Sustainable Residential Development and Compact Settlements: Guidelines for Planning Authorities

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   3.0 Settlement, Place and Density 3.1 Introduction This chapter sets out policy and guidance in relation to growth priorities for settlements at each tier in the national settlement hierarchy and in relation to residential density. Since 1999, the Residential Density Guidelines and the subsequent Sustainable Residential Development in Urban Areas Guidelines, 2009, recommend that planning authorities should promote increased residential densities in appropriate locations, including in city and larger town centres. This recommendation was based on three significant social, economic and environmental considerations, as follows: The trend towards smaller average household size, The need to encourage the provision of affordable housing, and The need to reduce CO2 emissions by reducing energy consumption and to support a more efficient use of energy in the residential and transport sectors. All three considerations remain relevant with even greater urgency now in respect of the need for more diverse and affordable housing to meet the needs of a growing and more diverse population and for settlement and travel patterns that support efficient energy use and a transition to lower carbon in the transport and built environment sectors. Government policy requires a continuation of the tiered approach to residential density seen under the Sustainable Residential Development in Urban Areas Guidelines, 2009, with highest residential densities at the most central and accessible urban locations and more compact and sustainable forms of development overall. The 2009 Guidelines promoted a three-tiered approach to residential density, with densities of up to 35 dwellings per hectare (dph) in smaller towns and villages, densities of 35 to 50 dph in outer suburban and greenfield areas of cities and large towns and densities of 50 dph + in more central urban locations and close to public transport (Figure 3.1 refers). Given the NPF priorities for compact growth and reflecting the variety of settlements and settlement contexts where residential development takes place, the Government considers that it is necessary to expand on the number of density bands contained in the 2009 Guidelines in order to ensure that densities are efficient while, at the same time, tailored to settlement context.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 16

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   DETACHED/SEMI DETACHED HOUSING Density Range c. 15-30 dph SEMI DETACHED/TERRACED HOUSING Density Range c. 25-40 dph TERRACED HOUSING Density Range c. 35-45 dph MIX TERRACED HOUSES,DUPLEX/ LOW RISE APARTMENTS Density Range 50-80 dph COMPACT OWN DOOR HOUSES, DUPLEX Density Range c. 50-100 dph LOW RISE APARTMENTS Density Range c. 100-150 dph MEDIUM/HIGH RISE APARTMENTS Density Range c. 200+ dph Figure 3.1: Typical density ranges with various housing typologies - illustrative only. Page 17Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   3.2 Tailoring Policy to Local Circumstances 3.2.1 Methodology This section sets out a methodology to assist planning authorities in appropriately integrating national planning policy in relation to settlement growth and residential density into statutory development plans and in the assessment of individual planning applications. The policies and objectives are intended as a tool to guide the appropriate scale of development at different locations, rather than as a prescriptive methodology. Flexibility is offered so that planning authorities can operate a plan-led approach and take the circumstances of a plan area or an individual site into account as part of the decision making processes prescribed under the Planning and Development Act 2000 (as amended). Dwellings per hectare (dph) will continue to be the primary measure for residential density3. This measure is well understood and embedded within the planning system, and when applied alongside other design standards, provides a relatively simple and effective means of reflecting the quantum, scale and form of development within settlements. In the case of city and town centres and mixed-use, commercial and employment areas, plot ratio and site coverage standards may also need to be considered in order to manage the scale and massing of development. There is further guidance in relation to the calculation of density in Appendix B and examples in relation to the calculation of plot ratio and site coverage in the companion Design Manual. The national settlement hierarchy defined at a national level by the NPF, at a regional level by the RSESs and at local level by city and county development plans, forms the basis for the density approach. Section 3.3 describes settlements at each tier (or groups of tiers) in the national settlement hierarchy and for each tier sets out: (a) priorities for compact growth, (b) areas common to settlements at each tier, and (c) recommended density ranges for each area. Similar to the application of the 2009 Guidelines, when applying the policies and objectives of these Guidelines in relation to density in the preparation of a statutory development plan and in the consideration of a planning application, it will be necessary for the planning authority to identify: (a) the most applicable settlement category based on the categories described in Section 3.34, (b) the most applicable area type based on the area descriptions detailed in Section 3.3 (e.g. central, urban, suburban or edge - refer also Figure 3.1), and (c) the recommended density range for that area. 3 When calculating net densities for shared accommodation, such as student housing, four bed spaces shall be the equivalent of one dwelling. 4 In identifying the applicable settlement NPF and / or RSES designations take precedence over the population thresholds stated in Section 3.3.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 18

