3.1 It is essential for the development plan to deliver housing land supported by appropriate community facilities in order to maintain the prosperity and quality of life in the North East. It is also important for the plan to encourage the creation of quality living environments and to acknowledge the role housing plays in supporting the promotion and diversification of the economy. Structure plans and local plans, working together with other plans and initiatives, are responsible for providing opportunities that meet everyone’s future housing requirements, including those who cannot afford access to the housing market, the homeless, and those with special needs.

3.2 Population changes, demographic trends, migration and people’s aspirations, as well as external factors which influence our economy, all have a significant impact on the number and type of houses the development plan should deliver. A variety of factors also influence where housing is best located.

3.3 In response to these issues, this plan directs housing development to settlements in accordance with the aims and objectives of the plan’s strategy, in particular Objectives 1, 2 and 4. Accordingly, housing is to be located within settlements which are accessible to services and facilities and support economic development. National planning guidelines for housing highlight two important matters that give encouragement to the reuse of brownfield land and give greater heed to the relationship between land use and transport. The plan also provides guidance on the need for developer contributions and affordable housing, which will be delivered through local plans.

3.4 Retailing also makes a significant contribution to the quality of life in many different ways. Shops and related services often underpin the vitality and viability of communities and contribute towards minimising unnecessary travel. The retail industry also provides thousands of jobs in the production, distribution and sale of goods. New retail investment creates further job opportunities in related activities such as construction and shop-fitting. An improving range and quality of shops and services is an important indicator of the prosperity of the area and is therefore an influential factor in attracting new investors and visitors. The retail industry is, however, extremely dynamic, and the full impact, for instance, of internet shopping is still to be fully embraced. The structure plan guides new retail development into the existing settlements and places a strong emphasis on enhancing town centres.

3.5 Sport and recreation add to community vitality. Participation in sport contributes towards a healthy lifestyle, encourages tourism, provides job opportunities and therefore supports the local economy. Sport and recreation facilities also contribute towards the overall quality of life in each settlement and enhance perceptions of the North East as an attractive place. Encouragement is given to proposals which contribute towards the overall strategic aims of the plan.

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3.6 This plan will continue to identify two housing market areas, the Aberdeen Housing Market Area (AHMA) and the Rural Housing Market Area (RHMA). Government guidance requires the structure plan to provide an appropriate level of housing land within each housing market area. The plan also contains policies which state a commitment to provide for a five year supply of land which is effective (that is, land which is expected to be free of constraints in the five year period under consideration and will therefore be available for the construction of houses). Policies also identify land capable of becoming effective in order to maintain the five year housing land supply. Effective housing is provided not only by sites allocated in local plans but also from unallocated sites within settlements. The supply should provide for development in a variety of locations and contain a mix of house types and tenures, as well as meeting any special needs in the area.

3.7 The policies of the plan are also informed by strategic employment, population and housing forecasts. On the basis of the most recent forecasts, published in October 1999, likely housing requirements are shown in Table 2.

3.8 The promotional economic policies of the plan, together with the actions of the local authorities, other agencies and the private sector, are geared to creating improved prospects for the North East. In anticipation of, and to help foster a more buoyant economy, the robustness of the structure plan can be secured by introducing headroom flexibility of +20% for the AHMA, where there is most development pressure, and +10% for the Aberdeenshire RHMA (see Table 3).

3.9 The annual Housing Land Audit 2000 shows that there are sites in the established housing land supply for approximately 12,300 houses throughout the North East. Of these, almost 4,000 units are subject to constraints, including servicing, ownership or other difficulties, which creates some uncertainty over when they might be developed. Others are constrained by market considerations. As these constrained sites become available for development they will provide an important additional contribution to the effective housing land supply over time.

3.11 Policy 7 requires that a five-year effective land supply be maintained throughout the life. For the period January 2000 to December 2005 existing commitments included within the January 2000 effective housing land supply, combined with structure plan allocations shown in Policy 8, will contribute roughly 9,300 houses towards the housing requirement in the Aberdeen Housing Market Area and 4,400 towards the Rural Housing Market Area requirement. This is 50% above the AHMA forecast requirement, and 63% above the RHMA requirement as shown in table 2 – thereby allowing sufficient headroom flexibility to meet the requirements identified in Table 3. This will also be augmented by windfall sites and sites constrained in 2000 subsequently being made effective, thereby ensuring a five year effective housing land supply beyond December 2005. Despite the lower headroom flexibility within the RHMA the figures seem to suggest that a higher requirement is provided within this Housing Market Area. There are two reasons for this apparent anomaly: the actual numbers on which the percentages are based are smaller, and thus a small increase in the number of sites equates to a higher percentage increase than in the AHMA; and there are far less brownfield windfall sites for potential recruitment to the established housing land supply. These factors require that a proportionately larger allocation must be made at the beginning of the plan period. Local plans are permitted to introduce sequential phasing strategies, if considered necessary, to control the orderly release of land. Not all of these sites will be developed before the end of 2005, but the plan permits planning permissions to be granted in accordance with Policy 8 within this period to allow a continuous supply of effective housing land.

