Forrabury and Minster Housing Needs Assessment - (HNA)
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Forrabury and Minster Housing Needs Assessment (HNA) For Forrabury and Minster Neighbourhood Plan 2021- 2040 December 2020
AECOM
Forrabury and Minster Neighbourhood Plan Housing Needs Assessment
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Quality information
Prepared by Checked by Approved by
Elena Butterworth Paul Avery Paul Avery
Graduate Planner Senior Consultant Senior Consultant
Revision History
Revision Revision date Details Authorized Name Position
1 October 2020 First draft EB Elena Graduate
Butterworth Planner
2 October 2020 Technical review PA Paul Avery Senior
Consultant
3 October 2020 Second draft EB Elena Graduate
Butterworth Planner
4 October 2020 Group review SD Sally Dickinson Neighbourhood
Planning Group
5 November 2020 Third draft PA Paul Avery Senior
Consultant
6 December 2020 Locality review AO Annabel Neighbourhood
Osborne Planning Officer
7 December 2020 Final report PA Paul Avery Senior
Consultant
AECOM
Forrabury and Minster Neighbourhood Plan Housing Needs Assessment
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Prepared for:
Forrabury and Minster Parish Council
Prepared by:
Elena Butterworth
AECOM
Aldgate Tower
2 Leman Street
London
E1 8FA
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© 2020 AECOM. All Rights Reserved.
This document has been prepared by AECOM Limited (“AECOM”) in accordance with its contract with Locality (the “Client”) and
in accordance with generally accepted consultancy principles, the budget for fees and the terms of reference agreed between
AECOM and the Client. Any information provided by third parties and referred to herein has not been checked or verified by
AECOM, unless otherwise expressly stated in the document. AECOM shall have no liability to any third party that makes use of
or relies upon this document.
Disclaimer
This document is intended to aid the preparation of the Neighbourhood Plan, and can be used to guide decision making and as
evidence to support Plan policies, if the Qualifying Body (i.e. the neighbourhood planning group) so chooses. It is not a
neighbourhood plan policy document. It is a ‘snapshot’ in time and may become superseded by more recent information. The
Qualifying Body is not bound to accept its conclusions. If any party can demonstrate that any of the evidence presented herein is
inaccurate or out of date, such evidence can be presented to the Qualifying Body at the consultation stage. Where evidence from
elsewhere conflicts with this report, the Qualifying Body should decide what policy position to take in the Neighbourhood Plan
and that judgement should be documented so that it can be defended at the Examination stage.
AECOM
Forrabury and Minster Neighbourhood Plan Housing Needs Assessment
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Table of Contents
1. Executive Summary ................................................................................................................................................................7
1.1 Tenure Conclusions ...................................................................................................................................................7
1.2 Type and Size Conclusions .......................................................................................................................................9
1.3 Specialist housing for older people Conclusions ....................................................................................................10
2. Context ..................................................................................................................................................................................13
2.1 Local context ............................................................................................................................................................13
2.2 Planning policy context ............................................................................................................................................15
2.2.1 Policies in the adopted local plan ............................................................................................................................15
2.2.2 Quantity of housing to provide .................................................................................................................................18
3. Approach ...............................................................................................................................................................................19
3.1 Research Questions ................................................................................................................................................19
3.1.1 Tenure and Affordability ...........................................................................................................................................19
3.1.2 Type and Size ..........................................................................................................................................................19
3.1.3 Specialist Housing for Older People........................................................................................................................19
3.2 Relevant Data...........................................................................................................................................................19
3.2.1 Local authority evidence base .................................................................................................................................19
3.2.2 Other relevant data ..................................................................................................................................................20
4. RQ 1: Tenure, Affordability and the Need for Affordable Housing ......................................................................................21
4.1 Introduction ...............................................................................................................................................................21
4.2 Definitions .................................................................................................................................................................21
4.3 Current tenure profile ...............................................................................................................................................21
4.4 Affordability ...............................................................................................................................................................22
4.4.1 House prices ............................................................................................................................................................22
4.4.2 Income ......................................................................................................................................................................23
4.4.3 Affordability Thresholds ...........................................................................................................................................24
4.5 Affordable housing- quantity needed.......................................................................................................................29
4.5.1 Affordable Housing Policies in Forrabury and Minster ............................................................................................31
4.6 Conclusions- Tenure and Affordability ....................................................................................................................35
5. RQ 2: Type and Size .............................................................................................................................................................37
5.1 Introduction ...............................................................................................................................................................37
5.2 Existing types and sizes ..........................................................................................................................................37
5.2.1 Background and definitions .....................................................................................................................................37
5.2.2 Dwelling type ............................................................................................................................................................38
5.2.3 Dwelling size ............................................................................................................................................................38
5.3 Household composition and age structure ..............................................................................................................39
5.3.1 Age structure ............................................................................................................................................................40
5.3.2 Household composition............................................................................................................................................40
