CONTEXT AND JUSTIFICATION
The Council aims to have a well functioning housing system that gives all of Glasgow’s residents the opportunity to live in attractive, desirable, sustainable neighbourhoods with a choice of mixed-tenure housing with access to a range of good quality local services such as schools, shops, public transport and greenspace.
The urban form of the City is complex and contains a range of housing types largely, but not exclusively, divided between high density tenements and flats in the City Centre and Inner Urban Area (see Definition) and lower density housing in the Outer Urban Area. Castlemilk, Drumchapel, Easterhouse and Pollok are part of the Outer Urban Area but were developed at higher densities when they were first built, to accommodate the large numbers of people moving from the inner urban area. Housing renewal in these areas is generally lowering density levels and this will continue to be encouraged.
National Planning Policy Guideline 3: Land for Housing (NPPG 3) provides a general context for housing density and encourages sustainable well-designed housing developments that are appropriate to urban areas. New housing in Glasgow should reinforce the City’s structure. All new housing developments will have regard to the following objectives:
the provision of a better mix in the size, type and layout of housing, incorporating a high standard of internal and external space that contributes to increased housing choice; and
the creation of more sustainable patterns of development by building in locations that allow accessibility by foot, cycle and public transport to employment, education, health, shopping, leisure and greenspace facilities.
The Council will seek to ensure that new developments provide an appropriate urban scale and townscape form which re-establishes the traditional urban grain. The density of development will vary according to its location and setting (see Built Form Map). Accessibility to public transport will be taken into consideration when determining development applications.
The Council’s objectives in relation to the density of new housing development are set out in the following general guidelines:
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Higher densities will be supported in the City Centre, the Inner Urban Area, along main road corridors and at key nodes and focal points (e.g. rail stations and main bus routes). Developments will also have regard to other local factors that may influence their layout and design;
In the Outer Urban Area lower densities will generally be sought;
On greenfield sites, suitable for mainstream family housing, a maximum density standard will be applied; and
On upper market greenfield sites, layout design, minimum plot and garden sizes and other standards will be used to create high quality housing environments capable of competing with suburban locations outside the City boundary (see policy RES 2: Residential Site Layouts).
A background paper explaining the reasoning behind the general approach adopted in this policy is included in City Plan Technical Note: People. The application of density ranges that vary according to location and public transport accessibility are based on analysis contained in this paper.
POLICY
1. GENERAL PRINCIPLES
(a) Developments should provide a range of housing to encourage a social mix and should make provision for family houses wherever possible and practical, including within the City Centre (see policy CC/RES 2: Residential Development and Design).
(b) The over-development of sites will be discouraged.
(c) Development of large or locally significant sites (see Definition) should be undertaken within the context and framework of a masterplan or planning brief for the site. The Planning Authority will determine whether a masterplan or planning brief is required, and it will be prepared either by the land owner or the developer, whichever is appropriate.
(d) Variations in the prescribed density standards will be permitted for developments of outstanding urban design quality provided that other City Plan standards are met. Proposals that positively contribute to the City’s townscape and heritage, and enhance the local area, are encouraged. Plot size will also be taken into consideration, where appropriate, to ensure layouts meet acceptable amenity standards.
(e) All development proposals for housing will be assessed against:
(i) the appropriate minimum and maximum density standards set out under Density Standards below. It should be noted that all density figures specified in this policy are net (see Definition);
(ii) the ability of a site to accommodate and provide a high quality development using high design standards; and
(iii) the general design criteria set out in policies:
DES 1: Reinforcing Local Character and Identity
DES 2: Urban Design
DES 3: Building Design and Materials
Proposals will also have to meet the requirements of the following policies and standards:
RES 2: Residential Site Layouts;
RES 3: Residential Greenspace Standards;
ENV 12: Landscape Standards in New Development;
TRANS 4: Vehicle Parking Guidelines (Residential); and
(Other relevant policies).
2. DENSITY STANDARDS
(a) City Centre
The density of development permitted in the City Centre will be determined on the basis of design and townscape considerations and the above policies and standards, together with policy CC/RES 2 (see Built Form Map).
(b) Inner Urban Area
To meet the aspiration of generally maintaining higher housing densities within the Inner Urban Area, the density of development permitted should be a minimum of 30 dwellings per hectare. Sites with base accessibility (see Supplementary Guide SG6: Public Transport Accessibility Zones) to public transport may be developed to a maximum density of 100 dwellings per hectare. In areas with high accessibility to public transport, density will be influenced by location, setting, site configuration and other City Plan policies and standards, rather than a prescribed maximum figure. Along main routes and appropriate adjoining blocks, densities in excess of 100 dwellings per hectare will be permitted. Behind these frontages, the minimum standard of 30 dwellings per hectare should apply (see Built Form Map).
