Report on the Host City Market Consultation

Host-City is a project that stems from an initiative by the Ministry of the Interior and Kingdom Relations. The Ministry aims to encourage the rapid provision of flexible housing, including at temporary locations. There appeared to be reluctance, particularly among housing associations, to purchase these homes when there was no prospect of long-term (30-year) operational opportunities. For this reason, the Ministry of the Interior and Kingdom Relations created several Host-Cities across the Netherlands. A ‘Host City’ consists of a fixed core of permanent homes, supplemented by ‘host plots’ onto which flexible homes from elsewhere can be relocated and let out. The concept is based on the flexible homes remaining the property of their original owners, but being let out by a local housing association to local people seeking accommodation.

Host-City Beekbergsebroek will consist of a permanent core of 300 homes and 200 host plots. To this end, the Ministry, local housing associations and the local authority have signed a contract stipulating that the permanent core and the first development site for 50 host plots must be completed by 1 January 2029.

The local authority has designed a robust urban development framework within which the building plots are situated. The intention is for the council to be responsible for preparing the public spaces within the framework for construction and habitation, whilst seeking collaboration with market parties to develop the building plots on which the permanent core is to be realised. Of the 300 core homes, 77 will be developed by a local housing association as social housing. The municipality intends to select one or more parties for the remaining core homes. The housing associations have indicated that, once the local authority has selected a party or parties, they are willing to explore potential collaboration with these parties as well.

During this market consultation, the council would like to hear how market participants view the proposal. This information will serve as input for the tender to be drawn up at a later date.

What did we collect?

General

• Market stakeholders have indicated that greater clarity regarding future developments in the southern Stadsrand area is desirable and necessary. Both developers and future residents want to know what they can expect next in relation to Host-City. Prevent “isolation” and take into account what is to come, in terms of spatial planning, programme and organisation.
• Which groups of residents are interested in homes in a completely new development area? Carry out a thorough target group analysis and focus on requirements (e.g. regarding sustainability) and on creating homes that are suitable for the relevant target group(s). Also investigate which target groups, for example, would not be put off by the fact that there will be no local amenities in the area for the time being.
• The host plots within the development are an uncertain factor. What types of homes will be built, and will they be of a high standard? Is there any certainty that homes will actually be built?
  Response from Apeldoorn Municipal Council: The flexible homes to be installed on host plots must comply with the Building Decree (currently the BBL). These homes are not assessed against municipal planning and design requirements.
  The local authority may reallocate the development sites to another location within the southern boundary. If the host plots are not utilised, the development sites may be built on or incorporated into the established town centre.
• Move away from the name “Host-City” as soon as possible. Ensure a ‘strong identity of its own’ and effective branding for the entire area and for Host-City. One possible theme could be ‘water’. Explore opportunities to link this with aspects such as heat resilience and recreation.
• It’s good that the council is now consulting market stakeholders. Keep doing so; we can add value at every stage. Among other things, this can help save time.
• The power supply must be secured in advance and/or the plan must make provision for it. This must be made clear in advance.
• Involve partners such as the Water Board and Liander at an early stage.
• Ensure that terms are clearly defined. What is meant by ‘flexible housing’, ‘factory-built homes’ and terms such as ‘bio-based’?

Framework and construction areas

The local authority has drawn up an urban development framework for Host-City, featuring a robust public space with building plots within it. The aim is to strike a balance between diversity and unity in housing development. In addition, consideration is being given to ensuring a coherent visual quality and how different residential areas relate to one another.

When allocating the building plots, the local authority decided to locate social housing on separate plots. The housing associations view separate plots as a positive development and have indicated that a more dispersed distribution of their plots across the area would be desirable.

What is the view of market participants regarding the proposed framework?

• The framework is regarded as a clear, efficient and practical structure. Call to action: ensure sufficient flexibility for further elaboration and implementation; do not impose further restrictions on the construction areas in order to maintain maximum freedom in the subsequent process.
• The framework could be even more robust; add more greenery and enhance the landscape.
• Ensure good spatial connectivity as the plan is further developed.
• Do not make the construction areas (per batch) too small; take a broader view and ensure interchangeability.
• For smaller market players, smaller building plots and/or the option to develop sub-plots are actually desirable.
• Larger developers sometimes set a minimum number of homes to be built.
• Ensure that the host fields are of good quality. Create the green infrastructure in anticipation of the arrival of the first homes.

Housing Programme

The council aims to implement a diverse housing programme within Host-City, comprising a mix of social, mid-range and high-end homes. In the core area, 300 homes will be built, of which 77 (social housing) will be allocated to housing associations in Apeldoorn. All homes to be built on the host plots will be social housing and will be let to ordinary house-hunters.

