Affordable Housing

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3.2.19 In the consultations undertaken whilst preparing this Local Plan, local communities confirmed the view that the provision of 'affordable' and community care housing should be a high priority for the Council. In the Council's questionnaire (of which around 870 replies were received), 78% of respondents agreed that the Council should make particular effort to provide for sheltered, social, affordable or small homes. Also, a number of individual letters of representation from the public and community groups reiterated the need for such provision.

3.2.20 The Glasgow and the Clyde Valley Joint Structure Plan clearly demonstrates that the mainstream owner-occupied housing market is adequately catered for within this area. It makes references however to the limited supply of affordable housing in the suburban and commuter based communities with their higher cost property market, including Bearsden, Milngavie and Lenzie. The Structure Plan requires Local Plans to consider the need for action to improve the range of choice in tenure and cost of housing and to make appropriate provision. Scottish Planning Policy 3 ‘Planning for Housing’ and revised Planning Advice Note 38 ‘Housing Land’ allows planning authorities to take account of the need for affordable housing when formulating their development policies.

3.2.21 A study recently undertaken by the Council "East Dunbartonshire Council - Housing Needs Assessment - June 2001" has confirmed the need in East Dunbartonshire for more affordable housing. This is further confirmed by a study recently carried out by the Scottish Executive which also demonstrates that East Dunbartonshire Council has a high net need for additional affordable housing. The Council Study has quantified the level of need, both that which exists and that which is projected to arise until 2005. This has also been analysed and projected on a community-by-community basis.

3.2.22 The Local Plan is part of the Council's means of addressing and delivering the Community’s needs and the Council's own objectives on building strong communities. It is clear however that the Council has neither the resources nor the available land to address the need in full by itself. It therefore seeks partnership through the use of its own land holdings and through planning requirements on developers of 'market' housing sites.

3.2.23 Utilising its own land, the Council is currently planning the development of 10 sites through a 'New Housing Development' Initiative, with an estimated capacity of 205 houses. These sites are listed in Housing and Mixed uses Table HMU 1. It is estimated that approximately 92 of these houses may be ‘affordable’. Additional sites have also been identified which may be added to this Partnership or developed separately. The use of the Council's own resources will however only make a limited contribution towards meeting the identified social needs and further contributions to achieve a balanced community will require to be sought from future private developments. The Council will endeavour to facilitate the meeting of as much of this need for affordable homes as possible within the restrictions of appropriate available sites. The Council's research has assessed what is a 'reasonable' contribution for the market to make towards this objective.

3.2.24 The research has concluded that a target of 40% affordable housing on suitable sites would be appropriate in securing a contribution to this need for affordable housing throughout East Dunbartonshire. In analysing the findings at settlement level, it is clear that the communities of Bearsden, Milngavie, Bishopbriggs, Kirkintilloch, Lenzie and Torrance have the greatest shortfall and need. After careful consideration it is therefore proposed that the 40% target is justified and should be applied to these settlements.

3.2.25 The communities of Lennoxtown, Milton of Campsie and Twechar also have a demonstrated need, but they have a greater supply of affordable rented housing - therefore there is less of an imbalance, and consequently the need for additional houses is not quite so great. The study has not suggested a lower target for these settlements, so there is therefore no independent analysis to apportion such a lower target, however the Council consider that it is appropriate to consider objectively the needs of each community, and consequently a target of half the full figure i.e. 20% is applied in those settlements exhibiting a significantly lesser shortfall of need.

3.2.26 In response to this demonstrated need, all private housing developments of 15 units or more (or a site size of 0.75 hectares or more), which have not already been granted planning consent (i.e. by the middle of January 2002) will be required to incorporate affordable housing at the above target rates in order to contribute to this need. Development of larger sites in phases of under 15 units will not be acceptable to the Council unless they include the appropriate allocation of affordable units.

3.2.27 Using the most optimistic estimates of house completions, the full need will not be met through the above means in East Dunbartonshire to 2006 (see Appendix 6). It must also be recognised that there may be material reasons why the above contribution targets from the market sector may be challenging to achieve. It is consequently all the more important that the targets are rigorously pursued in order to maximise the potential to address this important issue. If the recognised need is met in some of the communities, the appropriate target will still be retained in order that developments will contribute to the overall level of need throughout East Dunbartonshire.

