Ministerial guidelines
Sustainable Residential Development and Compact Settlements: Guidelines for Planning Authorities
Residential density ranges for settlements of every size, and requirements on separation distances, private open space and parking.
Department of Housing, Local Government and Heritage · January 2024 · 68 pages
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- Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 1The NPF targets for infill and brownfield development recognise that there is significant capacity within all settlements to accommodate a growing economy and a growing population and to enhance placemaking and restore nature and biodiversity. Since the publication of the NPF in 2018, there has been significant investment in our urban areas through the National Development Plan’s Urban Regeneration and Development Fund (URDF) and the Rural Regeneration and Development Fund (RRDF). More recently, funding aligned with Town Centre First policy and investment in active travel and public transport have provided additional focus on these objectives. The URDF/RRDF and Town Centre First initiatives support regeneration and rejuvenation in settlements to ensure that our urban areas are attractive and vibrant places, where people choose to live, work, invest and visit. Investment under the National Transport Authorities Active Travel Investment Programme aims to create safer walking and cycling routes to improve access to local services and to public transport1. The Government is also advancing a range of land activation and active land management measures to ensure that the potential for urban development and regeneration in the built-up area of cities and towns and at locations close to services and good quality public transport can be accelerated. To achieve compact growth, it will also be necessary to increase the scale of new buildings in all parts of our cities and towns, with highest densities at the most central and accessible urban locations, particularly in city centres and close to public transport nodes and interchanges. It will also be necessary to adapt the scale and form of development to the receiving environment and to ensure a proportionate response. Higher densities and taller buildings that exceed the traditional scale will be encouraged in the most central and accessible parts of our cities and large towns, particularly in large regeneration areas, and subject to the protection of historic fabric, character, amenity, natural heritage, biodiversity and environmental quality. Mid-rise medium density housing will have a critical role to play outside of the urban cores at accessible and intermediate locations in particular, in combination with traditional housing. This approach will provide greater diversity in housing stock at all locations and support a critical mass of population that will make services, including public transport, more viable. Government policy at national, regional and local levels has a central role to play in supporting and empowering the critical decisions needed to deliver compact growth and make it more attractive to citizens. The Government is confident that sustainable densification is readily achievable in all settlements and that it will lead to better outcomes for citizens and the environment. 1 Refer to Active Travel Investment Programme - National Transport Authority for further details. Page 5 Figure 1.2 15 Minute City Source: Georgia Pozoukidou and Zoi Chatziyiannaki, in 15 minute City: Decomposing the New Planning Eutopia, 2021
- Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 1Page 6 1.4 Related Government Policy 1.4.1 Housing for All (2021) Housing for All – A New Housing Plan for Ireland (HfA) 2021 is the Government’s housing plan to 2030. The overall objective is that everybody should have access to sustainable, good quality housing to purchase or rent at an affordable price, built to a high standard, and located close to essential services, offering a high quality of life. The plan recognises the need to plan for a more diverse and socially inclusive society. It also recognises that a sustainable housing system requires infrastructure, including public transport and water services. There is a series of actions included in HfA that will allow the State to take a more active role in land management with a view to translating compact development objectives of the NPF into the delivery of housing. It is also an action of HfA to develop guidelines for sustainable and compact settlements. 1.4.2 Climate Action Plan 2023 (CAP23) The Climate Action Plan 2023 (CAP23) is the first plan to be prepared under the Climate Action and Low Carbon Development (Amendment) Act 2021, and following the introduction of economy-wide carbon budgets and sectoral emissions ceilings in 2022. The plan implements these carbon budgets and sectoral emissions ceilings and sets out a roadmap for taking decisive action to halve our emissions by 2030 and reach net zero no later than 2050. Of particular relevance to these Guidelines, CAP23 notes that the dispersal of residential settlements, commercial zones and workplaces to peripheral areas instead of focusing on central areas and locations served by public transport, has led to an overreliance on the private car. The Annex of Actions to CAP23 includes an action to prepare sustainable settlement guidelines and to review planning guidelines to ensure a graduated approach in relation to the provision of car parking. The Local Authority Climate Action Plan Guidelines published in 2023 will assist local authorities in preparing local climate actions plans, required under the Climate Action and Low Carbon Development (Amendment) Act 2021. These plans are required to be consistent with the most recent approved climate action plan and national adaptation framework. 1.4.3 National Sustainable Mobility Policy (2022) The National Sustainable Mobility Policy (SMP) 2022 has a critical policy influence on these Guidelines. It sets out a strategic framework for active travel and public transport to 2030, to help Ireland meet its climate targets. The associated action plan to 2025 contains a range of actions to improve and expand sustainable mobility options across the country by providing safe, green, accessible and efficient alternatives to car journeys. The SMP includes a range of demand management and behaviour change measures and actions that are intended to manage daily travel demand more efficiently and reduce the journeys taken by private car - including an action to prepare sustainable settlement guidelines. The SMP’s approach is based on the principle of Avoid-Shift-Improve (Figure 1.3 refers). The creation of compact and connected urban areas is key to achieving the overarching aims of the SMP. Many of the policy goals relate to land use planning and the design of settlements. SMP actions include the delivery of metropolitan area transport strategies in the five cities and local transport plans for the regional growth centres and key towns. These plans will inform and supplement regional and local plans to ensure that future growth occurs in a more sustainable manner.
