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Proposed SHAP2
(Student Housing Action Plan, Second Revised
Version)
Introduction
1 Aims The Student Housing Action Plan (SHAP) has
a clear purpose.
1.1 The aim of SHAP is to ensure
that the development of shared housing (HMOs) in Leeds is supportive
of sustainability, in accordance with Leeds City Council’s
policies on sustainability (Corporate Plan, Vision for Leeds), and
in the interests of all concerned, students and universities, Council
and communities. In essence, this means the pursuit of balance
– both balance between HMOs and other housing in & around
Headingley*, and also balance between Headingley and other areas
of the city in the distribution of HMOs.
1.2 The objectives of SHAP target
both the causes and the effects of imbalance, and they are specific,
measurable, agreed, realistic and timescaled (SMART). The principal
cause of imbalance is the demand for student housing in & around
Headingley. (1) The first objective therefore is to reduce the proportion
of students in Headingley Ward to 33% of the population by the next
Census in 2011. (2) The second objective is to increase the proportion
of students accommodated outside ASHORE to 33% of those not living
at home, by the same date. (3) The third objective is to increase
the sustainability of the Headingley area on an on-going basis.
[The Lobby proposes that the indicators of sustainability identified
by the Egan Review 2004 be adopted.]
1.3 The progress of SHAP towards these objectives
is monitored annually, by means of feedback on the objectives (2
below) and evaluation of SHAP itself (3 and 4).
2 Developments The most recent data shows imbalance
increasing, rather than decreasing.
2.1 For the Headingley area, the Development Department
produced a map of Student Population 2000, and more recently,
Main Student Areas 2002. Comparison of the two maps shows
two things: (1) student penetration has increased in existing areas
(for instance, the whole of the area between Woodhouse Moor and
St Michael’s Lane is now saturated, rather than only parts),
and (2) the student housing area has expanded (for instance, across
North Lane and into Beckett Park, into Far Headingley, into Meanwood,
through Burley as far as Kirkstall Lane, and across the river around
Kirkstall Brewery).
2.2 More recent data on balance across the city
is available from Leeds University’s Student Distribution
Maps (2004) and these also show increasing imbalance. Figures
for 2003 show three Community Areas with very high numbers of students
(over 2,000: Headingley, Hyde Park and Burley Lodge), another seven
with large numbers (up to 2,000), seven more with less than 500,
thirteen with under 100, and the great majority with negligible
numbers (under 50: 76 Areas). But figures for the following year,
2004, show that, on the one hand, numbers increased in the most
heavily populated Areas, and on the other hand, the numbers of students
in other Areas actually decreased.
2.3 The CIT Amenity Audit (2004) indicated
the persistence of problems in & around Headingley. Issues recorded
were of three main types, noise, visual amenity and antisocial behaviour.
The Audit concluded “The audit responses clearly indicate
that a number of local residents have suffered as a result of the
poor behaviour from some students, and the lack of responsibility
shown by landlords also adds to the area’s problems”
(4.1). What is lacking is any longitudinal study: but a monitoring
project of letting boards by South Headingley Community Association
shows an increase of a fifth from 2001 to 2004.
3 Actions An assessment of the present SHAP indicates
a range of strengths and weaknesses. Most of the action-points are
either on-going, or have been completed but need to be sustained:
these need to be carried forward. Some action-points have been completed,
and need no further action. Others have been overtaken by events.
A few now seem marginal to SHAP as it is developing.
4 Plan Many significant changes have taken place
since 2002 in relation to HMOs in general and to student housing
in particular.
4.1 Several relevant developments have taken place
nationally in the last few years. The Housing Act 2004 has been
passed, providing for both mandatory and additional HMO licensing.
The Use Class Order has been amended, but without reference to HMOs
(unlike Northern Ireland). The government has commissioned a report
on Students & Community. Major developers (like UNITE) have
take an interest in the student housing market (see UNITE’s
Student Experience Reports). Initiatives have taken place
throughout the UK, and have been shared, especially at the Unipol
conference Students, Housing & Community, and also
through the new National HMO Lobby. Meanwhile, the Planning Act
2004 and the Licensing Act 2003 are coming into effect.
4.2 Many changes in the local context have arisen
directly or indirectly from SHAP itself. The most significant is
the Area of Student Housing Restraint (ASHORE) proposed in the Leeds
UDP Review. Within the Council, the local CIT has established CHEF,
initiated what is now Headingley Renaissance, and appointed
a Community Planning Officer (these are now under the auspices of
the Inner NW Area Committee). Otherwise, the Council has introduced
Headingley Streetscene, a Cumulative Impact Policy for alcohol licensing,
the Noise Nuisance service, parking schemes, poster drums, and has
applied to government for control of letting boards. The Council’s
Code of Standards for landlords has been succeeded by Leeds Landlords
Accreditation Scheme and the Accredited Tenant Scheme, and Unipol
has also revised its Code of Standards. Leeds University has published
a Housing Strategy, appointed a Community Project Officer
and maintained a Neighbourhood Helpline (and is revising its Community
Strategy). Leeds HMO Lobby publishes a quarterly newsletter,
Headway. Meanwhile, national developers have entered the
student housing market, with several purpose-built developments
(including the de facto developing ‘Little Woodhouse Student
Village’).