3.2.28 With regards to the shortfall in meeting the need, the Council requires to balance the desire to meet special housing need against the other community requirements from developments (e.g. transport improvements), the broader principles of its development strategy as contained in this Plan (e.g. the capacity of the settlements to accommodate additional developments) and the suitability of development sites. If the Council were to attempt to accommodate all the extra numbers of affordable houses suggested - the effects on the community and environment of doing so are considered to outweigh the benefits of attempting to meet the need in full. Additionally it is clear that if the balance of need is to be met by the private sector, then for every four affordable houses that are constructed, at least six additional mainstream houses overall are likely to be required to be built in order to fund the package.

3.2.29 The implications for the release of greenfield (largely green belt) land arising from this multiplier effect, if the need were to be met in full, would be very considerable. The Council therefore consider that the provision of the affordable housing units within the Council owned landbank, plus the targets to be met by the developments listed in Housing and Mixed Uses Table HMU 1, represents an appropriate compromise between these competing objectives. The Housing Needs Assessment therefore cannot be utilised to justify further greenfield housing release as this would undermine the Guiding Principles and the urban regeneration strategy for the area.

3.2.30 The Housing (Scotland) Act 2001 places new duties and responsibilities on Local Authorities. Included in these are the powers and duties to enhance local authorities’ strategic role and the transfer of functions previously carried out by Scottish Homes to a new Executive Agency - Communities Scotland. Incorporated into local authorities' strategic role is the duty to carry out an assessment of housing needs and provisions in the area and to prepare a Local Housing Strategy. This will replace the existing system of Housing Plans prepared by Local Authorities and regional plans previously prepared by Scottish Homes.

3.2.31 As part of this enabling role Scottish Ministers have powers to make grants to local authorities for housing development purposes. This would enable Local Authorities to take on the development funding function previously administered by Scottish Homes. Affordable housing can be developed by private house builders with a variety of funding mechanisms e.g. in partnership with a Registered Social Landlord (housing association); or alternatively in partnership with the Council.

3.2.32 The Council has published its Local Housing Strategy which recognises that there may be local people on low incomes who find it very difficult to enter the property market in East Dunbartonshire due to the high price of land and houses here. The Strategy commits the Council to undertaking further research into the need/demand for affordable housing to buy and the delivery mechanisms and policies that should be adopted should the need be proven. This further research and its findings will be incorporated, either as a future modification to this Local Plan, or into a replacement Local Plan.

3.2.33 Supplementary Guidance has been included in this Plan (Guidance Note 16) to assist developers in implementing the affordable housing policy

HMU 2 Affordable Housing Policy

In order to meet the demonstrated need for affordable housing, the Council will seek to achieve a target for all new housing developments (with overall site capacity of 15 units or more; or a site size of 0.75 hectares plus) to incorporate affordable housing at the following rates:

a) Bearsden, Milngavie, Bishopbriggs, Kirkintilloch, Lenzie and Torrance at a target rate of 40%, or

b) Lennoxtown, Milton of Campsie and Twechar at a target rate of 20%.

This rate will be calculated on the basis of the overall capacity of a site, therefore if a site is being developed in phases of less than 15 units, the affordable housing requirement will still apply. A Legal (Section 75) Agreement may be required in order to secure the above elements.

Community Care Service Developments

3.2.33 Community care service developments have also been the subject of recent assessment and it is clear that some needs exist.

3.2.34 New housing built to ‘varying needs’ (barrier free) standards will meet a good proportion of the needs of people with medium needs and mainstream housing can be made suitable in many situations through adaptions, conversion and the installation of suitable aids.

3.2.35 The population of very elderly people is projected to increase significantly in the future through the general ageing of the population and in-migration. In assessing the provisions for older people, it is suggested that there will be shortfalls for those with high needs and that additional places are required.

3.2.36 Evidence shows that there is a lack of accommodation for people with physical disabilities. Additional accommodation is being sought for support facilities for people with mental illness and respite facilities for adults with learning disability. Premises are also being sought to provide Womens’ Refuge accommodation.

3.2.37 The Council’s Social Work and Joint Ventures Section will work closely with partnership agencies such as Communities Scotland to secure development funding for a range of accommodation facilities strategically located throughout the authority, and to ensure even and purposeful development of community based facilities to address the core objectives of government policy in relation to community care services for all vulnerable groups.

HMU 3 Community Care Housing

The Council will generally support proposals to meet community care housing needs subject to compliance with local planning policy. The following are proposed and supported:

a) A Care Home, a Resource Centre and associated facilities all for older persons, which may include an associated development of sheltered housing, at the former Lenzie Hospital.

b) A Day Care Centre and 25 very sheltered houses at Oakburn Park, Milngavie.

c) 7/9 Main Street, Torrance - suitable for community care housing as an alternative to business/industrial use (see policy ECON 3).

