Purpose Built Student Accommodation SPD

Figure 7 - Actual figures for Leamington Spa postcodes CV31, CV32 and CV33 are as follows in the academic year 2017/18

These figures have been provided by the University of Warwick utilising data taken from the Student Records system on 23/11/2017.

Students considered include all full-time undergraduate and postgraduate students who were fully enrolled on courses for the 2017/18 academic year.

Full-time students have been determined by reference to the "Mode of Attendance" field in the university's student records system (all students with a Mode of Attendance of "F: Full-time" have been included in the data set; all other students have been excluded).

Figure 8 – Concentrations of students in the private rental sector

The number of students in the private rental sector (pale grey on the graph in Fig 8) is considerably smaller than other groups (red on the graph). (Note these are not just HMO's, but all private rental figures).

What is currently on offer?

University of Warwick

Accommodation on offer: All first year students are guaranteed accommodation on campus in self- catered rooms. The rooms vary in price currently (2018/19) costing between £76-£181 per week dependent on facilities. A few families can also be accommodated in up to three bedroom houses on campus if necessary, but these are allocated to overseas staff. There are also rooms available for final year undergraduate students wishing to return to campus and postgraduate students.

The university manages over 2,000 rooms off campus in Coventry, Leamington Spa and Kenilworth supporting students post year 1, mature students and those with families , to find off campus accommodation. Properties are located either within walking distance or close to a regular bus service to the main University campus. Students are advised to look for privately rented accommodation in Coventry, Leamington Spa and Kenilworth, for such accommodation after their first year.

The University also has an Innovation Campus in Wellesbourne. There are a limited number of three bedroom houses on campus available at £595 pcm. A bus service links the main campus to that at Wellesbourne.

In terms of accessibility, the bus service runs direct to Coventry, Leamington Spa and Kenilworth. This puts particular pressure on these areas for student accommodation. Within these areas, Coventry (Earlsdon, Canley, Cannon Park and Tile Hill) and south of Leamington Spa as far as Sydenham, are the cheaper areas to live in terms of accommodation and availability of private rental properties.

The University has, for a number of years, nominated rooms in PBSA's and managed a number of properties, some including up to 100 rooms. Off-campus managed rooms in areas with direct transport links to campus are promoted as an alternative after the first year, through the University website.

Most universities including the University of Warwick, have a 'Student Accommodation Code' that lays down the minimum standards and requirements for such accommodation (e.g. minimum room sizes) to meet the needs of students. The code can be viewed at www.thesac.org.uk for all of the accommodation on campus. Detailed requirements for properties managed by the University can be viewed at https://warwickac.uk/services/accommodation/landlords/landlord-advice/property- requirements/. Additionally, students are also required to sign up to a 'Code of Conduct' which includes respecting the local area and other residents in the community.

The code states that "We expect all members of the University to recognise their responsibilities and to:

• behave in a way that respects the rights and dignity of others
• treat others fairly
• display courtesy and good manners in every interaction appreciating that individuals have different styles and expectations
• value differences in others and the contribution they make
• work and study within the University on a co-operative basis
• demonstrate a commitment to upholding the University's policies on "https://warwick.ac.uk/ services/equalops/dignityatwarwick/diversity_and_inclusion_policy_may_2016.docx" Equality, Diversity & Inclusion.

This relates to behaviour on campus but also off-campus https://warwick.ac.uk/services/equalops/ dignityatwarwick/.

Coventry University

Accommodation on offer: All first year students are guaranteed university owned accommodation in their first year. The university also has a number of partners providing/managing student accommodation across a number of buildings located within or close to the city centre in purpose built blocks or conversions of older buildings. Accommodation ranges in price from £4,640 per 40 week contract to £6,794 for a 43/44 week contract. This accommodation is being promoted on the website with little mention of private landlord accommodation in HMO's. PBSA provision is growing rapidly in Coventry and there may be an overprovision according to sources beyond the university which will have to be dealt with in future years. (Information from university website)

Where do students live currently in Warwick district?

The following maps show the concentration of students in privately rented accommodation in the district. It is evident that the concentrations are along the transport corridor from Leamington Spa, through Kenilworth and then on to the universities.

