enterprises in the Broads that benefit from workers living on site and given the general principle of isolated dwellings tending to not be appropriate, a policy that support them in this instance, subject to specific criteria seems logical. The amendments improve the formatting of the policy, as well as address the issues of design, RAMS, nutrient neutrality, and biodiversity net gain and are therefore considered appropriate.

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Policy PODM47: Elderly and specialist needs housing

Reasoned Justification

This policy reflects the ageing population of the Broads Authority Executive Area. The NPPG says ‘older people have a wide range of different housing needs, ranging from suitable and appropriately located market housing through to residential institutions (Use Class C2). Local planning authorities should count housing provided for older people, including residential institutions in Use Class C2, against their housing requirement. The approach taken, which may include site allocations, should be clearly set out in the Local Plan’.

Working together, the Norfolk LPAs commissioned research into the demand for specialist retirement housing and accessible housing for older people^[139] which was completed in November 2021. This report looks at demand for specialist retirement housing as well as for care homes, dementia housing and accessible and wheelchair housing in Norfolk. This concluded:

• across the whole of Norfolk in 2020 there is unmet need for 2,809 units of extra care housing^[140] and 3,203 units of sheltered housing. By 2041 these figures will have risen to 5,130 and 9,644 respectively.
• there is a need for over 6,500 more C2^[141] bed spaces in 2041 across Norfolk.
• that at least an additional 26,800 adaptable homes^[142] will be required across Norfolk between 2016 and 2036 and at least 27,600 will be required between 2016 and 2041.

The Waveney SHMA finds that 29.3% of households in the Waveney HMA were older person only households (households where all members are 65 or over) and that the population aged 65 or over is going to increase dramatically from 30,131 in 2014 to 42,427 in 2036 in the Waveney HMA, a rise of 40.8%. The Projecting Older People Information System (POPPI) website indicates that the proportion of older persons living alone is projected to increase from 36.5% in 2015 to 38.4% in 2030.

The studies present information at a district council level, and do not identify a need for elderly housing specifically in the Broads Authority Executive Area. The Authority has therefore taken the approach of a criteria-based policy in relation to elderly housing needs to enable applications to be assessed.

It does not necessarily follow that all this need should be provided as additional bed spaces in residential institutions in Use Class C2. The Government’s reform of Health and Adult Social Care is underpinned by a principle of sustaining people at home for as long as possible, thereby avoiding expensive hospital and care home services. Therefore, despite the ageing population, current policy means that the number of care home and nursing home beds needed may increase proportionately more slowly than the number of older people, as people are supported to continue living in their own homes for longer.

Of relevance to housing for older people are the following policies of the Local Plan:

• Policy PODM48 refers to residential ancillary accommodation, acknowledging that residential annexes to an existing dwelling can create a useful facility for the support and care of family members.
• Policy PODM51 relates to design, and in particular dementia and lifetime homes and adaptable homes.

The Authority considers it important for this accommodation to be within development boundaries (See PODM43), so they are close to services and facilities to provide benefits to residents, staff who work there and visitors as well as being accessible by a variety of modes of transport.

Reasonable alternative options

Original policy

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Original policy. 7 positives. 0 negatives. 0 ? Overall, positive.

B; Amended policy. 8 positives. 0 negatives. 0 ? Overall, positive.

C: No policy. 0 positives. 0 negatives. 8 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes are in general conformity with the policies.

Why have the alternative options been discounted?

Given the ageing population of the area, a policy that guides elderly and specialist housing is favoured.

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Policy PODM48: Residential ancillary accommodation

Reasoned Justification

The creation of residential ancillary accommodation to an existing dwelling can create a useful facility for the support and care of family members. With an increasingly elderly population and rising life expectancy in the area, there are more people who, although capable of living relatively independently, could benefit from living close to relatives or carers for support. This need can often be met through the purchase of a nearby property. However, on some occasions it may be important for the carer or relative to be closer at hand to provide care and support at short notice. Residential ancillary accommodation can offer a way of addressing this more immediate need. It can also provide additional domestic accommodation.

Fundamentally, residential ancillary accommodation needs to be designed so that it will continue to be used as part of (integral to) the main dwelling, without creating an independent dwelling unit. This should include the option of absorbing the residential ancillary accommodation back into the main dwelling accommodation, if necessary, by the same or future occupiers. The occupiers should still all be living together as one family and not occupying the buildings completely separately and independently of one another.