3.12 The situation will, however, be monitored using the annual Housing Land Audit (to identify the extent of the housing land supply) and the biennial strategic forecasts (to identify the housing requirement). If at any time the audit and forecast shows that a shortfall in the effective five year supply is likely to occur then this will indicate the need for an early review of the housing element of the plan.

3.13 For the period 2006-2010, structure plan housing policies indicate where any identified shortfall between the forecast requirement and the existing effective supply should be addressed, in accordance with the development strategy. This means that allocations will focus development on brownfield sites in Aberdeen, together with development in the edge of city communities and main service centres with good accessibility by a number of transport modes. Small scale development (usually under 15 houses) will be spread among rural service centres to support services, local housing needs and economic development (see Policy 9). Although brownfield opportunities are less common in Aberdeenshire, they may still provide occasional valuable opportunities to reinforce key towns. Indicative housing land allocations are made to all the main service centres, with the exception of Stonehaven, where there are particularly sensitive landscape and other constraints, and Ellon, which is already committed to accepting considerable growth. Policy 9 indicates the scale and location of these housing allocations which will be subject to review when the structure plan is reviewed either in five years time or earlier should monitoring show this to be necessary. Local plans should make indicative allowance for these allocations by identifying sites. Planning permission will not, however, be granted for development of these sites until after any review of housing allocations. In Aberdeen, the strategy requires brownfield sites to continue to be brought forward and it is reasonable to expect this to continue although it may not be possible to identify the full allocation of sites at this time within a local plan.

3.14 For the period January 2011 to December 2015, Policy 10 indicates longer-term development continuing in accordance with the structure plan strategy. Whereas the pattern of development permitted by Policy 8 is largely inherited from existing commitments, Policy 9 reflects the structure plan strategy of creating a long-term sustainable framework of settlements, giving full consideration to the ability of each place to accommodate development in a sustainable manner.

3.15 Allocations are made from a base date of January 2000 in order to synchronise with the Housing Land Audit 2000 and the 1999 based forecasts.

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3.16 Housing sites must be developed in a way that maximises their potential and makes a positive contribution to the communities in which they are located. Making sure that developments are well sited and properly designed to fit their surroundings is essential. However, if both environmental and social sustainability are to be achieved, then every effort must be made to ensure that a full range of market sectors is catered for in all localities. Densities should reflect the proximity of jobs and services, with the aim of offering as many people as possible the best opportunity to reduce their dependence on private transport. Local plans may be able to help by varying the design and parking requirements which they demand of developers according to location.

3.17 The development of brownfield land within settlements reduces development pressure on greenfield land and should help to sustain community services. These sites are more likely to benefit from existing public transport services and offer opportunities for reducing car dependency. In addition to identifying such sites, local plans will set out criteria for their development and, where known, the need for any developer contributions. An assessment will, of course, have to be made of the most appropriate use of brownfield sites, whether for housing, employment uses, open space or any other use, to ensure a proper balance and mix. It is the intention of the plan that at least 50% of new housing in the Aberdeen Housing Market Area is from brownfield sources.

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3.18 Reflecting national advice, the structure plan directs new development towards towns and villages and meets market demand in existing settlements in preference to isolated development in the open countryside. The main reasons for this are:

3.19 Some of the hinterlands of settlements are particularly at risk from incremental and sporadic development. However, there is no justification anywhere in the North East for departing from the strategy of directing development into settlements. House building in the Green Belt is dealt with in the Looking after the North East chapter (paragraphs 4.32 to 4.37).

3.20 The detailed control of siting and design of new development is primarily a matter for local plans. The strategic planning interest is to maintain and enhance the quality and integrity of the countryside, including the countryside around towns. All new development in these areas should respect certain basic principles, which might be best expressed in design guidance as illustrated by the Planning Advice Note 36, "Siting and Design of New Housing in the Countryside". To prevent an increase in commuting, especially by car, these small-scale developments should only be identified if they fulfil specific local needs and support economic development and local services. NPPG 15 supports this stance stating that there should be a general presumption against developments in "rural commuter areas".

3.21 The vitality and vibrancy of a community depends on the level of interaction between the people who live there and the activities in which they become involved. Access to jobs and housing are important, but so, too, is the availability of a wide range of community services and sport, leisure and recreational facilities.

3.22 Community services take many forms, including educational facilities, healthcare facilities, community centres, churches, libraries, meeting rooms, halls, and shops and services of all types. Their distribution, the quality of services, and the level of access varies throughout the North East and therefore affects the structure plan aim of connecting communities.

3.23 Lack of access to facilities especially affects disadvantaged groups such as older people, the young, those on low incomes or without access to a car. This is particularly so in the remoter rural areas and in some urban areas. The structure plan strategy directs new development to locations where access to existing services and facilities exists or can be enhanced. Sometimes this may require developers to contribute towards the provision of facilities to make good a shortfall created by development. However, developers can only make contributions that relate to the size and nature of their development and cannot be expected to make good any existing deficiencies within the area. The strategy also encourages the providers of services and facilities to locate or retain a presence in places that are accessible to all sectors of the community and where the vitality and viability of existing communities will be maintained or enhanced as a result.