4.3 In response to such developments, new actions
have been proposed by Leeds HMO Lobby, including a Community
Code, a map for Students in the City, Leeds Left
Bank, Kept in the Community, and proposals for Diversity
Zones, Additional HMO Licensing and a local HMO Officer.
*Unless otherwise indicated, ‘Headingley’
or the phrase ‘in & around Headingley’ refers to
the communities of Central, South and Far Headingley and the neighbouring
communities of Woodhouse, Hyde Park, Little Woodhouse, Burley Lodge,
Burley, Kirkstall and West Park.
Student Housing Action Plan (revised)
Objectives
O1 To reduce the proportion of students in Headingley
Ward to 33% of the population by the Census in 2011.
O2 To increase the proportion of students accommodated
outside ASHORE to 33% of those not living at home, by the same date.
O3 To increase the sustainability of the Headingley
area on an on-going basis. [The Lobby proposes that the indicators
of sustainability identified by the Egan Review 2004 be adopted.]
A Strategic Actions
A1 Develop, and review, a Student Housing Strategy
for each HEI, supporting the aims of SHAP (LMU, UL)
A2 Monitor developments elsewhere (through Yorks
& Humber HMO Group, Smith Report, National HMO Lobby, etc) to
inform SHAP (LCC: SHC)
A3 Conduct an Annual Review of SHAP, based on (a)
monitoring of developments [see A1, A2 above, B5, C4, D4, E7 below],
and (b) SWOT analysis of SHAP (LCC: SHPG)
A4 Nominate (or appoint) a Student Housing Co-ordinator,
with dedicated hours, to co-ordinate implementation of SHAP, in
liaison with other designated officers [see B4, C2a, E3b below]
(LCC)
ACTIONS ON CAUSES
B Restraint within ASHORE
B1 Carry forward ASHORE from Leeds UDP Review to
Local Development Framework, with revisions to Area boundaries and
to Policy H15 (LCC: DD)
B2 Apply to ODPM for additional licensing of HMOs
within ASHORE (LCC: CHO)
B3 Maintain a programme of proactive enforcement
(i) to address substandard accommodation, and (ii) against landlords
who make alterations without obtaining permission (LCC: DD)
B4 Appoint dedicated local officers:
a Community Planning Officer (continuation) (LCC:
AC)
b Community Housing Officer (LCC: AC)
B5 Monitor development of ASHORE policy through:
a annual report on implementation of ASHORE (LCC:
CPO)
b annual report on student numbers in ASHORE (LCC,
LMU, UL)
c annual report on implementation of HMO licensing
(LCC: CHO)
C Reorientation outwith ASHORE
C1 Carry forward Policy H15A of Leeds UDP Review
to LDF (LCC: DD)
C2 Develop student housing outside ASHORE:
a nominate planning officer with watching brief
on development of student housing in city (LCC: DD)
b identify localities across the city for developments,
including conversion of Council properties (LCC: DD)
c review student housing policy in Leeds Housing
Strategy (LCC: NH)
C3 Promote guidance to student housing outwith
ASHORE:
a publish guide Leeds: a city for students
(LCC, LMU, UL)
b review housing guidance to students (USH)
c conduct route review of bus services (especially
service 96) (WYPTE)
C4 Monitor distribution of student housing throughout
Leeds:
a annual report on housing developments outwith
ASHORE (LCC: DD)
b annual report on student numbers throughout Leeds
(LMU, UL)
D Rediversification within ASHORE
D1 Develop ‘fine-grain’ development
policy within ASHORE, including Design Statements, and Diversity
Zones, carried forward as an Area Action Plan into LDF (LCC: CPO)
D2 Develop affordable housing policy for Headingley
in Leeds Housing Strategy (LCC: NH)
D3 Promote affordable housing in & around Headingley:
a Special Purpose Vehicle to acquire, convert,
let/lease HMOs, as affordable housing (LCC: NH)
b establish Community Land Trust for the same purpose
(LCC: AC)
D4 Monitor housing developments in & around
Headingley through annual housing report (LCC: CHO)
ACTIONS ON EFFECTS
E General Effects on the Community
E1 Promote Community Code in & around
Headingley (LCC: AC, LMU, LMUSU, LUU, UL, USH, LPA)
E2 Develop frameworks to promote liaison between
students and community (LHMOL, LMUSU, LUU):
a review provision of information to students about
community issues & organisations
b review frameworks for student engagement in the
community
E3 Develop HE contribution to community sustainability
(LMU, UL), including:
a develop Community Strategies
b develop HEI Community Liaison Team, including
Leeds University’s Community Project Officer and Neighbourhood
