Sustainable Residential Development and Compact Settlements: Guidelines for Planning Authorities

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   3.3.2 Regional Growth Centres (i) Description of Settlement The NPF and RSESs identify Regional Growth Centres. The strategy for the Regional Growth Centres is to support consolidation within and close to the existing built-up footprint. The key priorities for the growth of Regional Growth Centres in order of priority are to: (a) plan for an integrated and connected settlement overall, avoiding the displacement of development generated by economic drivers in the Regional Growth Centre to smaller towns and villages and rural areas in the hinterland, (b) strengthen town centres, (c) protect, restore and enhance historic fabric, character, amenity, natural heritage, biodiversity and environmental quality, (d) realise opportunities for adaptation and reuse of existing buildings and for backland, brownfield and infill development, (e) deliver brownfield and infill development at scale at suitable strategic and sustainable development locations within the existing built up footprint of the town, 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 settlement. (ii) Table 3.4 - Areas and Density Ranges Regional Growth Centres Regional Growth Centre - Centre and Urban Neighbourhood The centre and urban neighbourhoods category includes: (i) the town centre and immediately surrounding neighbourhoods and (ii) strategic and sustainable development locations that are within the existing built-up footprint. It is a policy and objective of these Guidelines that residential densities in the range 50-150 dph (net) shall generally be applied in centres and urban neighbourhoods. Regional Growth Centre - 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 Regional Growth Centres, 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). Page 25Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   3.3.3 Key Towns and Large Towns (5,000+ population) (i) Description of Settlement Key Towns are identified in the RSESs, while Large Towns are identified at a county level. The strategy for Key Towns and Large Towns is to support consolidation within and close to the existing built-up footprint. The key priorities for the growth of Key Towns and Large Towns in order of priority are to: (a) plan for an integrated and connected settlement overall, avoiding the displacement of development generated by economic drivers in the Key Town or Large Town to smaller towns and villages and rural areas in the hinterland, (b) strengthen town centres, (c) protect, restore and enhance historic fabric, character, amenity, natural heritage, biodiversity and environmental quality, (d) realise opportunities for adaptation and reuse of existing buildings and for incremental backland, brownfield and infill development, and (e) deliver sequential and sustainable urban extension at locations that are closest to the urban core and are integrated into, or can be integrated into, the existing built up footprint of the settlement. (ii) Table 3.5 - Areas and Density Ranges Key Towns and Large Towns (5,000+ population)10 Key Town / Large Town - Centre and Urban Neighbourhood The centre comprises the town centre and the surrounding streets, while urban neighbourhoods consist of the early phases of residential development around the centre that have evolved over time to include a greater range of land uses. It is a policy and objective of these Guidelines that residential densities in the range 40 dph-100 dph (net) shall generally be applied in the centres and urban neighbourhoods. Key Town / Large Town - 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 area 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 30 dph to 50 dph (net) shall generally be applied at suburban and urban extension locations of Key Towns and Large Towns, and that densities of up to 80 dph (net) shall be open for consideration at ‘accessible’ suburban / urban extension locations (as defined in Table 3.8). 10 This category refers to towns that are outside of the designated metropolitan area of a city and includes Key Towns with a population below 5,000.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 26

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   3.3.4 Small and Medium Sized Towns (1,500 – 5,000 population) (i) Description of Settlement Small to medium sized towns outside of metropolitan areas vary considerably in terms of population, employment and service functions and the level of public transport provision. Some small to medium sized towns have a district-wide service and employment function and are largely self-sustaining. Others, particularly those within commuting distance of cities, have experienced rapid residential expansion in recent decades based on population growth that is generated by economic drivers in larger urban centres. Many of these ‘commuter’ type towns have a high population but are reliant on other centres for employment and services, and tend to be heavily car-dependent. The recommended approach for small to medium sized towns will be to plan for growth arising from economic drivers within and around the settlement and to offer an improved housing choice as an alternative, including serviced sites, to housing in the countryside. Given the range of settlement types in this tier, planning authorities will, as part of