5.4 Dwelling mix determined by life-stage modelling ....................................................................................................41
5.5 Conclusions- Type and Size ....................................................................................................................................45
6. RQ 3: Specialist housing for older people ............................................................................................................................46
6.1 Introduction ...............................................................................................................................................................46
6.2 Housing for older people - context ..........................................................................................................................47
6.3 Approach ..................................................................................................................................................................48
6.3.1 Current supply of specialist housing for older people .............................................................................................49
6.3.2 Tenure-led projections .............................................................................................................................................49
6.3.3 Housing LIN-recommended provision .....................................................................................................................52
6.4 Conclusions- Specialist Housing for the Older People ...........................................................................................53
7. Conclusions ...........................................................................................................................................................................55
7.1 Overview...................................................................................................................................................................55
AECOM
Forrabury and Minster Neighbourhood Plan Housing Needs Assessment
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7.2 Recommendations for next steps ............................................................................................................................58
Appendix A : Calculation of Affordability Thresholds ........................................................................................................................60
A.1 Assessment geography ...........................................................................................................................................60
A.2 Market housing .........................................................................................................................................................60
i) Market sales .............................................................................................................................................................61
ii) Private Rented Sector (PRS) ...................................................................................................................................61
A.3 Affordable Housing...................................................................................................................................................62
i) Social rent.................................................................................................................................................................62
ii) Affordable rent ..........................................................................................................................................................62
iii) Intermediate tenures ................................................................................................................................................63
Appendix B : Housing Needs Assessment Glossary ........................................................................................................................64AECOM 6 Forrabury and Minster Neighbourhood Plan Housing Needs Assessment List of acronyms used in the text: AH Affordable Housing (NPPF definition) AMH Affordable Market Housing CC Cornwall Council FM Forrabury and Minster HNA Housing Needs Assessment HNF Housing Need Figure Housing LIN Housing Learning and Improvement Network HRF Housing Requirement Figure HRP Household Reference Person LHN Local Housing Need LPA Local Planning Authority LQAR Lower Quartile Affordability Ratio LTHPD Long-Term Health Problem or Disability MAR Median Affordability Ratio MH Market Housing MHCLG Ministry for Housing, Communities and Local Government (formerly DCLG) NA Neighbourhood (Plan) Area NDO Neighbourhood Development Order NDP Neighbourhood Development Plan NP Neighbourhood Plan NPPF National Planning Policy Framework ONS Office for National Statistics PPG Planning Practice Guidance PRS Private Rented Sector RQ Research Question SHLAA Strategic Housing Land Availability Assessment SHMA Strategic Housing Market Assessment VOA Valuation Office Agency
AECOM 7
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1. Executive Summary
1.1 Tenure Conclusions
Key findings:
The key finding of this section is the estimated scale of need for Affordable Housing in Forrabury and Minster. It is
estimated that the need for affordable rented homes will be in the region of 14 units over the Plan period, with
potential demand for affordable home ownership products in the region of 15 units over the same timescale.
In 2011, 8.1% of the Neighbourhood Area’s (NA’s) population lived in socially rented housing, with only 0.4% in
shared ownership. These figures are both lower than the Cornwall average. Meeting the need described above would
help to bring these proportions in line with levels elsewhere. It would also diversify the options available to local
people and improve affordability more widely.
The level of housing delivery overall in Forrabury and Minster is expected to be minimal given that Cornwall Council
have provided an indicative minimum housing requirement of 0. Because it would be challenging to expect enough
development to bring forward 29 affordable homes, it would be prudent to prioritise affordable rented homes for those
with the most acute needs.
People who require affordable rented accommodation have no other housing options and may live in unsafe or
unsuitable homes. Those potentially interested in affordable home ownership products can usually afford to rent
privately and simply wish to own their own homes. The former’s needs are typically greater and more urgent. They
can be prioritised within the Affordable Housing mix in planning policy.
Cornwall’s Local Plan requires 70% of Affordable Housing to be provided as rented tenures, with the remaining 30%
provided as affordable home ownership products. While the need estimates for Forrabury and Minster suggest that a
50%/50% split would be suitable, this is only true in the context of plentiful housing delivery. Given the uncertain
expectations of supply, tipping the balance in favour of affordable rent is recommended. The levels already required
by the Cornwall Local Plan would in fact be a reasonable balance for Forrabury and Minster – prioritizing rented
housing but still allowing some affordable home ownership to come forward.
It is not necessary to repeat Local Plan policy, but the Neighbourhood Plan may seek to work within Cornwall’s policy
context to steer delivery towards specific affordable home ownership products. In Forrabury and Minster, discounted
market housing appears particularly suitable given local prices and incomes, and would make the NA a good place to
pilot the Government’s new First Homes tenure product if this (currently proposed) tenure goes ahead as planned.
Mainstream development is still unlikely to provide for the needs identified in Forrabury and Minster overall. It would
therefore be beneficial to consider the potential for developing some form of exception site for Affordable Housing if
suitable sites and developer partners exist in the NA. Using community development orders, identifying exception
sites or developing community land trusts are all tried and tested ways of boosting the supply of affordable housing
above the levels expected from mainstream development.
The table below illustrates the need for rent and sale properties each year and over the plan period.
Need Total
Affordable housing for rent annual need 0.72
Affording housing for rent total over plan period 13.68
Affordable housing for sale annual need 0.78
Affordable housing for sale total over plan period 14.82
Two alternative scenarios for the tenure mix of Affordable Housing in Forrabury and Minster are presented in this report
and the table below. The two alternatives are to conform with a current planning consultation around a new First Homes
product. If this consultation is finalised as planned, Mix 2 would be appropriate. If not, it is recommended that Mix 1 be
followed.AECOM 8
Forrabury and Minster Neighbourhood Plan Housing Needs
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Note that we assume, in accordance with current practice, that most Affordable Housing will be brought forward through
developer contributions. If the neighbourhood planners are considering delivering Affordable Housing through other
means, the national policy requirements reflected here may not apply.