3.24 New development, whether employment or housing related, can place a strain on existing services and generate the need for new community provision. Developers, in conjunction with the local authority, may be required to assess the impact of their proposal and if this exercise shows that the development will produce a significant negative effect (commonly some form of greater congestion of existing facilities), then it should be compensated.

3.25 In appropriate cases, contributions will be sought from developers towards:

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3.26 The provision of affordable housing is an important part of developer contributions required over and above other matters. It cannot be provided in lieu of other matters, or vice versa. Policies must be based on evidence of need and to this end the North East Housing and Planning Alliance recently commissioned research on the level of housing need in the North East. There is evidence from this research that there are significant numbers of people in housing need in the North East. There are a number of solutions that have to be examined in order to meet these housing needs but an important factor will be the provision of new affordable housing. From the information available, including levels of need, local house prices and likely building rates, the appropriate level of affordable housing is likely to be around 35% across the structure plan area. The reducing level of public finance available to social housing providers now requires other sources of provision to be examined.

3.27 It is the role of development plans to provide housing to meet the needs of the North East. This includes people with special needs, for example the physically disabled and the elderly. The ageing population of Aberdeen and in particular Aberdeenshire makes this a particularly important issue with regard to housing. Information provided by the Housing Needs Survey, Aberdeen and Aberdeenshire Council Housing Plans and other relevant sources will provide guidance to local plans.

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3.28 There has been considerable investment in new retail developments throughout the North East in recent years and market demand for further facilities, particularly in Aberdeen and some of the main Aberdeenshire towns, remains strong. Separate independent studies carried out on behalf of Aberdeen City Council and Aberdeenshire Council over the past two years have thrown light on current and likely future shopping patterns and trends. This work indicates significant growth in expenditure on general comparison goods and bulky goods over the period to 2006 and a relatively small growth in expenditure on convenience goods over the same period. This indicates capacity for further investment in retail facilities although the likely impact of any new developments on existing facilities will vary in different parts of the North East. There is however a need to regularly monitor the rapid changes which occur in the retail sector of the economy.

3.29 Aberdeen is an important regional shopping centre, particularly for comparison goods, but city shops also attract significant convenience goods expenditure from the remainder of the North East. Around 60% of Aberdeenshire residents’ comparison goods expenditure and 35% of convenience goods expenditure takes place in Aberdeen.

3.30 The structure plan and existing and emerging local plans propose strategies that encourage a sustainable pattern of development. They favour new retail facilities being provided, in the first instance, within existing town centres and in accessible locations where there are opportunities to enhance existing facilities which serve and help connect communities.

3.31 The structure plan strategy favours enhancement of the viability and vitality of communities and retail investment can contribute to this process by improving the quality and range of facilities available to people. Aberdeen City Centre will continue to be a significant focus for new investment, particularly for comparison goods, but development opportunities especially for mainly convenience shopping will be encouraged in other town centres throughout the North East. There is scope for improved convenience and comparison shopping provision within Aberdeen and the Aberdeenshire towns and local plans can play an important role in identifying and promoting opportunities for development. It is not necessary to restrict retail development in Aberdeen as a means of encouraging better provision in Aberdeenshire although the impact of major proposals on the vitality and viability of existing centres will have to be clearly assessed and monitored.

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3.32 There is a need to protect existing sports facilities (including open space and school playing fields) from development pressure as well as to plan for and provide new sports and recreation facilities. Where residential development goes ahead, the recreational needs of new residents can be provided by developer contributions.

3.33 The plan seeks to increase accessibility to sports facilities for all. Some areas do not enjoy good access to sports facilities and this needs to be rectified. The sportscotland Facilities Planning Model can identify what areas are in particular need and funding can be applied for from various sources.

3.34 Aberdeen City and Aberdeenshire Council’s are committed to promoting better access to open space and the countryside through a network of footpaths, bridleways and cycling routes (for example the Aberdeenshire Countryside Access Strategy and the Aberdeen Strategic Cycle Network as set out in the draft local transport strategy for Aberdeen, September 2000). These networks shall be fully integrated with other transport and cycling strategies, encouraging people to use more sustainable forms of transport. Not only does this have a beneficial effect on the environment and economy, but there are also health and recreational benefits to individuals and communities. Countryside recreation has close links with rural tourism and the potential to generate economic benefits such as jobs for rural communities. Care must be taken, however, to protect the natural environment.

3.35 Skiing provides a valuable contribution to the rural economy and extends the tourist season. However, by their nature skiing developments are located on high ground in remote rural areas, which are generally more sensitive in terms of landscape value, and nature conservation importance, often with national or international designations. Future ski related development must be reconciled with care for the environment, in order to achieve sustainable development.