the statutory plan making process, need to refine the density standards set out in Table 3.6 to respond to local circumstances. When considering density, the planning authority should differentiate between self-sustaining towns that have a good employment and services base and can accommodate development of greater sale, commuter towns that have a more limited employment and services base and smaller towns that are at the lower end of the population range. The strategy for all small to medium sized towns is to support consolidation within and close to the existing built-up footprint. The key priorities for compact growth in smaller to medium sized towns in order of priority are to: a) strengthen town centres, b) protect, restore and enhance historic fabric, character, amenity, natural heritage, biodiversity and environmental quality, c) realise opportunities for adaption, reuse and intensification of existing buildings and for backland, brownfield and infill development, and d) deliver sequential and sustainable urban extension at locations that are closest to the urban core and are integrated into, or can be integrated into, the existing built up footprint of the settlement. Page 27Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   (ii) Table 3.6 Areas and Density Ranges Small to Medium Sized Towns Small / Medium Town - Centre In many cases, the town centre comprises a main street and streets immediately adjoining, while the inner urban neighbourhood consists of the early phases of residential development around the centre, and may include local services and interdispersed commercial, industrial and institutional uses. Backland, brownfield and infill sites will generally be in the town centre or inner urban neighbourhoods. It is a policy and objective of these Guidelines that the scale of new development in the central areas of small to medium sized towns should respond positively to the scale, form and character of existing development, and to the capacity of services and infrastructure (including public transport and water services infrastructure). Small / Medium Town Edge The edge of small to medium sized towns are the lower density housing areas constructed around the centre, while urban extension refers to greenfield lands at the edge of the built-up area that are zoned for residential or mixed-use (including residential) development. It is a policy and objective of these Guidelines that densities in the range 25 dph to 40 dph (net) shall generally be applied at the edge of small to medium sized towns. 3.3.5 Rural Towns and Villages (<1,500 population) (i) Description of Settlement Rural towns and villages with a population of 1,500 persons or less offer services to a wide rural hinterland. These settlements are not identified for significant population growth under the NPF and should grow at a limited pace that is appropriate to the service and employment function of the settlement, and the availability and capacity of infrastructure to support further development. Planning authorities should look to promote and support housing that would offer an alternative, including serviced sites, to persons who might otherwise construct rural one off housing in the surrounding countryside in rural towns and villages. The key priorities for compact growth in Rural Towns and Villages in order of priority are to: (a) strengthen the existing urban core through the adaptation, re-use and intensification of existing building stock, (b) realise opportunities for infill and backland development, and (c) provide for sequential and sustainable housing development at the edge of the settlement 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 settlement and can be serviced by necessary supporting infrastructure.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 28

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   (ii) Table 3.7 Areas and Density Ranges for Rural Towns and Villages Rural Town or Village Rural Towns and Villages are small in scale with limited infrastructure and services provision. It is a policy and objective of these Guidelines that development in rural towns and villages is tailored to the scale, form and character of the settlement and the capacity of services and infrastructure (including public transport and water services infrastructure). Lands zoned for housing at the edge of rural towns and villages at locations that can be integrated into the settlement and are connected to existing walking and cycling networks can offer an effective alternative, including serviced sites, to the provision of single houses in the countryside. The density of development at such locations should respond in a positive way to the established context. 