Mix 2. Indicative mix
Mix 1. Indicative mix
Tenure with 25% First Homes
based on local needs
requirement
Routes to home ownership, of which 30% 30%
First Homes 20% 25%
Shared ownership 10% 5%
Rent to buy 5% 0%
Affordable Housing for rent, of which 70% 70%
To be set by To be set by Registered
Social rent
Registered Providers Providers
To be set by To be set by Registered
Affordable rent
Registered Providers Providers
Additional findings:
The vast majority of households in Forrabury and Minster in the 2011 census are owner-occupiers, with comparatively
low rates of renting and a clear undersupply of Affordable Housing compared with wider Cornwall. The tenure mix in
Forrabury and Minster as of 2011 is presented in the table below.
Tenure Proportion (2011)
Owned; total 74.9%
Shared ownership 0.4%
Social rented; total 8.1%
Private rented; total 14.5%
Other (inc employer provided) 2.1%
Between 2001 and 2011, the number of those renting privately has increased substantially (24.5%), whilst home
ownership has increased at a lower rate (2.1%). Social rented has marginally decreased by 5.1%, whilst shared
ownership has decreased substantially (33.3%). However, this data is skewed due to there being a smaller number of
shared ownership properties in Forrabury and Minster.
House prices have grown by 13.6% over the last 10 years (2010-2019). However, there is a degree in volatility in
pricing over time. Terraced housing has experienced the greatest growth over the last 10 years (27.5%) and semi-
detached houses have increased by 6.2% in price. Prices for a detached home have not increased (0% growth).
Furthermore, there are not enough flats in Forrabury and Minster to be able to look at house prices over the last 10
years.
The approximate median and lower quartile incomes in Forrabury and Minster are £34,500 and £13,364 respectively.
Comparing these affordability thresholds with the costs of each tenure, it is clear that the most affordable forms of
tenure for an individual with a medium income is market, affordable rent and social rent. Individuals on lower quartile
incomes cannot afford any types, however, LQ dual earning households (£26,728 annual salary) can afford affordable
rent and social rent. In order to purchase market housing, households will need to be earning far in excess of the
mean and lower quartile incomes considered here, or to benefit from savings or other financial assistance.AECOM 9
Forrabury and Minster Neighbourhood Plan Housing Needs
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1.2 Type and Size Conclusions
Key findings:
The current and future target state of Forrabury and Minster’s dwelling size mix is given in the table below. Note that
the current state is accurate as of the 2011 Census and only includes dwellings that were occupied by permanent
residents who completed the Census survey (and will therefore not reflect any second homes or vacant properties).
It is primarily the percentage share that should be focused on, since the estimated number of households in 2040
relies on Cornwall projections and does not take account of local factors. In essence, the balance of housing sizes
does not need to change substantially. To the extent that it does, a slightly greater emphasis on smaller homes and
less emphasis on larger ones would be beneficial.
Number of bedrooms Current state (2011) Target state (2040)
1 bedroom 37 8.1% 54 9.2%
2 bedrooms 132 29.1% 174 29.6%
3 bedrooms 187 41.2% 246 41.9%
4 bedrooms 75 16.5% 86 14.6%
5 or more bedrooms 23 5.1% 28 4.7%
Total households 454 100.0% 588 100.0%
In order to reach the target state, it will still be necessary to deliver all dwelling sizes, with particular emphasis on the
middle of the range. The proposed size mix for new development in Forrabury and Minster going forward is presented
in the table below.
Number of bedrooms Recommended split
1 bedroom 12.7%
2 bedrooms 31.6%
3 bedrooms 44.2%
4 bedrooms 8.0%
5 or more bedrooms 3.4%
This report does not provide a target state for the mix of housing types in Forrabury Minster, since type is more a
matter of wealth, taste and other factors than need in the strict sense. House type is also not so clearly correlated with
life stage as house size, which was used to estimate the target size mix above. However, given the findings on
affordability, it may be beneficial to plan for more of the higher density and lower cost types, such as terraces and
flats. Providing flats would also help to diversify the existing stock in the NA, which is similar to that of Cornwall except
for a higher share of detached homes at the expense of flats (as can be seen in the table below). Blocks of flats,
however may not be in-keeping with the NA’s character, design and other requirements, however these can be
provided as maisonettes or other forms that have a lower visual impact.AECOM 10
Forrabury and Minster Neighbourhood Plan Housing Needs
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Forrabury
Dwelling type Cornwall England
and Minster
Whole house or bungalow Detached 45.6% 37.7% 22.4%
Semi-detached 24.1% 24.5% 31.2%
Terraced 21.2% 22.8% 24.5%
Flat, maisonette or Purpose-built block of flats or 2.0% 8.7% 16.4%
apartment tenement
Parts of a converted or shared 3.6% 3.6% 3.8%
house
In commercial building 3.2% 1.2% 1.0%
• Some percentages do not total to 100% due to rounding down in calculations
Additional findings:
The findings in relation to dwelling size above were reached through a review of Forrabury and Minster’s demographic
characteristics.