There are two ways the Authority considers residential ancillary accommodation to be integral. Residential ancillary accommodation can be functionally integral, which means that only a bathroom or kitchen is provided and not both, with the existing building providing the other facility. If physically attached to the main building, independent facilities could be acceptable subject to a link being maintained between main dwelling house and residential ancillary accommodation. Residential ancillary accommodation can also be physically integral/dependent, which means it is attached to the existing building and therefore shares facilities with the existing building. In both cases, it is acceptable for residential ancillary accommodation to have a separate entrance.

The provision of residential ancillary accommodation outside of development boundaries could lead to detrimental impacts on the environment and landscape. Unduly large or detached residential ancillary accommodation can prove an economic and practical liability when vacated or when the property changes hands, leading to pressure for the residential ancillary accommodation to be severed and sold or let separately from the main dwelling. This can create sub-standard dwellings with inadequate standards of access, amenity and space and future pressure to permit the residential ancillary accommodation to be let or sold as an independent unit, contrary to the objectives of sustainable development and to other policies in the Local Plan. This could create a new dwelling where it would not otherwise be permitted.

As such, it is usually preferable for residential ancillary accommodation in rural areas to be in the form of extensions to existing dwellings, capable of serving the needs of the dependents but easily re-integrated into the existing dwelling when no longer required.

Detached residential ancillary accommodation in the countryside is more likely to be visually prominent and is often set in larger plots, thereby being more likely to be capable of being let or sold independently in the future. The conversion of existing outbuildings (such as garages) to residential ancillary accommodation can be preferable to a new annexe being built. The conversion of an existing suitable building is less likely to be visually intrusive and it is likely that a converted building can be returned to its original use when no longer required. However, in some circumstances the conversion of existing buildings may be undesirable, particularly if it would lead to the requirement for new outbuildings to be built or for the converted building to be substantially altered (in order, for example, for it to be habitable as it may not be a building intended to be lived in, such as a garden shed). An additional consideration will be the distance from the main dwelling of any existing outbuilding proposed to be converted to a residential ancillary accommodation. The further away the proposed residential ancillary accommodation is from the main dwelling, the less the functional integration.

In relation to the design of the accommodation, other policies of the Local Plan will be of relevance. For example, where there is a supply of water in the new accommodation, it shall be designed to only use 110l/h/d of water. As another example, it may be beneficial to make the accommodation adaptable so its form can change over time to reflect circumstances.

Any residential ancillary accommodation will have planning conditions or obligations attached to the permission which could relate to the occupier(s) of the accommodation or prevent use as an independent separate dwelling.

Reasonable alternative options

The original policy, with no amendments.

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 9 ?

B: Keep original policy: 2 positives. 0 negatives. 2 ? Overall, positive.

C: Preferred Option - amend policy: 9 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and the vast majority applications have been determined in accordance with the policy.

Why has the alternative option been discounted?

The preferred option policy is favoured because it brings out the importance of design and clarifies things in relation to if the proposal is to be used for holiday accommodation as well as clarifying that friends may be able to use the accommodation.

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Policy PODM49: Replacement dwellings

Reasoned Justification

Applications for replacement dwellings often come forward where an existing dwelling is in disrepair. The policy seeks full justification for demolition and replacement as opposed to retrofit and repair. Given the climate crisis this measure is intended to reduce emissions and retain embodied carbon in existing buildings. See Policy PODM2: Embodied Carbon.

Replacement dwellings of a scale, mass, height, design or external appearance inappropriate to their setting can, either individually or cumulatively, have a detrimental impact on the landscape character of the Broads or undermine the reasons for its designation. The replacement of dwellings therefore needs to be managed to prevent development that would be unacceptable by virtue of its size, design, or positioning.

Where the residential use has been determined to have been abandoned, any proposals will be assessed against policies relevant to new build residential dwellings.

Replacement by a new dwelling of modern building and energy efficiency standards will demand particular attention to design and siting to avoid harm to the landscape and character of the area.