3.3.6 Exceptions (a) There is a presumption in these Guidelines against very high densities that exceed 300 dph (net) on a piecemeal basis. Densities that exceed 300 dph (net) are open for consideration on a plan-led basis only and where the opportunity for densities and building heights that are greater than prevailing densities and building height is identified in a relevant statutory plan. (b) Strategic and sustainable development locations of scale (described in section 4.4.4 of the Development Plans Guidelines for Planning Authorities 2022) will be capable of defining densities or density ranges across different neighbourhoods on a plan led basis, based on considerations such as proximity to centre, level of public transport service and relationship with surrounding built form. Densities within strategic and sustainable development locations may therefore, exceed the ranges set out in Section 3.3 on a plan-led basis. (c) In the case of very small infill sites that are not of sufficient scale to define their own character and density, the need to respond to the scale and form of surrounding development, to protect the amenities of surrounding properties and to protect biodiversity may take precedence over the densities set out in this Chapter. Page 29Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   3.4 Refining Density The application of the density ranges in the preparation of statutory development plans and in the consideration of individual planning applications will be subject to local determination by the planning authority, or by An Bord Pleanála in the case of an appeal or direct application. The density ranges set out in Section 3.3 should be considered and refined, generally within the ranges set out, based on consideration of centrality and accessibly to services and public transport; and considerations of character, amenity and the natural environment (Figure 3.3 refers). Section 3.3.6 addresses exceptional circumstances. 3.4.1 Step 1: Consideration of Proximity and Accessibility to Services and Public Transport While densities within the ranges set out will be acceptable, planning authorities should encourage densities at or above the mid-density range at the most central and accessible locations in each area, densities closer to the mid-range at intermediate locations and densities below the mid-density range at peripheral locations. Densities above the ranges are ‘open for consideration’ at accessible suburban and urban extension locations to the maximum set out in Section 3.3. Table 3.8 (below) sets out definitions for terms used to define accessibility to allow for consistent application. The characteristics detailed in Table 3.8 are not exhaustive and a local assessment will be required. Table 3.8: Accessibility High Capacity Public Transport Node or Interchange Lands within 1,000 metres (1km) walking distance of an existing or planned high capacity urban public transport node or interchange, namely an interchange or node that includes DART, high frequency Commuter Rail11, light rail or MetroLink services; or locations within 500 metres walking distance of an existing or planned BusConnects ‘Core Bus Corridor’12 stop. Highest densities should be applied at the node or interchange and decrease with distance. ‘Planned public transport’ in these Guidelines refers to transport infrastructure and services identified in a Metropolitan Area Transport Strategy for the five cities and where a public authority (e.g. National Transport Authority, Transport Infrastructure Ireland or Irish Rail) has published the preferred route option and stop locations for the planned public transport. Accessible Location Lands within 500 metres (i.e. up to 5-6 minute walk) of existing or planned high frequency (i.e. 10 minute peak hour frequency) urban bus services. 11 10-15 minute peak hour frequency. 12 Core Bus Corridor refers to the ‘BusConnects Core Bus Corridor Schemes’ planned for cities that will provide enhanced walking, cycling and bus infrastructure on key access corridors.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 30

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   Intermediate Location Lands within 500-1,000 metres (i.e. 10-12 minute walk) of existing or planned high frequency (i.e. 10 minute peak hour frequency) urban bus services; and Lands within 500 metres (i.e. 6 minute walk) of a reasonably frequent (minimum 15 minute peak hour frequency) urban bus service. Peripheral Lands that do not meet the proximity or accessibility criteria detailed above. This includes all lands in Small and Medium Sized Towns and in Rural Towns and Villages. The approach to refining density should be informed by the capacity and wider network accessibility of public transport services at a node or interchange (number of options, capacity and peak hour frequency) and the journey time to significant destinations (e.g. city centre or significant employment location). The NTA’s Public Transport Accessibility Level (PTAL) tool will provide detail of public transport accessibility at settlement level and should be used to support the preparation of statutory development plans at a settlement level and in the consideration of individual applications. 3.4.2 Step 2: Considerations of Character, Amenity and the Natural Environment While considerations of centrality and accessibility will have a significant bearing on density, it is also necessary to ensure that the quantum and scale of development at all locations can integrate successfully into the receiving environment. New development should respond to the receiving environment in a positive way and should not result in a significant negative impact on character (including historic character), amenity or the natural environment. (a) The evaluation of impact on local character should focus on the defining characteristics of an area, including for example, the prevailing scale and mass of buildings, urban grain and architectural language, any particular sensitivities and the capacity of the area for change. While it is not necessary to replicate the scale