• Why so many flats? Opt for more detached houses.
• When it comes to the allocation of social housing, market players agree with the housing associations that these properties would be better distributed more widely across the area. This contributes to greater inclusivity and a more diverse neighbourhood. However, there is a difference of opinion as to whether housing association properties should have their own building plots or whether a mix of housing types within the same building plot should also be permitted.
• The quality of the development sites is also determined by the distribution of target groups across the sites and the mix of housing types: therefore, do not restrict the options for each development site too much.
• Develop the housing programme following targeted market research, including a target group analysis.
• When choosing apartment blocks – particularly those for the elderly – look for at least four storeys, a lift and good facilities.

Types and quality of factory-built homes

The council regards off-site construction as a way of speeding up the building process and meeting the schedule. Furthermore, off-site construction is also in line with the contract with the Ministry of the Interior and Kingdom Relations, in which off-site construction is mentioned as a preference, but not as a strict requirement. However, prefabricated construction does not mean that container homes will be installed. The council is committed to creating a diverse neighbourhood with high visual quality. A visual quality plan is being drawn up for the permanent core of the development.

• Variation in size and appearance is important.
• Not every manufacturer can offer the same range of options in terms of, for example, roof type, whether or not to include a dormer window, or the location of the front door.
• Make terraced houses standard and uniform, and ensure variety with semi-detached and detached houses.
• Use tried-and-tested concepts.

Sustainability (bio-based and soil- and water-regulating)

The council is committed to sustainability in the development of Host-City. The preference is for bio-based construction and a design that manages soil and water. The council regards bio-based construction as a way of reducing nitrogen emissions and climate impact, whilst at the same time creating a sustainable character for the area. In addition, the approach is based on building without crawl spaces and on the assumption that parts of the back gardens may be wet at certain times of the year.

• Some market players argue that water flows just below ground level impose restrictions on construction techniques and may conflict with bio-based building materials.
• Attention is also drawn to the lower thermal mass of bio-based homes, which can lead to higher electricity demand for heating and cooling.
• Market players are wondering why bio-based construction is being presented so categorically as a guiding principle, and they are calling for a more flexible approach. As an alternative, they suggest adopting “The New Normal” as the basis.
• Bio-based homes look attractive and can be easily integrated into any setting.
• With regard to the soil and water management approach, market stakeholders recognise the importance of effective water regulation and advocate for integrated cooperation with the water board.
• There are concerns about the risk of selling homes in a “wet neighbourhood”, and market players are proposing that these issues be discussed with buyers and target groups at an early stage.
• The local authority may specify in the Environmental Plan the percentage of gardens that may be paved.
• Another point of concern is the construction process, with market stakeholders emphasising that the wadis must already be operational before the homes are handed over, in order to prevent disruption and damage.
• Stick to tried-and-tested concepts, especially if you want to make rapid progress.

Mobility and parking

The local council is considering a parking hub as a possible solution, whereby centralised parking could help to encourage greater use of sustainable forms of transport and create a high-quality living environment with fewer cars on the streets. It is also recognised that the area has limited public transport facilities, which means it will largely become a car-dependent neighbourhood. The council is investigating whether the parking hub is financially viable and whether it would bring added value to the neighbourhood, with feedback from market stakeholders being taken into account in the further development of the plan.

• There are many doubts about the added value of a parking hub and its feasibility in Host-City. Buyers and housing associations do not want to pay for the extra costs of a built car park. Who would operate the building? This is already a difficult task in the city centre, and built car parks are not necessary here either.
• A parking hub can result (sometimes only in people’s perception) in longer walking distances to their homes, which is less appreciated.
• There is no need for a hub for expensive (detached) homes, as residents of this type of property generally wish to park at their own homes.
• Parking out of sight, in courtyards, usually works well.
• A location outside the city, lacking amenities and close to the motorway, leads to increased car use and requires an appropriate parking standard.
• If the growth of the neighbourhood does lead to the provision of new facilities, and if car use declines as a result of changing attitudes towards mobility, the number of parking spaces may well decrease. Would it be an idea to create temporary overflow and visitor parking spaces, for example on a development site designated for host plots?
• The choice of mobility solutions also depends on the target group moving into the neighbourhood. If the neighbourhood is aimed at young people and older people, limited public transport links can be problematic, as these groups often make less use of private cars. It is proposed that a lifestyle survey be carried out at an early stage to tailor the actual parking requirements to the residents’ needs.