Helpline
c promote HE community liaison
E4 Develop private rented sector contribution to
community sustainability, including the Leeds Landlord Accreditation
Scheme, the Tenant Accreditation Scheme, and Unipol’s Code
of Standards (LCC: NH, USH)
E5 Review efficacy of community dialogue in &
around Headingley, including (i) meetings (CHEF), and (ii) media
(eg Headway newsletter) (LCC: AC, LHMOL)
E6 Promote developments supporting sustainability
in & around Headingley, including:
a the Leeds Left Bank strategy (LCC: AC)
b a Community Development Trust (acquiring community
assets) (LCC: AC)
E7 Monitor community impacts in & around Headingley
in an annual Sustainability Assessment:
a key messages from CHEF to SHPG (LCC: AC)
b annual HE liaison report, including Neighbourhood
Helpline report (LMU, UL)
c annual student action reports (LMUSU, LUU)
d monitoring of social, environmental & economic
impacts [see F5, G4, H3 below]
F Social Effects
F1 Review visibility of universities’ disciplinary
procedures (LMU, UL)
F2 Promote community safety in & around Headingley
a promote community safety awareness among students
(LMU, UL, WYP)
b establish police base in Headingley (WYP)
F3 Review planning conditions to minimise environmental noise (LCC:
DD)
F4 Co-ordinate agencies concerned with noise nuisance,
and address particular practices:
a review cab-alerts [phones, not horns] (LCC)
b review house alarm procedures (LCC: NH)
F5 Monitor social impacts in & around Headingley:
a annual report on crime and antisocial behaviour
(WYP)
b annual report on noise nuisance (LCC: NH)
G Environmental Effects
G1 Review planning conditions in & around Headingley,
including (i) minimising environmental impact, (ii) relating to
litter arising from retail outlets, (iii) resisting applications
for Letting Boards (if submission to ODPM is successful) (LCC: DD)
G2 Review cleansing practices in & around Headingley:
a implementation of Streetscene (LCC)
b develop an Environmental Call-Centre (LCC)
c schemes for Student Clear-Ups at the end of term
(LMUSU, LUU)
G3 Review curtilage maintenance in & around
Headingley:
a develop Man with Van scheme (LPA)
b develop garden maintenance initiatives (competition)
(USH)
G4 Introduce parking permit schemes throughout
the ‘core’ areas of ASHORE (LCC: AC)
G5 Monitor environmental impacts in & around
Headingley:
a annual Streetscene report (LCC: AC)
b annual garden survey (USH)
c annual report on Development Control & Compliance
in ASHORE (LCC: CPO)
H Economic Effects
H1 Resist development of ‘resort economy’
in & around Headingley in LDF (LCC: DD)
H2 Implement Headingley Renaissance:
a incorporate Headingley Renaissance into planning,
housing, transport, etc policy (LCC)
b promote Headingley Licensees’ Best
Practice Guide (LCC: CHSG)
c review cab & public transport provision in
central Headingley (LCC)
H3 Monitor economic impacts in & around Headingley:
a annual report on local economy (LCC:CPO)
b annual report on local Cumulative Impact Policy
in Leeds Licensing Policy (LCC: CPO)
Key: AC = Area Committee, ASHORE = Area of Student
Housing Restraint, CHEF = Community & HE Forum, CHO = Community
Housing Officer, CIT = Community Involvement Team, CPO = Community
Planning Officer, DD = Development Dept, HEI = Higher Education
Institution, HMO = House in Multiple Occupation, LCC = Leeds City
Council, LDF = Local Development Framework, LHMOL = Leeds HMO Lobby,
LMU = Leeds Metropolitan University, LMUSU = Leeds Metropolitan
University Students Union, LPA = Leeds Property Association, LUU
= Leeds University Union, NH = Neighbourhoods & Housing, ODPM
= Office of the Deputy Prime Minister, PRS = Private Rented Sector,
SHAP = Student Housing Action Plan, SHC = Student Housing Co-ordinator,
SHPG = Student Housing Project Group, SMART = Specific, Measurable,
Agreed, Realistic, Timescaled, SWOT = Strengths/Weaknesses/Opportunities/Threats,
UDP = Unitary Development Plan, UL = University of Leeds, USH =
Unipol Student Homes, WYP = West Yorkshire Police, WYPTE = West
Yorkshire Passenger Transport Executive (Metro).
Leeds HMO Lobby
9 May 2005
On 20 April 2006, Leeds City Council's Shared Housing Group adopted
a revised Shared Housing Action Plan (SHAP2)
derived from the Lobby's proposal.
Leeds HMO Lobby
email: hmolobby@hotmail.com
website: www.hmolobby.org.uk/leeds
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