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   Following this, the decision maker(s) will need to determine the appropriate density range(s) for the area or site. The densities should generally be within the ranges set out in Section 3.3 and can be refined further in accordance with the guidance set out in Section 3.4. It may be necessary and appropriate in some exceptional circumstances to permit densities that are above or below the ranges set out in Section 3.3. In such circumstances, the planning authority (or An Bord Pleanála) should clearly detail the reason(s) for the deviation in the relevant statutory development plan or as part of the decision-making process for a planning application, based on considerations relating to the proper planning and sustainable development of the area. To give effect to the Guidelines and in support of a plan-led approach, when preparing a land use plan for a settlement, the planning authority should consider defining and mapping central, urban, suburban, urban extension and edge areas (Figure 3.2 refers). In applying this methodology in the preparation of a Core Strategy under Section 10 of the Act, the planning authority will need to account for net and gross areas when calculating land requirements. It will be necessary to make an informed estimate of net developable area taking account of factors such as the need for major roads and parks, schools, commercial uses and the presence of flood zones and other environmental sensitives etc., and to determine an appropriate density range for each area. The general rule of thumb is that the net site area would be between 65 to 80 percent (approx.) of the gross area but this will depend on the area of land involved and local circumstances. Appendix B Measuring Residential Density sets out more detail in relation to net and gross site areas. Page 19Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   CITY CENTRE URBAN SUBURBAN EDGE Opportunities for the adaptation and reuse and the Incremental development of Brownfield and Infill Sites Large scale sustainable urban extensions along public transport corridors Sequential urban extensions integrated into the existing built up area Major areas of urban regeneration (brownfield and infill) integrated into the cities fabric Figure 3.2: Illustration of typical area types and key areas of growth within cities.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 20

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   3.3 Settlements, Area Types and Density Ranges 3.3.1 Cities and Metropolitan (MASP) Areas (i) Description of Settlement The National Planning Framework identifies the five cities of Dublin, Cork, Limerick, Galway and Waterford. The city metropolitan area defined in the Metropolitan Area Strategic Plan (MASP)5 includes the city and suburbs area and the surrounding network of towns, villages and rural areas. The NPF sets ambitious growth targets for cities and metropolitan areas to 2040. The strategy for all cities is to support consolidation and intensification within and close to the existing built up footprint of the city and suburbs area and metropolitan towns; and to support sustainable urban extension at locations served by public transport. The key priorities for city and metropolitan growth in order of priority are to: (a) strengthen city, town and village centres, (b) protect, restore and enhance historic fabric, character, amenity, natural heritage, biodiversity and environmental quality, (c) realise opportunities for adaptation, reuse and intensification of existing buildings and for incremental brownfield and infill development, (d) deliver brownfield and infill development at scale at suitable strategic and sustainable development locations within the existing built up footprint of the city and suburbs area or metropolitan towns, (e) deliver sustainable and compact urban extension at scale at suitable strategic and sustainable development locations that are close to the existing built-up footprint of the city and suburbs area or a metropolitan town and served by existing or proposed high-capacity public transport, and (f) deliver sequential and sustainable urban extension at suitable locations that are closest to the urban core and are integrated into, or can be integrated into, the existing built-up footprint of the city and suburbs area or a metropolitan town. Given the size, scale and structure of Dublin and Cork relative to the cities of Limerick, Galway and Waterford, density ranges for the city and suburbs areas of Dublin and Cork are set out in Table 3.1 and for the city and suburbs area of Limerick, Galway and Waterford in Table 3.2. Density ranges for all towns and villages in the metropolitan areas of the five cities and outside of the city and suburbs area (including designated Key Towns in the metropolitan area) are set out in Table 3.3. Note: References to strategic and sustainable development locations in this chapter are as described in Section 4.4.4 of the Development Plan Guidelines for Planning Authorities 2022. 5 Part of the relevant Regional Spatial and Economic Strategy. Page 21Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   (ii) Table 3.1 - Areas and Density Ranges Dublin and Cork City and Suburbs City - Centre The city centres of Dublin and Cork, comprising the city core and immediately surrounding neighbourhoods6, are the most central and accessible urban locations nationally with the greatest intensity of land uses, including higher order employment, recreation, cultural, education, commercial and retail uses. It is a policy and objective of these Guidelines that residential densities in the range 100 dph to 300 dph (net) shall generally be applied in the centres of Dublin and Cork. City - Urban Neighbourhoods The city urban neighbourhoods category includes: (i) the compact medium density residential neighbourhoods around the city centre that have evolved overtime to include a greater range of land uses, (ii) strategic and sustainable development locations7, (iii) town centres designated in a statutory development plan, and (iv) lands around existing or planned high-capacity public transport nodes or interchanges (defined in Table 3.8) – all within the city and suburbs area. These are highly accessible urban locations with good access to employment, education and institutional uses and public transport. It is a policy and objective of these Guidelines that residential densities in the range 50 dph to 250 dph (net) shall generally be applied in urban neighbourhoods of Dublin and Cork. City - Suburban/Urban Extension Suburban areas are the lower density car-orientated residential suburbs constructed at the edge of cities in the latter half of the 20th and early 21st century, while urban extension refers to the greenfield lands at the edge of the existing built up footprint that are zoned for residential or mixed-use (including residential) development8. It is a policy and objective of these Guidelines that residential densities in the range 40 dph to 80 dph (net) shall generally be applied at suburban and urban extension locations in Dublin and Cork, and that densities of up to 150 dph (net) shall be open for consideration at ‘accessible’ suburban / urban extension locations (as defined in Table 3.8). 6 For example, the Dublin City Development Plan 2022-2028 refers to the inner city and its immediately surrounding neighbourhoods within the canals; and the Cork City Development Plan 2022-2028 describes the City Centre as the City Centre Island, from MacCurtain Street and Shandon north of the River Lee to the South Parish area and Barrack Street to the south. 7 Described in Section 4.4.4 of the Development Plans Guidelines for Planning Authorities 2022. The Dublin City Development Plan 2022-2028 details Strategic Development and Regeneration Areas in Chapter 13; and the Cork City Development Plan 2022-2028 details Strategic Consolidation and Regeneration Areas in Chapter 10. 8 Section 28 Guidelines, Development Plan Guidelines for Planning Authorities 2022 set out policy requirements in relation to the zoning of lands for residential purposes.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 22