The replacement dwelling should be sited on or close to the existing footprint of the building unless the benefits that may be achieved for flood risk, landscape character, wildlife or cultural heritage can justify the replacement dwelling to be sited in an alternative location. In such situations, locations inherently more sustainable will be favoured, such as replacing a remote substandard dwelling in the open countryside with a dwelling in a nearby settlement.

In terms of this policy the ‘existing dwelling’ is the dwelling as it exists at the point of application to the Broads Authority.

Proposals need to consider dark skies (see policy PODM27) and be designed to be water efficient (see policy PODM6). Furthermore, the Design Guide^[143] (or successor document) will be of relevance.

A legal agreement/condition will also be attached to any planning permission to ensure that where the existing building is not demolished prior to construction, it is removed from the site prior to the replacement building being occupied.

If a proposal is considered in the context of Policy PODM14 to potentially have an effect on a habitat site, it will need to be considered against the Habitats Regulations and a project level Appropriate Assessment undertaken. Being a replacement dwelling, it is not likely to require mitigating in terms of recreation impact. As set out in policy PODM4, replacement dwellings are required to improve their existing method of disposing of foul water, and therefore nutrient enrichment may be a consideration. Of relevance to proposals for replacement dwellings is policy PODM4 on water quality and policy PODM7 on flood risk, in particular the information relating to footprint in Policy PODM7: Development and Flood Risk

Reasonable alternative options

Original policy

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: keep the original policy: 2 positives. 0 negatives. 0 ? Overall positive

B: No policy: 0 positives. 0 negatives. 6 ?

C: Preferred Option: 6 positives. 0 negatives. 0 ? Overall positive

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes have been in conformity.

Why has the alternative option been discounted?

Not having a policy is discounted because applications for replacement dwellings are common in the Broads. The amended policy includes some important issues such as justifying demolition, addressing light pollution and biodiversity enhancements. These issues are important and therefore the amended policy is preferred.

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Policy PODM50: Custom/self-build

Reasoned Justification

'Self-build' or ‘custom-build’ is when someone obtains a building plot and builds their own home on it. Most of the work can be completed by the future occupiers, or the future occupier could take the role of project manager and employ professionals to deliver their plans. Such homes can be built as a one off or on a community basis. The Government wants to enable more people to build their own home and wants to make this form of housing a mainstream housing option.

It is important to understand that self-build/custom-build schemes are still required to meet the policy requirements in local plans as well as national policy and guidance and are subject to the same constraints as developer delivered dwellings.

The Authority is not likely to receive applications for large scale development, but our policy does encourage developers to set aside plots for custom/self-build plots. If schemes of over 100 dwellings do come forward in the Broads, the policy requires 5% to be delivered as serviced plots for self-build. The policy does cover the eventuality that the serviced plots, even after a thorough and proportionate marketing exercise over a 12-month period, are not sold and are not taken forward as self-build plots. The policy also covers the design of self-build schemes referring to plot passports and design codes or guidelines for sites with multiple plots. The Design Policy and Design Guide (or successor document) will be of relevance. A plot passport is a succinct summary of the design parameters for a given plot. They add value by acting as a key reference point for the purchaser, capturing relevant information from the planning permission, design constraints and procedural requirements in an easily understandable and readily accessible format.

In accordance with policy POSP15 and PODM50, custom/self-build development is directed to settlements with development boundaries. Custom/self-build proposals in rural areas will be determined in line with other policies in this Local Plan.

Custom/self-build register

Since April 2016, the Authority has had a register^[144] in place where those wishing to build their own homes can register their interest. At the time of writing, there were around 370 individuals interested in building their own home on the register. However, it is important to note that the register covers four Local Planning Authorities who use the same register: South Norfolk, Breckland, King’s Lynn and West Norfolk and the Broads Authority. When assessing the register, in the vast majority of cases, individuals have stated that they wish to develop in the Broads as well as in another district; few, if any, individuals express a desire to develop in the Broads alone. There is a duty on Local Planning Authorities to grant sufficient development permissions to meet the demand for self-build and custom house building. Importantly, the Broads Authority has had an exemption to this duty to since base period 2 (from 31 October 2016). This exemption effectively reflects that the Broads is a desirable place to build a dwelling, but there is limited land available.

Reasonable alternative options

No policy

Original policy with no amendments.

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Keep original policy: 1 positives. 0 negatives. 0 ? Overall, positive.