and mass of existing buildings, as most urban areas have significant capacity to accommodate change, it will be necessary to respond in a positive and proportionate way to the receiving context through site responsive design. (b) Historic environments (built and landscape heritage) can be particularly sensitive to change. It is a recommendation of these Guidelines that a Built Heritage Character Assessment inform the preparation of statutory development plans that relate to historic environments. The assessment should describe for example, the historical evolution, urban form, street pattern, building typologies and building plots that define the historic environments. This will better inform the designation of Architectural Conservation Areas under Section 84 of the Planning and Development Act 2000 (as amended) and the integration of new buildings and street patterns with historic environments. The provisions contained within Part (IV) of the Planning and Development Act regarding architectural heritage and the requirement to protect the character and setting of a protected structure must also be considered. The Architectural Heritage Protection, Guidelines for Planning Authorities (DEHLG) provides useful guidance in relation to the protection of architectural heritage in urban areas. Shaping the Future Case Studies in the Reuse in Historic Urban Environments (DAHG) 2012 provides useful guidance where building refurbishment is proposed. Page 31Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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   (c) Evaluation of impact on the environment and on protected habitats and species must be considered under the requirements of the Environmental Impact Assessment and Habitats Directives. Development proposals should seek to protect and enhance important natural features (habitats and species) and should avoid the degradation of ecosystems. Habitat mapping undertaken as part of a plan making process can give a good indication of natural heritage features and corridors within an area. Appendix C sets out suggested threshold for submission of an Ecological Impact Assessment (EIA) and all site surveys and the associated description of the site should detail the natural features that exist within a site to allow for consideration of impact on biodiversity and natural features. (d) It will be necessary to consider the impact of a proposed development on the amenities of residential properties that are in close proximity to a development site. The key considerations should include privacy, daylight and sunlight, and microclimate. These considerations are addressed in more detail in Chapter 5 Development Standards. (e) In all settlements, it will be important to ensure that water supply and wastewater networks (including treatment works) can service any new development. The companion Design Manual will address best practice approaches in relation to the preservation of local character (including historic character) and amenity in more detail. In considering impact on character and amenity as part of the assessment of a planning application, it will be important to detail the evaluation process and to draw clear and reasoned conclusions in relation to the nature and extent of potential impacts. It may not be possible in all cases to mitigate against negative impacts on character (including historic character) and amenity. In such cases, the significance of impact will need to be determined and where it is intended to grant permission for a development justified by reasoned conclusions. Specialist technical assessments and computer-generated visual aids can assist in the evaluation of more complex development proposals and in particular, where a proposal deviates from the established scale, mass or character or is situated in a sensitive context. In order to consider larger proposals in an integrated and informed way, an Urban Design Statement that addresses the proposal from an architectural and urban design perspective should form part of the required documentation. Refer to Appendix C for thresholds. Policy and Objective 3.1 It is a policy and objective of these Guidelines that the recommended residential density ranges set out in Section 3.3 are applied within statutory development plans and in the consideration of individual planning applications, and that these density ranges are refined further at a local level using the criteria set out in Section 3.4 where appropriate.Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3 Page 32

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   Figure 3.3: Illustration of the process for establishing, optimising and refining appropriate density for a plan or development. ACCESSIBILITY (Table 3.8) LOCAL CHARACTER, AMENITY AND THE NATURAL ENVIRONMENT Establishing Density Range Refining Density Establish optimum density based on accessibility to public transport services Step 2 Step 1 Refine density (and design response) with regard to: Surrounding built environment (inc. historic settings), impact on the environment and on protected habitats and species and on amenity. DENSITY RANGE (Tables 3.1-3.7) Lorem ipsum Lorem ipsumLorem ipsumEstablish density range based on Settlement Size and Area Type (place) Page 33Sustainable and Compact Settlements | Guidelines for Planning Authorities | Chapter 3

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