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   (iii) Table 3.2 - Area and Density Ranges Limerick, Galway and Waterford City and Suburbs City - Centre The city centres of Limerick, Galway and Waterford, comprising the city centre and immediately surrounding neighbourhoods, are the most central and accessible urban locations in their regions with the greatest intensity of land uses, including higher order employment, recreation, cultural, education, commercial and retail uses. It is a policy and objective of these Guidelines that residential densities in the range 100 dph to 250 dph (net) shall generally be applied in the centres of Limerick, Galway and Waterford. City - Urban Neighbourhoods The city urban neighbourhoods category includes: (i) the compact medium density residential neighbourhoods around the city centre that have evolved over time to include a greater range of land uses, (ii) strategic and sustainable development locations; and (iii) lands around existing or planned high capacity public transport nodes or interchanges (defined in Table 3.8) – all in the city and suburbs area. These are highly accessible urban locations with good access to employment, education and institutional uses and public transport. It is a policy and objective of these Guidelines that residential densities in the range 50 dph to 200 dph (net) shall generally be applied in urban neighbourhoods of Limerick, Galway and Waterford. City - Suburban/Urban Extension Suburban areas are the low density car orientated residential areas constructed at the edge of cities in the latter half of the 20th and early 21st century, while urban extension refers to greenfield lands at the edge of the existing built-up footprint that are zoned for residential or mixed-use (including residential) development9. It is a policy and objective of these Guidelines that residential densities in the range 35 dph to 50 dph (net) shall generally be applied at suburban and urban extension locations in Limerick, Galway and Waterford, and that densities of up to 100 dph (net) shall be open for consideration at ‘accessible’ suburban / urban extension locations (as defined in Table 3.8). 9 Section 28 Guidelines, Development Plan Guidelines for Planning Authorities 2022 set out policy requirements in relation to the zoning of lands for residential purposes. Page 23Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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    (iv) Table 3.3 - Areas and Density Ranges – Metropolitan Towns and Villages Metropolitan Towns (>1,500 population) – Centre and Urban Neighbourhoods The centre and urban neighbourhoods category includes: (i) the town centre and immediately surrounding neighbourhoods, (ii) strategic and sustainable development locations, and (iii) lands around existing or planned high capacity public transport nodes or interchanges (defined in Table 3.8). It is a policy and objective of these Guidelines that residential densities in the range 50 dph to 150 dph (net) shall generally be applied in the centres and in urban neighbourhoods of Metropolitan Towns. Metropolitan Towns (>1,500 population) – Suburban / Urban Extension Suburban areas are the low density car-orientated residential areas constructed at the edge of the town, while urban extension refers to greenfield lands at the edge of the existing built-up footprint that are zoned for residential or mixed-use (including residential) development. It is a policy and objective of these Guidelines that residential densities in the range 35 dph to 50 dph (net) shall generally be applied at suburban and edge locations of Metropolitan Towns, and that densities of up to 100 dph (net) shall be open for consideration at ‘accessible’ suburban / urban extension locations (as defined in Table 3.8). Metropolitan Area – Village (<1,500 population) Metropolitan Villages are small in scale with limited infrastructure and services provision. These settlements are identified for incremental growth that takes account of the capacity of existing services and infrastructure (including public transport and water services infrastructure). Density should be tailored to reflect existing density and / or built form but should not generally not fall below 25 dph.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 24

Source Department of Housing, Local Government and Heritage: Sustainable Residential Development and Compact Settlements: Guidelines for Planning Authorities (January 2024) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.