B: No policy: 0 positives. 0 negatives. 1 ?

C: Amended: 1 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has not been used.

Why has the alternative option been discounted?

An alternative option is to not have a policy. By having a policy, it brings the important considerations into a policy and seeks to promote self-build schemes where appropriate to help deliver more self-build.

Previous page | Next page | Contents

• [124] Local Housing Needs Assessment for the Broads: https://www.broads-authority.gov.uk/__data/assets/pdf_file/0026/432476/Great-Yarmouth-and-The-Broads-Authority-LHNA_Final-Version-2.pdf↑

• [125] Please note that the sites at Oulton Broad and Thurne all have planning permission. Their allocations continue in the Local Plan as the schemes have not been completed yet. We have not included their numbers in meeting the current need, as they were permitted prior to 2021. The site at Stokesby also has planning permission and this was granted May 2021 – the 4 dwellings have been included as permissions rather than by considering the allocation. ↑

• [126] Settlement Study: https://www.broads-authority.gov.uk/__data/assets/pdf_file/0034/416599/Settlement-study-updated-Feb-2023.pdf↑

• [127] HELAA: https://www.broads-authority.gov.uk/__data/assets/pdf_file/0023/491405/HELAA-September-2023.pdf↑

• [128] The NPPF 2023 defines Major Development as: Major development: For housing, development where 10 or more homes will be provided, or the site has an area of 0.5 hectares or more. For non-residential development it means additional floorspace of 1,000m2 or more, or a site of 1 hectare or more, or as otherwise provided in the Town and Country Planning (Development Management Procedure) (England) Order 2015. ↑

• [129] This is the constituent council – Broadland, Great Yarmouth, North Norfolk, Norwich, South Norfolk, East Suffolk Council (formerly Waveney District Council) ↑

• [130] First Homes - GOV.UK (www.gov.uk)↑

• [131] Since April 2019, there have been 37 net new market dwellings permitted in 17 applications. ↑

• [132] It is important to note that the part of North Norfolk that is in the Broads is a designated rural area. Whilst current North Norfolk District Council (NNDC) policy is not to introduce a lower threshold, the Council may do this in future. At the time of writing this Local Plan NNDC were reviewing their Local Plan. ↑

• [133] If the occupancy condition is removed from a holiday home, then this affordable housing policy will apply as per the thresholds set out within it. ↑

• [134] Housing and Planning Act (2016) (pdf | legislation.gov.uk) ↑

• [135] Refer to www.gov.uk/guidance/pollution-prevention-for-businesses for information on pollution prevention measures. ↑

• [136] Residential Moorings Need Assessment (broads-authority.gov.uk) ↑

• [137] The NPPG (Use of planning conditions - GOV.UK (www.gov.uk)) says ‘It will rarely be justifiable to grant a second temporary permission (except in cases where changing circumstances provide a clear rationale, such as temporary classrooms and other school facilities). Further permissions can normally be granted permanently or refused if there is clear justification for doing so. There is no presumption that a temporary grant of planning permission will then be granted permanently’. ↑

• [138] At the time of writing, this was being finalised. ↑

• [139] Study of demand for specialist retirement housing and accessible housing for older people and related planning and viability issues (north-norfolk.gov.uk) ↑

• [140] Retirement housing with a high level of services and facilities, meals and personal care services. Seen as an alternative to residential care. Sometimes referred to as “Housing with Care”. ↑

• [141] Residential care homes, hospitals, nursing homes, boarding schools, residential colleges and training centres. Care homes provide accommodation and personal care for people who need extra support in their daily lives. Personal care might include help with eating, washing, dressing, going to the toilet or taking medication. Some care homes also offer social activities such as day trips or outings. Care homes are sometimes referred to as residential homes. Nursing homes provide personal care as well as assistance from qualified nurses. These are

  sometimes called care homes with nursing. ↑

• [142] Accessible and adaptable housing will provide safe and convenient approach routes into and out of the home and outside areas, suitable circulation space and suitable bathroom and kitchens within the home. Wheelchair user dwellings include additional features to meet the needs of occupants who use wheelchairs or allow for adaptations to meet such needs. ↑

• [143] At the time of writing, this was being finalised. ↑

• [144] Self-build and custom build register (broads-authority.gov.uk) ↑