Hillhead Community Regeneration Initiative

3.2.38 A major community regeneration initiative is proposed in the Hillhead area of Kirkintilloch. This area (in contrast to the relative affluence of East Dunbartonshire overall) is characterised by concentrations of high unemployment, low income, low educational attainment, poor health and sub-standard housing.

3.2.39 A major component of the regeneration initiative will involve a New Housing Partnership covering all 1,100+ houses in the Hillhead estate, which will see:

a) the upgrading and modernisation of public sector housing stock,

b) the demolition of sub-standard flats and the redevelopment of approximately 160 replacement new family homes, and

c) the community based Housing Association (Hillhead Housing Association 2000) manage the housing stock.

3.2.40 Economic issues are also very important in Hillhead, and this issue is discussed in the Economic Competitiveness Section.

HMU 4 Urban Regeneration in Hillhead

The Council will support the urban regeneration of the Hillhead area of Kirkintilloch, and in particular will undertake the following steps:

a) the upgrading and modernisation of the public sector housing stock.

b) the demolition of sub-standard flats and the redevelopment of approximately 160 replacement new family homes.

c) environmental improvements within the estate.

Travelling Persons’ Sites

3.2.41 In addition to the community’s need for traditional housing there is a requirement for accommodation for the travelling members of East Dunbartonshire’s communities. The Council has been set a target by the Scottish Executive to provide two sites (with capacity for a total of 27 pitches) for traditional travelling persons in the plan area.

3.2.42 Following an extensive search, public meetings and a public inquiry, the Council identified two sites. One site at Lennoxtown has been developed.

Scottish Ministers have also indicated that they are minded to grant planning permission for a site at Auchenhowie Road, Milngavie, subject to the fulfilment of conditions.

3.2.43 The Council also proposes to develop this site within the plan period.

HMU 5 Travelling Persons’ Sites

The Council will implement a site for travelling persons at Auchenhowie Road, Milngavie for 12 pitches (which has conditional planning consent).

3.3 Town Centres and Retailing

3.3.1 The Council’s surveys confirm that the shopping needs of East Dunbartonshire’s communities are currently met at a range of locations in addition to local town centres. Many residents of East Dunbartonshire take advantage of the wide range of specialist shopping in the nearby Glasgow City Centre. Similarly some do their main food shopping outwith East Dunbartonshire e.g. to or combined with journeys to or from work. It is however in the interests of the local community that the vitality and viability of our town centres is sustained in order to:

§ ensure a range of town centre services which is appropriate for the needs of the community,

§ reduce the need to travel, and

§ maintain local employment opportunities in town centres.

3.3.2 NPPG 8 on Town Centres and Retailing emphasises the importance of town centres as locations for retailing and other commercial leisure activities, and advocates that planning authorities bring forward policies to sustain and enhance town centres.

3.3.3 The Council established a Town Centre Management Company in 1998 to promote the vitality and viability of the four town centres in East Dunbartonshire (Kirkintilloch, Bishopbriggs, Bearsden and Milngavie). Town centre steering groups (involving town centre traders and other community interests) have also operated very effectively for a number of years.

3.3.4 A series of initiatives have been developed to enhance the attraction and strengthen the role of these centres as key elements of community identity. These initiatives have included amongst other things a range of projects to upgrade streetlighting, paving, landscaping and street furniture in the town centres, in addition to ongoing promotional events relating to the Forth and Clyde Canal and Christmas. Improvements to shopfronts are encouraged and a pilot grant scheme is established for Bishopbriggs Town Centre (see policy DQ 2D), and the Council will look to extend this to the other town centres as resources permit. Parking and access strategies for the town centres (see policy TRANS 1) are also being developed. Additional proposals are identified in RET 1 which should enhance the centres concerned and improve their vitality.

RET 1 Town Centre Environment

The Council will support and bring forward proposals for improvements in the quality and environment of existing town centres and other local shopping centres in particular:

Kirkintilloch • Reference is made to Kirkintilloch’s Initiative implications in Urban Capacity Schedule UC2B.

• Reassessment of options to create a pedestrian friendly thoroughfare centred on Cowgate and Townhead.

Bishopbriggs • Creation of high quality civic spaces including a ‘town square’ and upgraded green space at Churchill Way.

