Students and student accommodation (higher education, language courses, private further education)
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1 Students and student accommodation (higher education, language courses, private further education) This topic addresses: SA Objective: (3) To meet local housing needs by ensuring that everyone has the opportunity to live in a decent affordable home SEA Theme: Population; Material assets Introduction Demand for student accommodation places pressure on the local housing stock, both from students accommodated directly in private rented housing, and also from student accommodation being developed on sites that may equally be suitable for other types of housing. High proportions of students may also result in perceived or actual harmful impacts on communities accommodating students. Furthermore large numbers of foreign language students accommodated in the city during the spring and summer can impact on public transport and the city centre environment. Oxford City Council has a long standing policy approach to attempt to manage and reduce pressures of students on the housing market. Core Strategy Policy CS25 requires each university to have no more than 3,000 full time students living in Oxford outside of university provided accommodation. To avoid worsening the situation, all increases in student numbers at the two universities should be matched by an equivalent increase in student accommodation. Planning permission will not be granted for new academic facilities if the numbers of students exceeds This policy also restricts occupation of new student accommodation to students in full time education on courses of an academic year or more. The Sites and Housing Plan contains a more detailed policy about the location of new student accommodation (HP5). It recognises that it is important to locate student accommodation in a way that avoids changes in character and great increases in activity along quieter residential streets. It also recognises the issue that new student halls are often proposed on sites that would otherwise be developed for housing and contributions to affordable housing are required from larger student accommodation schemes (HP6). Current policies do not recognise or respond to the differing accommodation needs of undergraduate, postgraduate, and key worker/staff. This might need addressing through the emerging Local Plan. Plans, policies and programmes National Planning Policy Framework The NPPF makes no specific reference to student accommodation. However, key policy principles set out in the document are relevant to informing any Local Plan policy approach. In particular, local planning authorities should plan for a mix of housing based on current and future demographic trends, market trends and the needs of different groups in the community (paragraph 50).
2 National Planning Policy Guidance The final bullet point of paragraph 021 (reference ID 2a ) of the NPPG states that: Local planning authorities should plan for sufficient student accommodation whether it consists of communal halls of residence or self contained dwellings, and whether or not it is on campus. Student housing provided by private landlords is often a lower cost form of housing. Encouraging more dedicated student accommodation may provide low cost housing that takes pressure off the private rented sector and increases the overall housing stock. Plan makers are encouraged to consider options which would support both the needs of the student population as well as local residents before imposing caps or restrictions on students living outside of university provided accommodation. Plan makers should engage with universities and other higher educational establishments to better understand their student accommodation requirements. Paragraph of the NPPG allows for student accommodation to be counted towards the housing requirement for a district, based upon the amount of accommodation it releases from the housing market: All student accommodation, whether it consists of communal halls of residence or self contained dwellings, and whether or not it is on campus, can be included towards the housing requirement, based on the amount of accommodation it releases in the housing market. Notwithstanding, local authorities should take steps to avoid double counting. Current Situation Number of students living in Oxford The Census 2011 provides information on adults living in Oxford who are full time students. It does not distinguish between those at university, school, colleges and other educational establishments, although the majority of full time students aged 18+ are attending one of the two universities. The data shows that 30,000 of the city s adult population was a full time student at the time of the census, which at 24% of the total adult population was the highest proportion in England and Wales. Oxford s two universities had between them over 32,000 students enrolled for full time study in 2014/15 according to the Higher Education Statistics Agency (HESA). Just over 11,000 more students were enrolled for part time study, a significant portion of whom were studying a modular course rather than a full degree. Not all of these students were living in the city or even studying in it Oxford Brookes, for example, has three campuses outside the city and some of its students study at franchise organisations elsewhere. University Student Accommodation Many university students live in halls of residence, either purpose built or university owned accommodation, but there are not enough places in halls of residence to accommodate all students. Most students not living in halls of residence or purpose built student accommodation will be living in private rented accommodation. The majority of University of Oxford students live in university or college owned accommodation. The University of Oxford had 22,346 students attending the University at 1 December Certain students are considered as not generating accommodation requirements, including part time students and students living within the city prior to entry onto a course. At December 2014 there were 17,706 full time students with accommodation requirements. At 1 December 2014 there were