The highest level of student numbers are just to the south of the central area of Leamington Spa as suggested by previous studies and public perception. This is due to the relatively cheaper rents offered in this part of the town and the suitability of properties for conversion to HMO's. It is also convenient for the town centre, for bus routes and for the railway station.

Figure 9 Student Households as % of Total by 2011 Output Area

Source: 2011 Census

High concentrations of private renters will typically lead to a more transient population in the local area.

The residents' view point:

The views of some local residents have been provided by members of South Leamington Area Residents (SoLAR). SoLAR representatives have highlighted issues with transience in that students will soon move on and as a result do not invest in the local community to the same degree and often have a disregard or lack of understanding about the impact they have on more established communities. This happens at least on an annual basis and means that residents do not know who their neighbours will be and what affect that will have on their living conditions. In addition to this, residents are concerned that their community changes not only annually, but during non-term time when students tend to go home unless they are overseas students who cannot go home so often. During the summer months for example, residents describe their local area as a 'ghost town'. It no longer feels like the residential area that they knew and can feel intimidating.

There is also disagreement about the contribution that the student population make to the local economy and how that local economy changes to meet the demands of students. Small retail shops, or the 'corner shop' as it once was, has been replaced by a multitude of take-aways and bars. More centrally shops are also converted to additional residential development, clubs, bars and leisure uses. This has altered the character and dynamic of areas where there are concentrations of HMO's.

The problem of waste, particularly at the end of an academic year, is an additional problem with both students and landlords piling up rubbish in the street where it is an eyesore and attracts vermin. Ordinary household refuse bins are said to be wholly inadequate to deal with the amount of refuse generated by this type of accommodation.

Residents also raise the issue of noise and anti-social behaviour. Some of this can be attributed to students as the problem is reduced out of term time, however not all such instances can and the nearer the town centre, the more likely these problems are to be experienced. It is the presence of students in a concentrated area, rather than the students themselves, that has led to a perceived increase in burglaries.

Residents believe that, far from being a popular area chosen by students, their area is actually attracting more students because of the existing number of students already located there. Friends want to live close to one another and this intensifies and concentrates the demand in specific areas.

There is additional pressure put on local health services as students not living on campus are unlikely to be registered with GPs located there. They are much more likely to use doctors and dentists located close to where they are living. Exam time exacerbates these problems as stress and mental health issues are at their worst and add pressure to existing services (BBC, Sept 2017).

There are other effects on the local area which are not immediately apparent. School rolls are dropping for example as the number of families reduce. This could eventually force the closure of some local schools. Larger family homes are bought up by landlords and converted to HMO's which reduces the housing stock available for family occupation. A concentration of HMO's in an area therefore has considerable impact on the ability of a family to occupy a suitable house.

Policy H6 (above) of the adopted local plan and the accompanying Article 4 Direction was designed to control the number of HMO's in a designated part of Leamington Spa. This covers most of the urban area and includes all the wards that are most affected (see fig 10).

Residents feel that it is 'too little too late' as many HMO's were already established when this policy came into being. They also feel that it is not implemented strictly enough and that some planning applications are being granted consent at committee to the detriment of the local community.

Figure 10 – Article 4 Direction coverage map

The popularity of the south of Leamington for student HMO's is partly due to being located on a direct public transport route to the University. Residents feel that if transport routes were expanded to cover other parts of the district, the pressure for HMO's in their area would reduce and a more dispersed pattern would emerge. The cost of this travel is also an important factor and other towns and cities with this problem offer reduced travel costs to students with a pass. They also feel that the university should be doing more to promote and subsidise the use of electric buses to reduce the negative impact on air quality in parts of the district where this has become such a problem that air quality management areas (AQMA's) have been designated; in the south of Leamington Spa this is centred on High Street, Clemens Street and Bath Street.

Residents views regarding the provision of PBSA are that although it may be a good thing in that HMO's could be freed up, dispersal is unlikely and that the popularity of areas along the existing transport route and where students are already concentrated will continue increasing pressure and stress.

Figure 11 – The Hotspot Map of Waste Issues in Leamington Spa

Source: Warwick District Council

There is a correlation between the maps of concentration of the student population and the incidence of waste issues across the centre and south of Leamington Spa, although this is by no means conclusive evidence that students are to blame. Similarly, complaints about noise and nuisance cannot be entirely laid at the door of the student population.