2011 Census data reveals that the 45-64 and 65-84 age group make up just over half of the NA’s inhabitants (53%).
Both age groups are more prominent here than at the Cornwall level and national level. The number of children (0-15
years) and young people (16-24 years) make up 18% in the NA, which is correspondingly lower than the Cornwall and
national trend.
The demographic profile of Forrabury and Minster households in 2011 can be projected forward to the end of the Plan
period in 2040 by applying the rates of change predicted for each age band for Cornwall as a whole. The result of this
exercise should be approached with caution in terms of the overall total number of households. But it is interesting to
observe the direction of travel, which is strongly in favour of an ageing population. Households headed by someone
aged over 65 (this is the Household Reference Person – or HRP – noted in the table) are likely to increase in number
by 75% to form the majority of all households in the NA in 2040. This evidence can also be used to support policies
regarding housing options specifically for older people.
Age of HRP 24 Age of HRP 25 Age of HRP 35 Age of HRP 55 Age of HRP 65
Year
and under to 34 to 54 to 64 and over
2011 2 22 151 104 175
2014 2 23 148 98 200
2040 2 23 156 100 307
% change 2011- 16% 5% 3% -4% 75%
2040
1.3 Specialist housing for older people Conclusions
Key findings:
The potential need for specialist housing with some form of additional care for older people can be estimated by
bringing together data on population projections, rates of disability, and what tenure of housing the current 55-75
cohort occupy in the NA. This can be supplemented through the use of a toolkit based on national research and
assumptions. These two sets of estimates have been undertaken for Forrabury and Minster, giving an overall range of
49 to 67 units of specialist accommodation that may be needed. This is shown in the table below, and broken down
into different types of accommodation. (Please note that the range given in each box is given in numerical order – the
same method of estimate is not always given first and the ‘total’ ranges therefore may not align with the lowest and
highest figures in the preceding boxes).AECOM 11
Forrabury and Minster Neighbourhood Plan Housing Needs
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Total
Type Affordable Market
(rounded)
Multiply the number of people across all
rented tenures (not just social rent as those
Multiply the number of people across all
aged 65+ who need to rent are
owner-occupied housing by the percent of
Housing with overwhelmingly likely to need Affordable
occupiers in that tenure who have day to
care (e.g. extra Housing) by the percent of occupiers in that 14-26
day activity limitations limited a lot
care) tenure who have day to day activity
limitations limited a lot
6-7 8-19
Multiply the number of people across all Multiply the number of people across all
Adaptations, rented housing by the percent of occupiers owned housing by the percent of occupiers
sheltered, or in that tenure who have day to day activity in that tenure who have day to day activity 35-41
retirement limitations limited a little limitations limited a little
living
12-11 23-30
Total 18-18 31-49 49-67
It is important to note that the scale of need for specialist accommodation heavily depends on the amount of
accessible or adapted mainstream housing in Forrabury and Minister currently – or how far this can successfully be
achieved in future. Note that there is no accurate secondary data on this. If the neighbourhood plan were to be
particularly ambitious in requiring high standards of accessibility and adaptability, there is arguably less need to
deliver specialist accommodation.
This evidence should be seen as the context for potential policy action. It is not realistic to expect this level of need
can be delivered in full, or that this would necessarily be desirable given the range of amenities for older people
available. But it provides a quantity to aim for if an older people’s development aligns with the aspirations of the
community, or as evidence to support alternative actions such as an ambitious policy on accessibility and adaptability.
It is assumed that any household renting or in social housing after the age of 55 will need to remain in subsidized
rented housing in older age, and that present owners will be able to occupy specialist market housing for purchase.
Notwithstanding the fact that specialist housing for older people costs more to build, roughly 27% of all specialist
housing for older people should comprise Affordable tenures. This target should be monitored for viability as it is
implemented, with neighbourhood planners seeking a higher proportion where appropriate.
80.4% of households in Cornwall aged 55-75 own their own home, with the majority owning the property outright
(59.0%). Note, in comparison to the data presented in the Tenure and Affordability chapter above, that the 55-75
population occupy social rented dwellings at a higher rate than the overall population in Forrabury and Minster (9.8%
to 8.1%) and rent privately at a much lower rate (8.6% compared to 14.5%). (Note that Census data correlating age
with tenure is only available at district level, hence the reliance on Cornwall data here).
Additional findings:
While it is important to maximise the accessibility of all new housing, it is particularly important for specialist housing
for older people to be provided in sustainable, accessible locations, for a number of reasons, as follows:
• so that residents, who often lack cars of their own, are able to access local services and facilities, such as
shops and doctor’s surgeries, on foot;
• so that any staff working there have the choice to access their workplace by more sustainable transport
modes; and
• so that family members and other visitors have the choice to access relatives and friends living in specialist
accommodation by more sustainable transport modes.
Alongside the need for specialist housing to be provided in accessible locations, another important requirement is for
cost effectiveness and economies of scale. This can be achieved by serving the specialist elderly housing needsAECOM 12
Forrabury and Minster Neighbourhood Plan Housing Needs
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arising from a number of different locations and/or neighbourhood plan areas from a single, centralised point (i.e. what
is sometimes referred to as a ‘hub-and-spoke’ model).
The ‘hub-and-spoke’ model is the idea that larger towns with more services and amenities, and fewer constraints on
development, can provide more than their fair share of older people’s housing so that more constrained villages with
fewer services can accommodate less. In AECOM’s view, Forrabury and Minster would be a spoke rather than a hub
in this scenario, with towns such as Bude or Bodmin as the hubs.