- Page 7Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 1 Avoid-Shift-Improve Principle Avoid Shift Improve Reduce or avoid the need for travel Shift to more environmentally friendly modes Improve the energy efficiency of vehicle technology Land-use planning Public transport, active travel Vehicle efficiency, clean fuels 1.4.4 Places for People – the National Policy on Architecture (2022) Places for People is Ireland’s national policy on architecture. It outlines ways to promote and embed quality in architecture and the built and natural environment in Ireland. It aims to boost public engagement with architecture, raise design quality and improve data and research on our built environment. Places for People includes a framework of practical actions to help Ireland get full value from architecture and to deliver buildings and public spaces that work for all. These actions will help create, sustain and regenerate local areas as vibrant, welcoming and sustainable places in which communities can flourish. Places for People also connects us to important sustainability, renovation and creative initiatives underway in Europe as part of the European Green Deal – including the New European Bauhaus. 1.5 Conclusion In implementing the high-level approach of the NPF, and ensuring that the future development of settlements supports the actions of Housing for All, the Climate Action Plan 2023 (CAP23), Sustainable Mobility Policy and National Policy on Architecture, there is a need to carefully plan for the growth of settlements of all sizes. Understanding the opportunities and challenges facing settlements is an important first step in incorporating sustainable development principles into the planning system. Figure 1.3: Avoid-Shift-Improve Extract from National Sustainable Mobility Policy 2022 Source: Government of Ireland
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- 2.0 Implementation 2.1 Implementation of the Guidelines The policy and guidance contained within these Guidelines are to be implemented through statutory development plans2 and in the consideration of individual planning applications. 2.1.1 Statutory Development Plans The Planning and Development Act 2000 (as amended) “the Act” supports a plan-led system aimed at ensuring proper planning and sustainable development through a hierarchy of inter-related and complementary plans and policies from the NPF at national level, the Regional, Spatial and Economic Strategies (RSES) at regional level and development plans and local plans at a city and county level. The development plan is at the heart of the planning system transposing national and regional policies and objectives to city and county level and setting a framework for more detailed statutory and non-statutory land use plans at an area level. It is required to set out the overall strategy for the proper planning and sustainable development of the plan area and may include detailed objectives for certain areas. The development objectives of the development plan are required to be consistent, as far as practicable, with national and regional development objectives set out in the NPF and the RSES. Planning authorities are also required to have regard to the policies and objectives contained in Section 28 guidelines and to apply the specific planning policy requirements contained in section 28 guidelines when preparing and making a development plan. In this regard, Section 28 provides that a planning authority must append a statement to the draft development plan and the development plan that demonstrates how it has implemented the policies and objectives of the Minister contained in Section 28 guidelines. Local Area Plans and Strategic Development Zone (SDZ) Planning Schemes have a role in translating development plan policies and objectives to a district or neighbourhood level and provide for a more in-depth consideration of planning issues that are specific to a particular area. The Act provides that the objectives of a Local Area Plan must be consistent with the objectives of the relevant development plan. A Planning Scheme is deemed to form part of the development plan in force in the area and any contrary provision of the development plan shall be superseded by the planning scheme. When preparing a statutory development plan it will be important to consider the role of the area in its wider national and regional context and to set a vision and a framework for sustainable development and regeneration that has regard to the policies and objectives of these Guidelines at a local level and applies the specific planning policy requirements (SPPRs). The same considerations apply when preparing a variation or amendment to a statutory development plan (including SDZ Planning Schemes). 2 Any reference to a statutory development plan(s) in these Guidelines refers to all development plans made under the Planning and Development Act 2000 (as amended), or under any replacement Planning and Development Act, including local area plans and strategic development zone planning schemes, unless otherwise stated.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 2 Page 10
- 2.1.2 Development Management In accordance with the provisions of Section 34 of the Act when making a decision in relation to an application that includes a residential element or other elements covered by these guidelines, the planning authority is required to have regard to the policies and objectives of the Guidelines and to apply the specific planning policy requirements (SPPRs). In the case of a SDZ Planning Scheme, it is the intention of these Guidelines that Section 170 (2) of the Act will continue to apply and supersede any contrary provisions (including Specific Planning Policy Requirements) contained in these Guidelines until the Planning Scheme is amended to integrate changes arising from the Guidelines. This is to ensure that the consequences of the updated standards can be fully integrated into the planning schemes in due course without unintended consequences. In this regard, no permission shall be granted for any development that would not be consistent with the planning scheme. 