3 14,796 accommodation places provided across the University of Oxford, leaving a total of 2,910 students living outside of university provided accommodation in Oxford. This is a decrease on previous years (see Figure below). This is within the target contained in the Core Strategy, meaning that new academic floorspace could be approved if applied for. Figure 6.4.1: Graph to show the number of University of Oxford students living outside of university provided accommodation 2010/ /15 (based on data provided by the University to inform the City Council s Annual Monitoring Report) Number of students living outside univeristy provided accomodation ,251 3,401 3,508 3,020 2, / / / / /15 Monitoring Year Oxford Brookes University had 16,553 students attending the university at 1 December Taking into account the agreed exclusions, at 1 December 2014 there were 11,617 full time students in need of accommodation, with 5,038 places of accommodation provided by Oxford Brookes University and 3,128 students living at home or outside of Oxford. This results in 3,451 students living in the city without a place in university provided accommodation, which was an increase from the two previous years (see Figure below). Figure 6.4.2: Graph to show the number of Oxford Brookes students living outside of university provided accommodation 2010/ /15 (based on data provided by the University to inform the City Council s Annual Monitoring Report) Number of students living outside univeristy provided accomodation ,611 3,381 2,836 3,072 3, / / / / /15 Monitoring year
4 Visiting students, short term language courses Many students from outside the city attend courses at further education establishments and language schools. Many of these students are on short term courses, often in the summer when they may be housed in university accommodation. Many are also housed in homestay accommodation. These are often younger students, rather than adult (18+) students. Data on the overall numbers, ages and lengths of stay of these students is not readily available. Increasingly, further education colleges are housing their students in speculatively built student accommodation, in direct competition with the universities. Bellerby s, D Overbroecks, Oxford International College and Cherwell College all house some of their students in new purpose built student accommodation. The table in Figure below shows the further education colleges which are beginning to house some of their students in boarder accommodation Figure 6.4.3: Table to show boarding accommodation used by further education colleges College and ages of pupils Course types and accommodation types provided Boarder accommodation Capacity of boarder accommodation (no. pupils) Bellerby s 14+ Boarding and homestay. Age St Ebbe s (bar med) age Pensons Gardens, St Clement s 31 St Aldate s (Spice Lounge) age Luther Court (not yet occupied) 82 D Overbroeck s Yr 7 6 th form Oxford International College Cherwell College 14 6 th form Day students only until sixth form mix of day and borders A level students in halls, IGCSE with host families 106 Banbury Road 20 Hayfield House 18 Benson s 7 Wavy Gate new pb halls (shared with Kings 93 and Brookes) Travis Perkins site (originally restricted to Brookes/UofOx) Cherwell House, Mill Street New purpose built student accommodation In 2014/15 financial year, 55 privately developed student accommodation rooms were completed, with a further 13 rooms granted planning permission. These will be available to private colleges as well as the two Universities. In December 2014 there were 227 additional University of Oxfordprovided accommodation places available compared to the same point in There were also 211 accommodation units under construction relating to the University of Oxford, and the University currently has planning permission for another 361 rooms. Likely trends without a new Local Plan Numbers of university students The graphs in Figure below show that since the 2000/01 academic year, the total number of students at Oxford Brookes and the University of Oxford has grown. This growth has happened in different ways. At the University of Oxford the full time undergraduate population has changed little in size, whereas the number of full time postgraduates has grown by 3,000. At Brookes, growth has been in the undergraduate population. At Brookes the full time undergraduate population was
5 2,500 larger by 2007/08, with little growth since. At the University of Oxford the full time undergraduate population was 2,500 larger by 2007/08, with little growth since. Figure 6.4.4: Graphs showing the changes in student population at Oxford s two universities between 2000/01 and 2014/15, based on HESA data Student accommodation costs Oxford Brookes University has reported that the affordability of student accommodation is becoming a big issue. The highest rents are 178 per week, and the lowest rents are 85 per week. Student accommodation is more frequently coming forward as studio units, rather than cluster flats (where students have individual bedrooms and bathrooms, but share kitchen and living room space). Higher prices are charged for such accommodation. Also the layout of units does not allow for social interaction. It is important that the accommodation provided does not become so expensive that it can only be afforded by the most wealthy students. Sustainability Issues Adequate provision of student accommodation could have a significant beneficial impact on meeting housing need by freeing up properties currently under used, whilst also encouraging vibrancy in communities. However, it is important that this meets needs, rather than generating further demand. The accommodation needs of undergraduate, postgraduate, and key workers/staff are all different and need to be addressed individually. Additional data is required to inform our approach to academic floorspace, student numbers and student accommodation. For example, how many students attend further and higher educational establishments and language schools, the types of courses they are attending and to understand any planned or expected growth in student numbers over the plan period.
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