(c) Outer Urban Area
For Outer Urban Area sites, a maximum of 50 dwellings per hectare will be permitted on sites with base accessibility to public transport. Densities of between 20 and 75 dwellings per hectare will be allowed for sites with high accessibility to public transport. Larger Outer Urban Area sites (see Definition) should be developed with a mix of house types. The majority of the site area should be developed with non-flatted housing, and the overall density should not exceed 50 dwellings per hectare, regardless of accessibility. In Castlemilk, Drumchapel, Easterhouse and Pollok, the lowering of densities will continue to be supported. Exceptions to the general approach in these four areas will be considered near rail stations, along appropriate main road corridors and at important nodes and focal points that benefit from high level public transport accessibility. In these locations, densities up to a maximum of 75 dwellings per hectare may be permitted (see Built Form Map).
(d) New Neighbourhoods
New residential neighbourhoods will be developed at Drumchapel and Ruchill/Keppoch and eventually in other parts of the Inner and Outer Urban Areas. The aim of the Glasgow Alliance in these areas is to provide attractive, desirable, sustainable neighbourhoods through the development of high quality mixed-tenure housing that has access to good quality schools, shops, public transport, greenspace and other services. The emphasis will be on developing a range and choice of family houses and creating a balanced social and housing mix. Housing densities within new neighbourhoods should adhere to the appropriate density standards. Higher densities will be expected along main road corridors and appropriate adjoining blocks, corner sites and gateways. The opportunity should be taken, where appropriate, to create new street patterns and schemes that are permeable and that maximise the opportunities to create a good quality, well functioning and accessible housing neighbourhood. An example of where this approach has been used successfully is in the Crown Street development in the Gorbals where innovative design has been utilised to maximise the development and design opportunities.
As described in Part 1 of the Plan, local development strategies, planning briefs and/or design briefs will be prepared for some areas of the City (e.g. Areas of Focus), in consultation with developers and the community. This guidance will also require to be used to influence the layout and design of new neighbourhoods.
(e) Greenfield Sites
The Council is looking for a new suburban vision on these important greenfield development sites. It is imperative that any development on these sites is of the highest quality. Proposals that convey a sense of place through spacious traditional layouts and high standards of house design will be encouraged. The Council will be looking for more generous plot sizes where comfortable distance between houses allows landscape quality to have a greater beneficial impact on the layout. Mainstream middle-market housing should be developed to a maximum density of 25 dwellings per hectare. The layout of upper market housing, however, will be generated by the consequence of plot sizes rather than imposed densities.
Development on the greenfield sites identified on the Proposals Map will be expected to comply with a development brief agreed by the Council based on the criteria set out in policy RES 2.
(f) Gap Sites
Development of small infill sites (see Definition) will be assessed on merit having regard to location, surrounding townscape and design quality. Higher densities will generally be permitted in areas of high accessibility to public transport (see Supplementary Guide SG6).
(g) Conversion of Buildings to Residential Use
The appropriate density for conversions (see Definition) is determined largely by the constraints imposed by the existing structure and the surrounding area. Conversions will be assessed on merit having regard to design considerations and other standards. In areas of high accessibility to public transport, higher densities will be permitted. For conversions in the City Centre, see policy CC/RES 2. Support will be given to schemes that create a balanced housing mix, including family accommodation (see policy RES 14: Subdivision).
Notes:
1. The application of density standards based on ranges provides flexibility for developers. The flexibility introduced by setting ranges reduces the extent to which departures will be acceptable.
2. There are locations within the built-up area with accessibility to public transport that is below base level (see Supplementary Guide SG6). Development proposals in these locations should be assessed against the density standards appropriate to base level accessibility. Outwith the urban area, development proposals in areas with below base level accessibility should be assessed against the standards for upper-market housing on greenfield sites.
3. Strathclyde Passenger Transport should be consulted on proposals in these areas in relation to improvements to public transport that may be required as a result of new development.
DEFINITIONS
NET DEVELOPABLE AREA
Net developable area excludes main roads, buffer zones, structural landscaping, other uses such as local shops, school sites where required, and general open space (including important topographical features to be retained, areas for football, mini parks, etc).
Net developable area includes local access roads, parking areas, footpaths and local open space such as children’s play areas and amenity space.
INNER URBAN AREA
Inner Urban Area includes the following broad development areas:
Pre 1919 tenemental stock;
Concentrations of other tenements and high density housing stock;
Former Comprehensive Development Areas; and
Industrial/commercial and mixed development areas.
LARGER SITE
Sites with a net developable area greater than 1.5 hectares.
LARGE OR LOCALLY SIGNIFICANT SITE
These include sites in excess of five hectares, or those that are of key importance to the City, such as greenfield release sites or the New Neighbourhoods.
SMALL INFILL SITE
Gap sites in a tenement frontage or a gap created by the removal of a building (or a small number of buildings) in a street frontage or corner site. Small infill sites exclude land within the curtilage of villas.
CONVERSION OF BUILDINGS TO RESIDENTIAL USE
Developments that require a change of use to residential, e.g. a building formerly in use for commercial purposes. The conversion of buildings to residential use excludes the subdivision of an existing residential property.
UPPER MARKET HOUSING
New-build detached houses with five apartments or more (a separate dining room is considered to be an apartment, a dining area within a living room is not).