• Redevelopment of Churchill Way to include town centre uses (see also HMU Table 1).

• Creation of a high quality pedestrian access from the town centre to Bishopbriggs Park.

• Improved parking arrangements.

• Continuation of the pilot shop front improvement grant scheme.

Milngavie • A programme of widespread environmental improvements including replacement street furniture, replacing trees, improving footways and repairing walls.

Bearsden • An assessment will be undertaken to consider the appropriate measures to improve the town centre environment.

Lennoxtown • Townscape improvements along Main Street to be implemented through the Lennoxtown Initiative, including a village centre feature.

The Council will carry the town centre improvements forward with the assistance of the town centre steering groups and in partnership with appropriate agencies and funding sources.

RET 2 Development Within Existing Shopping Centres

Shopping provision within East Dunbartonshire will be enhanced, by encouraging and supporting retail development within existing shopping centres (town, village and local) and other established retail locations, as long as it can be demonstrated to:-

a. sustain or enhance the range or quality of shopping provision and the vitality and viability of the centres,

b. be in keeping with the scale and character of the centre,

c. not harm the amenity of the area,

d. be readily accessible by public transport, bicycle or on foot as well as by car, and

e. meet other relevant planning criteria.

3.3.5 NPPG 8 also sets out the components of the sequential approach to retail development location and requires local authorities to work with developers to identify and bring forward sites for retail and commercial leisure development that are supportive of town centres and are accessible by a variety of means of transport.

3.3.6 In addition NPPG 17 on Transport and Planning emphasises the accessibility of town centres by all modes of transport including walking, cycling and public transport, and advocates that developments serving a wide community of interest should be located there.

3.3.7 Across the Conurbation as a whole, the Glasgow and the Clyde Valley Joint Structure Plan provides strategic policies in support of town centres and sets out the requirement for retail development in those locations which are currently under provided.

3.3.8 The analysis of household shopping patterns, from a survey carried out in 1998, has led to the definition of retail catchment areas for convenience shopping (food and associated products) and for comparison shopping (clothes, shoes, jewellery, etc... as well as bulky goods such as electrical and DIY).

3.3.9 Within the comparison catchments of Glasgow North West/Clydebank (includes Bearsden and Milngavie) and Bishopbriggs/Kirkintilloch/Springburn (includes Strathkelvin area) shortfalls are identified leading to additional floorspace requirements as follows:

Bishopbriggs /Kirkintilloch

up to 8,000 square metres gross floorspace, and

Bearsden/Milngavie

up to 6,000 square metres gross floorspace.

3.3.10 In seeking to identify sites to meet these shortfalls, the Council has considered locations in accordance with the sequential approach. No suitable sites within or adjoining the town centres could be identified. As a result two out of centre locations were identified adjoining established retail locations and are sited adjacent to the main public transport corridors. The Bishopbriggs/Kirkintilloch requirement has now been met by the implementation of the extension to the Strathkelvin Retail Park in 2004. The Bearsden/Milngavie requirement is still outstanding and is reflected in RET 3.

3.3.11 No strategic planning requirement is identified in the Structure Plan with regard to convenience shopping within either of the catchments covering East Dunbartonshire. However a retail assessment carried out for the Council in 1998 indicated a limited requirement for additional convenience floorspace to serve the Kirkintilloch area. The Council has sought to identify a site to accommodate this requirement in a location that will be supportive of the town centre.

3.3.12 The most appropriate means of addressing the requirement would be through expansion of convenience retail floorspace within or adjoining the Town Centre, subject to appropriate contributions to ensuring satisfactory access for any development and the Town Centre.

3.3.13 The Council’s retail policy is based primarily on sustaining and enhancing the established town centres, as they provide the main social and cultural focus for our communities. Any new proposals will be assessed on the basis of the needs identified above and in terms of the sequential approach.

3.3.14 In addition, the Structure Plan recognises the need to address qualitative deficiencies in existing retail provision as a material consideration in the assessment of large retail planning proposals and this issue will be taken into account with regard to any proposals of this nature which come forward.

RET 3 New Retail Development Opportunities To meet the requirements for new retail floorspace outlined above, the Council will support proposals which provide for the following additions:-
*Type of goods*	*Floorspace area*	*Location*	*Site*
Convenience retailing	Additional floorspace (approx. 2000 sq.m. to be confirmed by further research).	Kirkintilloch	Town Centre
Comparison	Up to 6,000 sq. m.	Bearsden & Milngavie	Land on or adjacent to Homebase/Halley’s Garage at Burnbrae (see also UC 2C).