Cooperation, roles and responsibilities

The council wishes to organise its collaboration with market parties in such a way as to ensure speed and efficiency in the process. A key question for the council is how many parties will be involved in delivering the 223 homes covered by the tender. Housing associations are prepared to explore partnerships once the market parties have been identified.

The views of those present on this matter vary.

• A. The local authority should swiftly select a single partner to carry out the entire development in collaboration with the local authority. This could include the construction and site preparation for the framework.
  B. The framework provides a sound basis for a clear division of responsibilities between the local authority and market operators. The housing developments are designed and built (including construction and site preparation) by a limited number of market operators.
  C. Have the municipality develop the framework, including building plots (where appropriate, in consultation with selected parties), into a land-parcelling plan, after which the parties will construct the homes and the municipality will prepare the entire area for development. The variant mentioned here is as follows: the local authority purchases the homes from a developer and has them placed on the market.
• Opinions on the minimum number of homes each party should build range from no minimum, to a minimum of 50 homes, to the entire development.
• An integrated approach offers a better chance of speed. Others also point out that this carries a greater risk of procedural issues.
• The common interest must be the key consideration when choosing a partner.

Planning, speed and risks

There is a tight schedule for Host-City. The core housing development and the first construction site for the host plots must be completed by 1 January 2029 at the latest. To meet this deadline, investigations are underway into how the process can be expedited. The council has identified various risks that could affect the schedule, such as nitrogen emissions, network congestion, changing market conditions and legal proceedings up to the Council of State.

• A delay of just a few months can be disastrous for a factory; they need continuity in the construction process.
• Homes must be ordered in good time. The interior finishes can normally be arranged whilst the site is being prepared for construction, but in the case of factory-built homes, these must be finalised at an early stage.
• Most of the time is not spent on the actual construction, but on the stages leading up to it, such as planning and preparation; as a result, the overall time savings achieved through factory-based construction may be limited, although using existing designs can also speed up the preliminary stages
• Prefabricated construction can lead to a reliance on a limited number of manufacturers. There is a risk of delays if a factory goes out of operation.
• Involve market participants at an early stage in the process and do not make the tender procedure too rigid.
• Referral to the Council of State could cause significant delays to the schedule. It is proposed that a broad framework plan be drawn up at an early stage, so that implementation can begin whilst the details are finalised at a later date. This will prevent unnecessary delays during the construction phase.
• When allocating risks, assign them to the parties best placed to manage them. Market participants can offer certain guarantees, but this requires sufficient flexibility.
• To minimise risks, studies into nitrogen and grid congestion must be completed before the tender. Market participants can respond to potential constraints by offering solutions such as zero-emission construction and grid-conscious construction.
• A great deal of time is wasted on coordination and escalations when parties disagree. Ensure there are short lines of communication, for example by appointing a project director with the necessary powers and adopting a ‘one-stop shop’ approach (such as an environmental roundtable).
• Establishing clear frameworks with an administrative mandate prevents disruptions during implementation.
• If a construction obligation is imposed on account of the speed of the project, this will affect the parties’ decision to tender. The parties will weigh up the risks involved and may decide not to proceed.

The local authority has outlined a number of planning scenarios and is inviting comments on them.

• Most parties believe that early market involvement is a major advantage, as proposed in planning option 1. Option 3 is largely regarded as unrealistic, although a construction period of six months is considered feasible. Most of the time is spent on the planning and preparation phase.

Tender process

The local council is asking for suggestions.

• Providing a fully detailed implementation plan as part of the tender limits the flexibility of market participants.
• Set objectives. Once the overarching objective is clear, market participants can propose alternative solutions.
• Strict requirements limit flexibility and may conflict with other constraints.
• If a ready-made implementation framework is put out to tender, there is a risk that there will be little flexibility. When risks are placed on market participants, they must also be enabled to manage these risks themselves.
• The local authority must have the courage to let go and give market players the freedom to make decisions independently.
• The tender process should not be interpreted too strictly, but should encourage collaboration and challenge market players to come up with innovative solutions.
• Ensure that a partner is selected at an early stage, so that any problems can be identified and resolved in good time.
• Limit the number of tenders and procurement procedures and consolidate them. This will help to ensure more efficient collaboration and reduce complexity in implementation.
• Please continue to involve us in the further development of the plans; one party suggested that the tender procedure should be reviewed in advance by market participants.
• Ensure that there is no need to go through several ‘stages’ one after the other, but that all the local authority’s stages have already been completed before the tender is issued.
• The common interest must be the primary consideration when selecting a partner.
• The tender process must be well thought out and, where appropriate, include a comprehensive energy solution.