Student Accommodation Non-Statutory Planning Guidance

1.     Introduction

This non-statutory guidance seeks to ensure the provision of good quality purpose-built student accommodation (PBSA) in appropriate locations whilst protecting the character of existing areas. 

Where relevant this guidance will be considered as a material consideration when determining planning applications.

It is important to read this guidance in conjunction with the policy framework of City Plan 2030 (adopted November 2024), which is Edinburgh’s Local Development Plan (LDP) and National Planning Framework 4 (NPF4) that together make up Edinburgh’s development plan, and other Council guidance including the Draft Edinburgh Design Guidance 2024.

This guidance applies to all types of PBSA developments, including new build, change of use and conversion. The reuse of existing buildings can provide opportunities for the provision of PBSA and is supported by NPF4. 

1.1     What is PBSA?

Students occupy a range of accommodation types. This guidance does not seek to address students living at home, or in privately rented flats, including Houses in Multiple Occupation (HMO). PBSA is managed communal accommodation that is built, or converted, with the specific intent of being occupied by students undertaking a full-time course of higher or further education. It may be located on –or off –campus, and owned or managed by a university, private or third sector provider such as a co-op.   

PBSA differs from mainstream housing and can have similarities to a hotel in its operation, as it often includes management arrangements for day-to-day functioning and on-site facilities such as laundry, reception and common rooms.   PBSA has no formal definition within the planning system and is considered ‘sui generis’ (or unique/of its own class).

PBSA is considered a form of commercial development. It is non-permanent, communal accommodation and is not included in the estimates of future need and demand on which the LDP housing land requirement is based.  LDP Hou 1, Housing Development, is provided to ensure the provision of mainstream homes (including affordable homes and homes for varying needs). The LDP allocates housing proposals for the purpose of meeting the housing land requirement. PBSA does not provide housing units which contribute to meeting this requirement. While it is important to provide for PBSA, this should not be at the expense of mainstream housing for which there is a significant identified need. Proposals for other uses, including PBSA, on allocated housing sites resulting in the provision of a lower number of units than identified in the LDP would impact on the delivery of mainstream housing, including affordable housing, to meet the housing land requirement. The LDP makes a separate policy provision for student accommodation under Hou 5.

1.2     Students and PBSA in Edinburgh

The student population in Edinburgh contributes to the city’s economy, diversity, and vibrancy.  The city is home to three universities: University of Edinburgh, Edinburgh Napier University and Heriot-Watt University, as well as Edinburgh College. Queen Margaret University is located just outside the Council area and has implications for accommodation provision.    

Student enrolments at Edinburgh’s universities had been increasing in recent years until 2021/22, however in 2022/23 numbers dropped back from 74,7105 to 73,045. 63,640 were full-time students, and 14,145 were first year undergraduates. The number of international students also fell in this period from 27,005 to 26,660. This was 36% of all students enrolled in the four Edinburgh universities.[1] A further 29,342 students were enrolled in Edinburgh College.[2]

To support the health and wellbeing of students, it is essential that they are provided with appropriately located, high quality accommodation. While many students will choose to live in other forms of accommodation PBSA is a key part of the accommodation offer, alongside their access to mainstream housing.

The number of PBSA bedspaces in Edinburgh has more than doubled since 2005 when there were 7,350 bedspaces. In November 2024 there were 22,310 bedspaces. 11,987 university owned or managed bedspaces, 10,217 private bedspaces [3] and a further 106 bedspaces are provided by Edinburgh Student Housing Co-op. 

In terms of scale, the majority (58%) of PBSA is provided in developments of less than 200 bedspaces.

As shown in Map 1 below, PBSA is most prevalent in the central area, with more recent development extending out from this area.