However, the question remains on the capacity and willingness to provide extra in those other locations, and how far
older people in Forrabury and Minster are sufficiently well served by public transport and other amenities, where their
relatives and support networks live, etc.
Wherever specialist housing is to be accommodated, partnership working with specialist developers is recommended,
so as to introduce a greater degree of choice into the housing options for older people who wish to move in later life.AECOM 13
Forrabury and Minster Neighbourhood Plan Housing Needs
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2. Context
2.1 Local context
Forrabury and Minster is a Neighbourhood Plan area located in Cornwall, in the South West of England. The
Neighbourhood Area (NA) boundary aligns with that of the parish, comprising the village of Boscastle and surrounding
countryside. The NA was designated in September 2019.
The proposed Neighbourhood Plan period starts in 2021 and extends to 2040, therefore comprising a planning period
of 19 years. This is the date range that is used throughout this report.
Forrabury and Minster is located on the north coast of Cornwall. Boscastle is the main village in the NA. It is 14 miles
south of Bude and 5 miles north-east of Tintagel. The nearest main road is the A39 which runs along the south-eastern
edge of the NA. Smaller roads (e.g. B3266 and B3263) run through the NA, connecting Boscastle to the A39. Bodmin
Parkway Railway Station is the closest train station which is 16.7 miles from Boscastle, with direct trains to Penzance,
Plymouth, Newcastle and London Paddington.
Forrabury and Minster falls under Camelford Community Network Area (CNA)1 along with 17 other parishes in North
Cornwall. In 2017, Camelford CNA had a population of 12,837 which is projected to increase to 13,182 by 20252.
Cornwall CNAs are the main way Cornwall Council connect with local communities and help them address important
issues.
For Census purposes, the Neighbourhood Plan area is made up, like the rest of England, of statistical units called
Output Areas (OAs). The available outputs areas cannot be combined to exactly recreate the NA boundary so the
closest available proxy has been used, and therefore some of the population and other totals are not precisely accurate.
However, it is expected that similar characteristics are shared with the small area that has been included for data
gathering purposes. The Plan area equates to the following OAs, which have been used throughout as a statistical
proxy for the NA boundary and which can be interrogated for data from both the 2001 and the 2011 Censuses:
• E00095801
• E00095802
• E00095803
• E00095804
The statistics show that in the 2011 Census the Neighbourhood Plan area had a total of 940 residents. However, it is
important to note that the population of Forrabury and Minster might be slightly different due the area used in this report
not being exact to the NA boundary, as well as the fact that most rural parishes are seeing a population decline.
Census data also suggests that the 940 people living in the NA in 2011 were formed into 454 households (i.e. groups
of people living together), and that there were 664 dwellings. This is a large discrepancy between households and
dwellings, and it is worth noting at the outset that some Census datasets sum to the 664 figure (such as the breakdown
of dwelling types) and others to the 454 figure (such as age groups and dwelling sizes).
It is possible that the high rate of second-home ownership and holiday properties in Forrabury and Minster accounts for
this large discrepancy, with 210 dwellings being counted in the Census that did not have permanent occupants at that
time. This hypothesis is supported by data on other areas. In the parish of St Endellion, which includes the popular
holiday home location of St Isaac, the ratio of dwellings to dwellings to households is even more striking than that of
Forrabury and Minster, at 863 to 479. In contrast, the parish of Clophill in Bedforshire, which is rural but a less popular
tourist destination, the ratio is near parity at 720 dwellings to 706 households.
Data provided by Cornwall Council indicates that 25 net additional dwellings have been completed within the NA
between 2011 and 31st March 2020. There have been no affordable housing units delivered since 2009.
A map of the Plan area appears below in Figure 2-1.
1
https://www.cornwall.gov.uk/community-and-living/communities-and-devolution/community-networks/camelford/
2
https://www.cornwall.gov.uk/media/29833791/camelford-cna-profile-2017.pdfAECOM 14
Forrabury and Minster Neighbourhood Plan Housing Needs
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Figure 2-1: Map of the Forrabury and Minster Neighbourhood Plan area3
Source: Cornwall Council
Figure 2-2 Map of Output Areas4
3
Available at https://www.cornwall.gov.uk/environment-and-planning/planning/neighbourhood-planning/neighbourhood-planning-in-
cornwall/tab-placeholder/a-i/forrabury-and-minster-neighbourhood-development-plan/
4
Available at https://www.nomisweb.co.uk/default.aspAECOM 15
Forrabury and Minster Neighbourhood Plan Housing Needs
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The neighbourhood planners are interested in exploring the need for Affordable Housing for sale (also known as
affordable home ownership) and are therefore eligible for support under the Affordable Housing for sale element of the
Neighbourhood Planning Technical Support programme. Analysis and commentary on this issue has been provided
where relevant and possible in the HNA.
2.2 Planning policy context
In line with the Basic Conditions5 of neighbourhood planning, Neighbourhood Development Plans (NDPs) are required
to be in general conformity with adopted strategic local policies6. Consequently, the relevant elements of the Local Plan
are reviewed as part of this Housing Needs Assessment (HNA).
In the case of Forrabury and Minster, the relevant local planning context is as follows:
• Adopted Cornwall Local Plan Strategic Policies 2010-20307
• Cornwall Local Plan: Community Network Area Sections 2010-20308
• Policies Maps9
• Cornwall Site Allocations Development Plan Document (November 2019)10
• Neighbourhood Planning in Cornwall11
Cornwall Council currently do not have an emerging Local Plan.