In order to deal with the occupation of HMO's by students in the area in and around Leamington, it is proposed to encourage more PBSA building thus providing an alternative for students, still within a sustainable location, but built specifically to address their needs and of good modern construction and design with added facilities that will be attractive, such as communal social and study areas and managed property with on-site security.

To ensure however, that PBSA is provided in a sustainable and suitable location and to a high quality of design, the following policies provides a series of criteria against which all new proposed developments will be assessed.

The Policies

Purpose built student accommodation (PBSA) is defined as a development, normally in the form of a single block of residential accommodation used by students in full time education at the university and colleges in the area. The accommodation can comprise a mix of cluster flats, a communal lounge and bathroom and studio flats, a single room of accommodation containing bed space, living space and en-suite facilities. The accommodation often includes communal common, gyms/games rooms and laundry rooms

NB: for the purposes of this document and policies PBSA guidance will also include all non HMO conversions which provide student accommodation in a format consistent with the above definition. Also, although the usual model for PBSA's is to provide self-catering accommodation, this document and policy will also apply to catered student accommodation.

(1) Explanation for the above criteria

Criterion 1

It is important to ensure that at least the current need is met locally and exceeded where evidence shows that the demand for student accommodation is likely to increase for the foreseeable future and to encourage students out of HMOs. This is to ensure that more pressure is not put onto other types of rented accommodation, particularly HMO's, where there is a need for families and others who wish to rent rooms and are prevented due to lack of supply. The aim of providing PBSA is to divert most of the student population into this type of accommodation and ease the pressure elsewhere. It is recognised that there will always be students who wish to live in HMO's, but the numbers can be reduced if provision is made in PBSA, particularly for overseas students, whose numbers are growing with the success, investment and popularity of the local universities and colleges.

Sustainable locations need to be identified to enable proper provision of PBSA's that won't have a negative effect on the local community who currently feel that there is a high concentration of students in their area which affects their lives in an adverse manner. While it is important to ensure that students are able to access their place of study along public transport routes or allow easy access by cycling or walking, there are other factors that also need to be considered. Locating PBSA away from traditional residential areas where noise disturbance and refuse issues are exacerbated will also need to be taken into account when considering the suitability of a location and a balance has to be reached.

Criterion 2

This SPD sets out parking standards for PBSA as they are not included in the council's current adopted parking standards. They are based on the experience of other local authorities and the standards (see benchmarking exercise in Appendix 2) that they have decided and on the fact that the universities do not encourage students to have cars either at their place of study or temporary home. There is a need for some disabled parking however and parking for those dropping off and collecting students at the beginning and end of term. There also needs to be space for waste collection vehicles, emergency services and delivery/maintenance vehicles on site together with appropriate manoeuvring space.

The experience in areas of high concentrations of HMO's is an increase in on street parking. Some parking on site is therefore necessary to ensure that on street parking is kept at an acceptable level, particularly where accommodation is located further away from bus routes. Additionally, there may be on site staff to manage the building and a parking space is required to serve their need. In order to encourage the use of cycles to access study and other facilities, a method of secure storage is also required at a rate set out in table 2.

It may be acceptable to make car parking areas more attractive by demarcation without black-top and white lined spaces. This can be discussed with development management officers in advance of submission of a planning application for such a scheme.

The parking standards for PBSA are given in table 2 below

Secure cycle parking should be located within buildings or near to entrances/exits of the premises.

Table 2 – Parking standards for PBSA

*4as defined in the adopted local plan

Criterion 3

This is to ensure that not only do PBSA buildings provide accommodation for students, but also other uses which will secure an active frontage reducing the perception of a 'ghost town' when students are not in residence. This approach can also contribute to the integration of students into the community.

Criterion 4

This criterion is necessary to ensure that PBSA includes all the facilities needed to ensure that students are provided with good quality designed accommodation that is conducive to study and to social interaction whilst also providing day to day living facilities in line with the universities 'Student Accommodation Code'.

UK universities and colleges are inclusive places that welcome disabled and non- disabled students. They are legally required not to discriminate against disabled students.

Both private and university accommodation must adhere to the Equality Act 2010 and be fully accessible and may require bespoke furniture, such as height adjustable beds and types of mattresses, ergonomic chairs and bathroom requirements.