RET 4 Large Retail and Commercial Leisure Proposals

The Council will apply the sequential approach to large retail and commercial leisure proposals.

The Council will generally encourage large new retail (over 1000 sq.m. gross food and over 2000 sq.m. gross non-food) and commercial leisure developments to locate on sites within the existing town centre shopping areas, subject to conformity with other plan policies.

Development proposals on sites adjoining the existing town centres will only be positively considered where it can be demonstrated that there are no alternative sites available within the existing town centre shopping areas, and that criteria (a)-(e) below are satisfied.

Development proposals on out-of-centre sites will be resisted unless it can be satisfactorily demonstrated that there are no alternative sites available within, or on the edge of, the town centre, and that criteria (a)-(e) below are satisfied.

Development proposals on sites adjoining the existing town centres and on out-of-centre sites will be assessed against the following criteria:

a) such proposals, along with existing floorspace, can be supported by the retail expenditure available from the appropriate catchment population (see requirements in text above),

b) such proposals would not adversely affect the vitality and viability of existing centres,

c) there would be no unacceptable adverse impacts on the surrounding environment and local amenity,

d) the site would be adequately served by public transport, cycling and footpath networks and would not generate longer car journeys, and

e) the proposal would not have significant infrastructure implications, nor would it conflict with other plan policies.

3.3.15 There are a number of categories of retail/commercial centres in East Dunbartonshire :-

a. town centres,

b. local and village shopping centres,

c. retail warehouse locations,

d. out of centre supermarkets, and

e. other ‘commercial’ locations such as hotels, car showrooms and petrol filling stations.

3.3.16 Each of these categories have their differing, but important, role to play, firstly by providing shopping opportunities for the residents of East Dunbartonshire; and secondly by contributing to the economy and employment in the area.

3.3.17 NPPG 8 recognises the changing role of town and local shopping centres, which can include leisure and other service uses, however it is clear that retailing should remain the core function. The Council is aware of the threat to the vitality and viability of the town centres of East Dunbartonshire represented by the loss of retail floorspace to non-retail uses.

3.3.18 As suggested in NPPG 8, the Local Plan has defined ‘prime shopping areas’, which are the areas recognised as being at the core of each of the town centres and where the uses remain predominantly retailing. Within these prime areas the Council will not support any further loss of retail uses.

3.3.19 Outwith the prime areas, including the village and local shopping centres, the Council will encourage and permit a mix of uses, whilst still retaining retailing in the majority.

RET 5 Retention of Shops

Within the town, village and local shopping centres, the Council will support the retention of those uses within Class 1 (Shops) of the Use Classes Order.

Within the ‘prime’ areas of the town centres (as identified on the proposals map) the Council will not permit further conversion of existing or vacant shop (Class 1) premises to non-retail uses.

Within shopping areas which are not ‘prime’, the Council will encourage a mix of retail and non-retail uses, and will allow up to 50% of frontages to be non-retail. Any development proposal which would reduce the percentage of retail uses below 50% will be assessed against the following criteria:-

a) compatibility with existing land uses, particularly the effect on residential amenity,

b) whether reasonable attempts have been made to market the premises or site for retail use, for a minimum period of one year, and

c) the avoidance of concentrations of non-retail frontages.

3.3.20 The Council needs to apply a strict policy on potential bad neighbour uses in order to protect the amenity and road safety of existing residents and road users.

RET 6 Bad Neighbour Uses

The Council will oppose changes of use to ‘hot food shops’, public houses and other uses likely to create noise, smell or disturbance, in situations where there are residential properties in very close proximity, or where there are flats above the premises in question and those flats are not proposed for occupation by the proprietor or staff of the proposed business. Any such proposals will also be assessed with regard to traffic implications and other relevant local planning criteria.

3.3.21 The Council wishes to retain vitality within the town centres in the evenings, thus ensuring an attractive and secure environment for residents and visitors alike. It is therefore considered to be beneficial to retain residential uses in the town centres. The Council will encourage the conversion of appropriate properties to residential use where this does not conflict with other town centre policies, particularly on floors above retail premises where floorspace can often be underused.

RET 7 Retaining Residential Units in Town Centres

In the town centres the Council will generally oppose the change of use of any residential units on upper floors to non-residential uses and will encourage the conversion of floorspace above retail or other town centre premises to residential use.