2.2.1 Policies in the adopted local plan12
Table 2-1: Summary of Cornwall’s adopted policies having relevance to Forrabury and Minster Neighbourhood
Plan Housing Needs Assessment
Policy Provisions
Policy 1: Presumption in When considering development proposals the Council will take a positive approach that reflects
favour of sustainable the presumption in favour of sustainable development contained in the National Planning Policy
development Framework and set out by the policies of this Local Plan.
Policy 2: Spatial New development should provide a sustainable approach to accommodating growth, providing a
Strategy well balanced mix of economic, social and environmental benefits. This should maintain the
dispersed development pattern of Cornwall and provide homes and jobs based on the role and
function of each place. Strategic scale growth will be accommodated in our main towns and city
where they can best support regeneration and sustainable development. Overall, development
should seek to meet the following objectives of the Plan for Cornwall:
1. Respecting and enhancing quality of place
2. Providing solutions to current and future issues
3. Generating and sustaining economic activity
Policy 2a: Key targets The Local Plan will provide homes in a proportional manner where they can best meet need and
sustain the role and function of local communities and that of their catchment.
5
Available at https://www.gov.uk/guidance/neighbourhood-planning--2#basic-conditions-for-neighbourhood-plan-to-referendum
6
However, this does not affect the potential for the evidence base underpinning the emerging local plan to inform or form part of the
evidence base for the neighbourhood plan.
7
https://www.cornwall.gov.uk/media/22936789/adopted-local-plan-strategic-policies-2016.pdf
8
https://www.cornwall.gov.uk/media/28188310/local-plan-cna-sections-pr2.pdf
9
https://www.cornwall.gov.uk/environment-and-planning/planning/planning-policy/adopted-plans/cornwall-local-plan-maps/
10
https://www.cornwall.gov.uk/environment-and-planning/planning/planning-policy/adopted-plans/development-plan-documents/cornwall-
site-allocations-development-plan-document/
11
https://www.cornwall.gov.uk/environment-and-planning/planning/neighbourhood-planning/neighbourhood-planning-in-cornwall/#-tab-
357841
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Note that only those policies considered relevant to this Housing Needs Assessment have been reviewed, and that the policies reviewed
may have been edited for relevance and/or clarity. As such, this summary of relevant policies should not be considered a full summary of
the Local Plan in question.AECOM 16
Forrabury and Minster Neighbourhood Plan Housing Needs
Assessment
Policy Provisions
Policy 3: Role and The scale and mix of uses of development and investment in services and facilities should be
function of places based on the role and function of places.
Policy 5: Business and The development of new or upgrading of existing tourism facilities through the enhancement of
Tourism existing or provision of new, high quality sustainable tourism facilities, attractions and
accommodation will be supported where they would be of an appropriate scale to their location
and to their accessibility by a range of transport modes. Proposals should provide a well balanced
mix of economic, social and environmental benefits.
Site Allocations Development Plan Documents and Neighbourhood Plans should identify new
land, and safeguard appropriate existing land, necessary for the delivery of the economic
strategies for Cornwall. These allocations should be based on an assessment that considers the
ability of the quantity, nature and quality of existing space and any commitments to meet the
space requirements set out in Policy 2a and the needs of particular sectors.
Policy 6: Housing mix New housing developments of 10 dwellings or more should include an appropriate mix of house
size, type, price and tenure to address identified needs and market demand and to support mixed
communities. Proposals should seek to:
• Address need and demand for affordable, market housing and starter homes including self-
build and custom-build housing; and
• Use local evidence of the need and demand for specific types, tenures and sizes of housing
to contribute to the diversity of housing in the local area and help to redress any housing
imbalance that exists; and
• Respond to the requirements of a changing population and of particular groups in the
community, by increasing the supply of accessible and specialist housing which is able to
meet people’s needs throughout their lifetimes based on locally derived evidence of need
and demand.
Policy 7: Housing in the The development of new homes in the open countryside will only be permitted where there are
countryside special circumstances. New dwellings will be restricted to:
1. Replacement dwellings broadly comparable to the size, scale and bulk of the dwelling being
replaced and of an appropriate scale and character to their location; or
2. the subdivision of existing residential dwellings; or
3. Reuse of suitably constructed redundant, disused or historic buildings that are considered
appropriate to retain and would lead to an enhancement to the immediate setting. The building
to be converted should have an existing lawful residential or non-residential use and be ten years
old or greater; or
4. Temporary accommodation for workers (including season migrant workers), to support
established and viable rural businesses where there is an essential need for a presence on the
holding, but no other suitable accommodation is available and it would be of a construction
suitable for its purpose and duration; or
5. Full time agricultural and forestry and other rural occupation workers where there is up to date
evidence of an essential need of the business for the occupier to live in that specific location.AECOM 17
Forrabury and Minster Neighbourhood Plan Housing Needs
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Policy Provisions
Policy 8: Affordable All new housing schemes within the plan area on sites where there is a net increase of more than
housing 10 dwellings or where dwellings would have a combined gross floorspace more than 1,000
square metres must contribute towards meeting affordable housing need. Subject to
consideration in policy 10, developments should provide the target level of affordable housing as
set out below:
50% in Zone 1
40% in Zone 2
35% in Zone 3
30% in Zone 4
25% in Zone 5
Forrabury and Minster is located in Zone 4 and therefore has a target level of affordable housing
of 30%.