Externally, it is important that building design reflects any historical references locally and is built to a high standard and being sympathetic to the locality in form, massing, height and the use of materials. This is of particular concern in conservation areas and alongside the river and canals.

External amenity areas should use appropriate lighting schemes to improve the appearance of the scheme but also ensure that external lighting is designed so as not to cause nuisance to neighbouring uses.

Criterion 5

An appropriate management plan will include the requirement for students to sign up to a 'Student Code of Conduct' either with the university or the provider of such accommodation.

It will also include details of the facilities and arrangement for the storage and disposal of waste and recycling materials; details of the proposed management of the building and how staff can be accessed in case of problems with the accommodation, with details of any on site staff; a proposed cleaning and maintenance regime; access and egress arrangements via a security system; control of car parking and access to secure cycle storage facilities; arrangements for arrival and departure at the beginning and end of term and arrangements for community liaison through university staff and/or the local community.

Criterion 6

Peer group friendships are forged in the first undergraduate year at university and groups of students then wish to share suitable accommodation in years 2 and 3.

To ensure that these groups of up to 12 sharing, can remain together, a variety of configurations of rooms should be provided within PBSA flats/houses.

Criterion 7

For the foreseeable future and certainly during the life of the current local plan (2011-2029), student population figures look set to increase year on year. PBSA is particularly popular amongst overseas students; the fastest growing sector of the student community. However, should student numbers stabilise or even decline in future years, e.g. through the unknown consequences of Brexit for example, there may come a time when not all PBSA is required for student use. In order to future proof these buildings, it is important to ensure that, in the design process, the potential future conversion to other uses is taken into account. Modular and timber framed buildings for example cannot be changed internally once erected and this would result in the need for unsustainable demolition and replacement. To ensure that buildings can be reused, internal partitioning must be moveable/removable and ceiling heights should be similar to those in domestic houses to allow a change of use to other residential or commercial uses. External materials should be of high quality and built to last. To ensure that these issues have been considered and factored into the scheme, a planning statement should be included with any planning application for a PBSA proposal together with a plan demonstrating how the building's use could be changed in future.

Criterion 8

The Local Plan is the policy document for Warwick District. All developments are governed by these policies and any review or replacement of the document will also apply. Any 'made' Neighbourhood Plan applicable to the area in which the PBSA is proposed should also be consulted for design guidance and relevant policies. This SPD is a document that supports the Local Plan and has been prepared in conformity with it. Developers of PBSA are advised that these documents should inform their design. Planning applications and all such proposals will be assessed against the criteria and policies in all relevant documents.

Criterion 9

It is necessary to provide not only a pleasant landscaped area as the setting for new or converted buildings, but also to allow for a social space externally where people can sit and relax. It also allows for soft landscaping which can provide trees for screening and the provision of shady areas during warmer months.

Locating PBSA in the district

There will always be a preference for student accommodation to be located on the relevant campus.

There are obviously certain parts of the district that have proven especially popular with students when looking for accommodation off campus; central and south Leamington Spa in particular. This does not mean however, that these are necessarily the areas of choice for students and are more likely to be indicative of a location away from the University campus but with good transport links and cheaper rental accommodation in older housing stock, more suited to conversion. It is however these very houses that the council wishes to see freed up for occupation by those other than students or returned to the housing market. These are the houses most likely to be purchased by first time buyers wishing to invest in a property and make home improvements to increase the value and living standards. Several options have been considered in exploring the best locations for PBSA.

1. In the Town Centres of Leamington Spa, Kenilworth, Warwick and to a lesser extent, Whitnash.
2. Along the transport corridor to the university.
3. Close to the university and within easy walking and cycling distance
4. Elsewhere in the district

Taking each of these in turn,

1. Town Centres are already crowded places, but they are also where the majority of the facilities and services are located. The advantages of Leamington Spa and Kenilworth town centres are that they are also along the main bus route to the university. Warwick is popular to a lesser extent as the transport services are not so regular and Whitnash is not as close to the relevant bus services.