2.1.3 Environmental Considerations These Guidelines have been subject to Strategic Environmental Assessment (SEA) in accordance with the European Union SEA Directive (2001/42/EC) and the European Communities (Environmental Assessment of Certain Plans and Programmes) Regulations 2004, S.I. No. 435 of 2004 (as amended by S.I. 2000 of 2011). In accordance with the European Union Habitats Directive (92/43/EEC) and Birds Directive (2009/147/EC), Appropriate Assessment has also been carried out under Regulation 42A of the European Union (Birds and Natural Habitats) Regulations 2021 (S.I. No. 293 of 2021). In accordance with Article 10 of the SEA Directive, the Department shall monitor the significant environmental effects, if any, of the implementation of the Guidelines in order to identify any unforeseen adverse effects, and to be able to undertake appropriate remedial action. Monitoring will be carried out by DHLGH of the indicators listed in Chapter 7 of the SEA Environmental Report in accordance with the timeframes detailed in the SEA Environmental Report. In the preparation of statutory development plans and the consideration of individual applications it is the responsibility of the planning authority to ensure that requirements of relevant EU Directives (e.g. Habitats Directive, Birds Directive, Floods Directive, Water Framework Directive, Urban Waste Water Treatment Directive, Strategic Environmental Assessment Directive and Environmental Impact Assessment Directive) are adhered to and reflected in the plan making and development management processes. The Natura Impact Statement for these Guidelines provides a useful reference for any planning authority carrying out an appropriate assessment of a plan or project and highlights the information available at the European Union level, including the site-specific conservation objectives and evidence from the latest Article 17 reports submitted under the EU Habitats Directive on pressures and threats of urbanisation. Page 11Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 2
- 2.2 Section 28 Ministerial Guidelines A number of Section 28 Ministerial Guidelines have issued subsequent to the publication of the Sustainable Residential Development Guidelines in 2009 that are concerned with sustainable forms of residential development. The Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities should be read in conjunction with other guidelines where there is overlapping policy and guidance. Where there are differences between these Guidelines and Section 28 Guidelines issued prior to these guidelines, it is intended that the policies and objectives and specific planning policy requirements of these Guidelines will take precedence. Related section 28 Guidelines for consideration in combination with these Guidelines, include: The Development Plans Guidelines for Planning Authorities published in 2022, is a procedural manual for the preparation of development plans. The Guidelines set out an approach to ensure that every development plan includes a core strategy that is consistent with national and regional policy objectives, including housing targets and a methodology for identifying and zoning lands for new housing. There is an emphasis in the Guidelines on facilitating development in cities, towns and urban areas; creating compact and integrated communities; meeting targets for brownfield regeneration; and supporting placemaking and the growth of sustainable communities. The Guidelines also seek to assist local authorities in adapting key national polices, such as Town Centre First and the Climate Action Plan, into their local development strategy. The Sustainable Urban Housing Design Standards for New Apartments Guidelines for Planning Authorities 2023 set out national policy and standards for apartment development, in order to ensure greater consistency of national policy across local authority areas. This includes recommended standards in relation to housing mix and minimum floor areas. The Urban Development and Building Height Guidelines for Planning Authorities 2018 set out national policy considerations in relation to building height in order to guide planning authorities in developing local planning policy and in determining planning applications. These Guidelines reinforce the national policy objectives of the NPF relating to compact growth and set a framework for a performance-based approach to the consideration of building height. The Local Area Plan Guidelines for Planning Authorities 2013 set out procedures for the preparation of a local area plan and the contents that should be included in such plans. The companion Manual for Local Area Plans is a best practice guide, which encourages a design process that is analysis-led, focused on placemaking and expressed by a range of conceptual illustrations and detailed masterplans (or similar). The companion Design Manual provides best practice examples that relate to many of the policy areas addressed in the Guidelines detailed above.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 2 Page 12
- 2.3 Design Manual for Urban Roads and Streets The Design Manual for Urban Roads and Streets (DMURS) was published in 2013 (updated 2019) by the Department of Transport, Tourism and Sport and the Department of the Environment, Community and Local Government. It sets out design guidance for new and existing urban roads and streets in Ireland, incorporating good planning and design practice. Department of Transport Circular RW 6/2013 states that the DMURS is mandatory when providing new or modifying existing urban roads and streets within the 60 km/h urban speed limit zone, except for motorways and in exceptional circumstances, on certain urban roads and streets where the written consent of the relevant approving authority has been obtained. This manual puts well-designed streets at the heart of sustainable communities. DMURS places a strong focus on the needs of pedestrians, cyclists and public transport and on improving the safety of streets and enhancing placemaking. Section 4.4 of these Guidelines sets out further detail in relation to the design guidance and standards set out in DMURS. Page 13Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 2
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