The target provision for affordable housing (other than starter homes) is typically in the following
tenure proportions: 70% rented homes owned or managed as affordable housing, provided that
the initial rent level does not exceed the local allowance and 30% intermediate housing for rent
or sale, provided that the homes are available at first and subsequent occupation at a price which
is affordable to a typical local household, taking into account the estimated purchasing power in
such households.
In Designated Rural Areas and Areas of Outstanding Natural Beauty, the threshold will be more
than 5 dwellings. For developments of between 6 and 10 dwellings in such areas a financial
contribution in lieu of on-site provision of affordable housing will be sought per units of affordable
housing that would have been provided.
Policy 13: Development All new development will be expected to achieve the provision of the following:
standards 1. Sufficient internal space in housing for everyday activities;
2. Public open space on-site;
3. An appropriate level of off street parking and cycle parking;
4. Sufficient and convenient space for storage for waste, recycling and compostables;
5. Avoidance of adverse impacts, either individually or cumulatively, resulting from noise, dust,
odour, vibration, vermin, waste, pollution and visual effects;
6. Utilising opportunities for natural lighting, ventilation and heating by design, layout and
orientation;
7. Where feasible and viable, connection to an existing or planned heat network.
Policy 16: Health and To improve the health and wellbeing of Cornwall’s communities, residents, workers and visitors.
wellbeing
Policy 22: European For residential development and student and tourist accommodation, mitigation measures for
Protected Sites – recreational impacts on European Sites will be required where development is proposed within
mitigation of recreational identified zones of influence around those European Sites that are vulnerable to adverse
impacts from recreational impacts. Residential development, student and tourist accommodation within these
development zones of influence will be required to provide for appropriate management, mitigation and
monitoring on site, and/or financial contributions towards off site mitigation and management.
This will need to be agreed and secured prior to approval of the development.
Policy 23: Natural Development proposals will need to sustain local distinctiveness and character and protect and
environment where possible enhance Cornwall’s natural environment and assets according to their
international, national and local significance.
Policy 24: Historic Development proposals will be permitted where they would sustain the cultural distinctiveness
environment and significance of Cornwall’s historic rural, urban and coastal environment by protecting,
conserving and where appropriate enhancing the significance of designated and non-designated
assets and their settings.
Policy 25: Green The existing green infrastructure network in Cornwall, which is important to recreation, leisure,
infrastructure community use, townscape and landscape quality and visual amenity will be protected and
enhanced. Development proposals should contribute to an enhanced connected and functional
network of habitat, open spaces and waterscapes.
Policy 26: Flood risk Development should take account of and be consistent with any adopted strategic and local flood
management and and coastal management strategies including the Shoreline Management Plan and Catchment
coastal change Flood Management Plans for Cornwall and the South West River Basin Plan.AECOM 18
Forrabury and Minster Neighbourhood Plan Housing Needs
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Policy Provisions
Policy 27: Transport and All development should:
accessibility Provide safe and suitable access to the site for all people and not cause a significantly adverse
impact on the local or strategic road network that cannot be managed or mitigated.
Source: Cornwall Council
2.2.2 Quantity of housing to provide
The NPPF 2019 requires, through paragraphs 65 and 66, Local Authorities to provide neighbourhood groups with a
definitive or an indicative number of houses to plan for over the Neighbourhood Plan period.
Cornwall Council has fulfilled that requirement by providing neighbourhood groups with a housing apportionment
figure where housing growth is expected. Forrabury and Minster does not have an apportionment because its
settlements are within the Area of Outstanding Natural Beauty. The NA therefore does not have a target figure; in
effect, it’s minimum housing requirement is 0.
Forrabury and Minster does fall within the Camelford CNA remainder development area. Which has an apportionment
of 625 new dwellings over the Local Plan period. While Forrabury and Minster may be expected to contribute an
unspecified amount of new development to this overall target, Cornwall Council have confirmed that Forrabury and
Minster’s minimum share of that apportionment remains 0. This does not mean that no development is allowed, only
that the minimum is 0.AECOM 19
Forrabury and Minster Neighbourhood Plan Housing Needs
Assessment
3. Approach
3.1 Research Questions
Research Questions, abbreviated to ‘RQ;’ are formulated at the start of the project through discussion with the
neighbourhood group. They serve to direct the research and provide the structure for the HNA.
The RQs relevant to this study, as discussed and agreed with Forrabury and Minster, are set out below.
3.1.1 Tenure and Affordability
The neighbourhood planning group would like to understand the needs of the community for housing of varying tenures,
as well as the relative affordability of those tenures that should be provided to meet local need now and into the future.
This evidence will allow Forrabury and Minster to establish the right conditions for new development to come forward
that is affordable, both in the broader sense of market housing attainable for first-time buyers, and as Affordable Housing
for those who may be currently priced out of the market.
RQ 1: What quantity and tenures of Affordable Housing should be planned for over the Neighbourhood Plan
period?
3.1.2 Type and Size
The neighbourhood planning group is seeking to determine what size and type of housing would be best suited to the
local community.
The aim of this research question is to provide neighbourhood planners with evidence on the types and sizes needed
by the local community. This will help to shape future development so that it better reflects what residents need.