2. Along the transport corridor/at transport hubs

Universities do not want or encourage their students to bring their cars onto the campus where parking is limited or not available other than in car parks with a high associated cost. This however, does not prevent students from bringing their cars with them from home and leaving them parked near their accommodation in the local area, predominantly on street, until required either to go home or further afield for leisure pursuits. Very regular and well used bus services operate along the route from Leamington Spa to the university and include services U1, U2, U12, 11, 11U, 12X, 60, 43 and the 'hopper' service 18, 18A and 12X. Stops include Coventry railway station, University Hospital, Warwick Hospital, Coventry City Centre, Cannon Park shops and Ricoh Arena. Several services enter the campus and follow a circuitous route which serves individual parts of the university complex. It is therefore logical to provide PBSA along this route, although there are parts of the transport corridor that are less suitable as they are in the green belt or isolated from other services.

Rail services are also good and with a new station being opened recently in Kenilworth, this could add to the attractiveness of living in this area for those students attending Coventry University in particular, or even travelling further afield to Birmingham.

It may be possible to extend the public transport offer if suitable sites can be found given the influence that the university has with regard to bus routes.

Figure 12 – Current public transport service links to the University of Warwick and connections forward to Coventry

3 Close to the University of Warwick

This approach may well be the most popular amongst local residents, particularly those who are aggrieved by the number of students living in their On the other hand, it is that isolation that leads to a less harmonious integration between the student population and long term local residents.

There may be private landowners with previously developed land in the green belt who are interested in providing land for this use. If a suitable, sustainable location can be found that is capable of providing sufficient footprint in terms of existing non- residential buildings to allow for conversion or redevelopment, this could be considered. This land would need to be located within easy reach of the university.

Unfortunately, such a location is unlikely to be popular with those students looking for second and third year undergraduate accommodation since it does not provide the facilities and entertainment that a town centre does, nor does it provide that break with the restrictions and conformity of campus living so desired by students after their first year in halls of residence. If such a location is likely to be unpopular with students, it stands to reason that a developer of such accommodation is unlikely to wish to provide it in that area.

4 Elsewhere in the district

Having considered specific options in the previous three scenarios, the remainder of the district also needs to be considered.

A considerable area, particularly in the north of district and therefore close to the university, is within the Warwickshire Green Belt. Approaching 80% of the district is covered by green belt within which development can only take place where 'very special circumstances' can be demonstrated. The NPPF at para.88 states "When considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. 'Very special circumstances' will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations."

This very much restricts consideration of other parts of the district and allocating residential land for the Local Plan has demonstrated that it is not only difficult to find sufficient land but it is also difficult, even through the Local Plan process, to amend the green belt boundary to accommodate new uses. It is therefore those pockets of land which can be described as 'previously developed' sites that offer the best opportunities. These may include agricultural buildings for example which could be replaced with a building of the same footprint to accommodate this use.

Land outside the green belt remains expensive and under considerable pressure for other residential uses and will again be considered as part of the review of the local plan which is due to commence shortly. This pressure may result in little coming forward for PBSA unless part of a bigger, mixed use scheme.

CHAPTER X

Conclusion

In order to provide a sustainable, achievable and popular location for PBSA, there are certain areas that will be more suitable locations than others. With reference to the above options, it seems likely that the best option will be one that combines 1 and 2;

i.e. Town centres and the public transportcorridor.

There are potentially more areas that could be considered in relation to option 2 than is currently the case as the University of Warwick has influence over the public transport providers and can suggest new routes that would serve other parts of the district. It is also the case however that the student population are more likely to choose town centres for easy access to leisure activities and all local facilities. This could mean that Kenilworth and Warwick provide an alternative to south of Leamington town centre. Kenilworth is already coming under the scrutiny of developers in this field as a location for student accommodation. This is largely due to its proximity to the university and to the existing transport corridor. If this corridor could be extended into Warwick or to a lesser extent, Whitnash, a wider range of potential sites is opened up to such proposed developments. Links could also be made to the new Kenilworth railway station to open up a wider search area for potential sites.

Whilst option 3 is likely to prove very popular amongst the public; locating students away from existing residential areas and closer to the university, it is recognised that this is much harder to provide given the green belt designation of most of the relevant area. It would also be harder to encourage students to live in an area that relates strongly to the university but poorly to the town centres with their obvious attractions and services. Students beyond their first year on campus are looking for the separation from the university that living in towns provides. This results in a lack of interest from developers of schemes for student housing and an increasing reliance on HMO's in the existing towns, more specifically, Leamington Spa. It is considered therefore that this option is a less realistic proposition.

Option 4 is not considered to be a realistic one due to green belt and countryside status. These areas cannot offer the facilities or interest for students and are unlikely to be acceptable in village and other rural locations, particularly where there are already issues with the provision of public transport and access to the towns with their accompanying services and facilities. Rural communities would be put at risk of being outnumbered by large numbers of students who would be unable to contribute to the local community given the time spent in travel and study. It is unlikely that this option would be popular with providers, students or the local population.

CHAPTER X

Glossary

Amenity: The extent to which people are able to enjoy public places and their own dwellings without undue pollution, disturbance or intrusion from nearby uses.

Amenity space: an area provided externally that allows occupants of dwellings to enjoy outdoor activity or relaxation within the curtilage of the dwelling or close by

Green belt: Land allocated within the Local Plan that is intended to prevent urban sprawl by keeping land permanently open in character and appearance. Guidance on green belt policy is contained in the National Planning Policy Framework. The Local Plan defines detailed boundaries of green belt land.

House in Multiple Occupation (HMO or HiMO): Generally a house or flat shared by an unrelated group of people. Usually they have their own bedroom and share the bathroom and/or kitchen facilities. Where three or more unrelated people share a house of flat in this way it is defined as a HMO. It does not include a house converted to self- contained flats. Note that many HMO's also, but not exclusively, house students.

Houses in Multiple Occupation (HMOs) and student accommodation - 100m radius: The 100m radius is used to calculate concentrations of HMOs and student accommodation in accordance with Policy H6. The calculations are undertaken as follows:

• Measurements are taken from the centre point of the front elevation of the application property
• All properties that fall within the 100m radius circle (whether fully or partially) are to be counted.
• For the purposes of the calculation, each flat in a block of flats needs to be counted as one dwelling unit.
• Each HMO cluster (self-contained unit) within a student accommodation block needs to be counted as one dwelling unit

Local Plan: The plan for the future development of the local area, drawn up by the local planning authority in consultation with the community. In law this is described as the development plan documents adopted under the Planning and Compulsory Purchase Act 2004

Neighbourhood Plan: A plan prepared by a Parish Council or Neighbourhood Forum for a particular neighbourhood area (made under the Planning and Compulsory Purchase Act 2004)

Nomination Agreements: Nomination Agreements are entered into between the university and accommodation provider whereby the agreement is to nominate a minimum number of students into the accommodation each year and for an agreed period in return for a level of control on rents and some operational matters

Purpose Built Student Accommodation (PBSA): normally in the form of a single block of residential accommodation used solely in term time by students in full time education at the University and Colleges in the area. The accommodation can comprise a mix of cluster flats, which normally contain around 6 bedrooms, a communal lounge and bathroom and studio flats, a single room of accommodation containing bed space, living space and en- suite facilities. The accommodation often includes communal common and laundry rooms.

NB for the purposes of this document and policy, PBSA guidance will also include all non HMO conversions which provide student accommodation

Supplementary planning documents (SPD): Documents that add further detail to the policies in the Local Plan or expand those policies. They can be used to provide further guidance for development on specific sites, or on particular issues, such as design. Supplementary planning documents are capable of being a material consideration in planning decisions but are not part of the development plan.

Sustainable transport modes: Any efficient, safe and accessible means of transport with overall low impact on the environment, including walking and cycling, low and ultra-low emission vehicles, car sharing and public transport.

Town centre: Area defined on the Policies Map, including the primary shopping area and areas predominantly occupied by main town centre uses within or adjacent to the primary shopping area. References to town centres or centres apply to city centres, town centres, district centres and local centres but exclude small parades of shops of purely neighbourhood significance. Unless they are identified as centres in Local Plans, existing out-of-centre developments, comprising or including main town centre uses, do not constitute town centres.

Urban area: The urban areas are identified on the Policies Map and are Royal Leamington Spa, Warwick, Kenilworth and Whitnash. These are highly sustainable locations with a wide range of services and facilities including schools, shops, cultural and recreational provision as well as jobs and transport facilities. These locations also provide the best opportunities for developing new, and expanding existing, infrastructure to meet the needs of new development.