RQ 2: What type (terrace, semi, bungalows, flats and detached) and size (number of bedrooms) of housing is
appropriate for the Plan area over the Neighbourhood Plan period?
3.1.3 Specialist Housing for Older People
The neighbourhood planning group wishes to ensure that future housing provision takes into account the needs of older
people. In terms of housing, the group is particularly interested in how those needs might be met through a variety of
solutions – including mainstream housing which meets the needs of households at all life stages and specialist
accommodation which promotes independent living and access to care and support. There is significant overlap
between this area and the question of housing type and size, but this question will specifically address the need for
specialised housing for older people through the Plan period.
RQ 3: What provision should be made for specialist housing for older people over the Neighbourhood Plan
period?
3.2 Relevant Data
3.2.1 Local authority evidence base
It is appropriate for neighbourhood planners to refer to existing needs assessments prepared by the Local Planning
Authority (LPA) as a starting point. As Forrabury and Minster Neighbourhood Area is located within Cornwall Council’s
planning area, we therefore turned to the relevant Strategic Housing Market Assessment (SHMA) which is known as
Cornwall Strategic Housing Land Availability Assessment (January 2016).
For the purpose of this HNA, data from Cornwall Council’s own evidence base to support their housing policies has
been considered applicable and relevant unless it conflicts with more locally specific and/or more recently-produced
evidence. The housing market evidence draws upon a range of data including population and demographic projections,
housing market transactions, and employment scenarios. As such, it contains a number of points of relevance when
determining housing need within the Neighbourhood Plan area and has been referenced as appropriate.AECOM 20
Forrabury and Minster Neighbourhood Plan Housing Needs
Assessment
3.2.2 Other relevant data
In addition to Cornwall Council’s evidence base, we have assessed other evidence to ensure our study is robust for the
purposes of developing policy at the NP level and is locally specific. This includes data from both Census 2001 and
2011, as well as from a wide range of other data sources, including:
• Land Registry data on prices paid for housing within the local market;
• Population and household projections produced by the Office of National Statistics (ONS);
• Information on current property asking prices, for housing for sale or rent, from home.co.uk; and
• The Housing Learning and Improvement Network (LIN)’s SHOP@ tool for estimating the need for differing
types of specialist dwellings for older people.AECOM 21
Forrabury and Minster Neighbourhood Plan Housing Needs
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4. RQ 1: Tenure, Affordability and the Need for Affordable Housing
RQ1: What Affordable Housing (eg social housing, affordable rented, shared ownership, intermediate rented)
and other market tenures should be planned for in the housing mix over the Neighbourhood Plan period?
4.1 Introduction
This section examines the tenure of dwellings in the current stock and recent supply. It then considers the affordability
of housing within the area to local households. Drawing on existing evidence and AECOM’s estimates for the
neighbourhood area, this section quantifies the need for affordable housing within the NA. This includes Affordable
Housing for rent (typically social or affordable rents) and Affordable Housing to buy. The scale of need for these homes
can justify policies that guide new developments to provide Affordable Housing13.
4.2 Definitions
Tenure refers to the legal arrangements in place that enable a household to live in their home; it determines householder
rights and influences the level of payments to be made in return for these rights. Broadly speaking, tenure falls into two
categories, Affordable Housing and Market Housing, depending on whether the household benefits from a subsidy of
some sort to enable them to live in their home.
It is necessary at this stage of the study to make clear the distinction between Affordable Housing as planning
terminology and the colloquial meaning of the phrase. In the course of this study, we refer to Affordable Housing, with
capital letters, to denote those forms of housing tenure that fall within the definition of Affordable Housing set out in the
current NPPF: social rent, affordable rent, affordable private rent (brought forward by build to rent schemes), and forms
products designed to offer affordable routes to home ownership14.
The definition of Affordable Housing set out in the NPPF makes clear the Government’s commitment to home ownership
(broadening a definition which had previously referred only to social and intermediate housing to include a range of low-
cost housing opportunities for those aspiring to own a home). The Government has recently proposed to introduce First
Homes to provide at least a 30% discount on new market housing for sale. However, the NPPF and Homes England
funding for Affordable Housing recognises the important role of affordable rent tenures for those unable to afford home
ownership.
4.3 Current tenure profile
The current tenure pattern is a key characteristic of the local neighbourhood area. Patterns of home ownership, private
renting and affordable/social renting reflect demographic characteristics including age (with older households more likely
to own their own homes), and patterns of income and wealth which influence whether households can afford to rent or
buy and whether they need subsidy to access housing. Table 4-1 below presents Census data from 2011; this table
shows the distribution of how households occupy their homes within Forrabury and Minster, compared to the rest of
Cornwall and England.
At the time of the census (2011), home ownership is the most popular form of tenure (74.9%) in Forrabury and Minster,
followed by private rented (14.5%) and then social rented accommodation (8.1%). Private and social rented is less
common in Forrabury and Minster compared to the rest of Cornwall and England. Shared ownership is the least common
form of tenure in Forrabury and Minster. There is currently a higher proportion of home ownership in Forrabury and
Minster compared to the rest of Cornwall and England.
13
PPG Paragraph: 021 Reference ID: 2a-021-20160401, available at https://www.gov.uk/guidance/housing-and-economic-development-
needs-assessments
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NPPF 2019.You can also read
