Development plan · Kildare County Council
Kildare County Development Plan 2023–2029 — Chapter 3: Housing
One part of the council's development plan written statement, which the council publishes in parts. Variations adopted since are not in this text.
Kildare County Council · 2023–2029 · 48 pages
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- Aim; To show how the Plan intends to accommodate the full range of current and future housing needs of all members of society throughout the county while giving clear guidance on making provision for specialised housing requirements and providing for the needs of communities in order to deliver sustainable residential communities across the county. Chapter 3 Housing 3.1 Introduction National and regional policy reinforces the need for ‘healthy placemaking’ and the delivery of well-designed, affordable, adaptable, infill and brownfield development close to existing services and facilities. The overall aim of the Housing for All – A New Housing Plan for Ireland (2021), is that everyone in Ireland should have access to sustainable, good quality housing to purchase or rent, at an affordable price, in the right location. Such development should be supported by universal design and improved urban amenities, including public spaces and parks, social and community infrastructure, as well as enhanced permeability, accessibility, and connectivity. Creating and maintaining successful urban neighbourhoods to underpin sustainable communities requires the efficient use of land at densities which ensure the viability of a range of facilities, amenities, services, and good public transport connections. All of these components should be set within a high-quality built environment in order to enhance liveability and create a good quality of life for all. In line with the settlement strategy, this chapter seeks to secure the provision of new homes tailored to the needs of the existing and projected population. In this way, supporting an all-community approach, with better quality of life, more efficient use of land, and greater integration of infrastructure and services. 3.2 Strategy The delivery of quality homes and sustainable communities for County Kildare is a key and cross-cutting issue in ensuring that the county remains competitive as a place to live and invest in. The approach is to build on the policies of the last development plan and implement the Core Strategy through: • Providing for the right quantity of appropriate housing in the right locations that are accessible and affordable for all residents of the county through the implementation and delivery of the Housing Strategy and Housing Need & Demand Assessment (HNDA). • Implementation of adopted Local Area Plans (LAPs) to drive the delivery of sustainable, dynamic urban centres, in line with the settlement strategy. • Supporting implementation of the Metropolitan Area Strategic Plan (MASP) which seeks the sustainable development of the Dublin Metropolitan Area. • Delivery of good quality housing to cater for diverse housing needs - mix of tenures and typologies to meet people’s full lifecycle.43
- • Engaging in active land management to promote regeneration including utilising the Vacant Sites Register and other future vehicles, including the Zoned Land Tax. • Collaboration with all internal Council departments to actively seek funding for housing and social infrastructure from national and European funding streams including Local Infrastructure Housing Activation Fund (LIHAF), Urban Regeneration and Development Fund (URDF), Rural Regeneration and Development Fund (RRDF), Town and Village Renewal Scheme (TVR), Serviced Sites Fund (SSF) and Affordable Housing Fund (AHF). • Ensuring that planning applications for residential developments over 20 units and commercial developments over 2,000m2 are accompanied by an audit of social and community infrastructure and an implementation and phasing programme in relation to social and community infrastructure, so that facilities identified as needed are provided in a timely and co-ordinated fashion. 3.3 Policy Context A number of national policy publications provide guidance on how to deliver quality urban areas and sustainable urban communities. Planning applications in towns, villages and settlements should take cognisance of the following documents: - Affordable Housing Act 2021 (Part V); - Quality Housing for Sustainable Communities – Best Practice Guidelines for Delivering Homes and Sustaining Communities (2007); - Sustainable Urban Housing: Design Standards for New Apartments (2020); - Sustainable Residential Development in Urban Areas (2009); - Urban Design Manual: A Best Practice Guide (2009); - Urban Development and Building Heights – Guidelines for Planning Authorities (2018) - Housing Options for our Aging Population 2020; - Design Manual for Urban Roads and Streets (DMURS) (2019). Policy It is the policy of the Council to: HO P1 Have regard to the DHLGH Guidelines on: - Quality Housing for Sustainable Communities – Best Practice Guidelines for Delivering Homes and Sustaining Communities (2007); - Sustainable Urban Housing: Design Standards for New Apartments (2020); - Sustainable Residential Development in Urban Areas (2009);44
- - Urban Design Manual: A Best Practice Guide (2009); - Urban Development and Building Heights – Guidelines for Planning Authorities (2018) - Housing Options for our Aging Population (2020) and Age Friendly Principles and Guidelines for the Planning Authority (2021); - Design Manual for Urban Roads and Streets (DMURS) (2019). 3.4 Strategic Context 3.4.1 Project Ireland 2040: National Planning Framework (NPF) The National Planning Framework sets out that ‘the long-term vision for Ireland’s housing future aims to balance the provision of good quality housing that meets the needs of a diverse population, in a way that makes our cities, towns, villages and rural areas good places to live now and in the future’. The NPF identifies a number of national core principles to guide future housing as follows: National Core Principles to Guide Housing • Ensure a high standard of quality of life for future residents as well as environmentally and socially sustainable housing and placemaking through integrated planning and consistently excellent design. • Allow for choice in housing location, type, tenure and accommodation in responding to need. • Prioritise the location of new housing provision in existing settlements as a means to maximising better quality of life for people through accessing services, ensuring a more efficient use of land and allowing for greater integration with existing infrastructure. • Tailor the scale and nature of future housing provision to the size and type of settlement where it is planned to be located. • Integrate housing strategies where settlements straddle boundaries (county and/or regional). • Utilise existing housing stock to meet future demand. The NPF acknowledges that the physical format of urban development is one of our greatest national development challenges and identifies compact growth as one of the National Strategic Outcomes. This entails delivering a greater proportion of residential development within existing built-up areas of settlements and moving away from a reliance on greenfield development to meet our development needs. In order to avoid urban sprawl, the NPF advocates for increased residential densities in urban areas. The NPF recognises that planning affords an opportunity to facilitate and deliver a more socially inclusive society through better integration and greater accessibility at all stages of the lifecycle. It supports the provision of lifetime adaptable homes that can accommodate the changing needs of households over time. Specifically, the NPF requires that local housing policy will be developed with a focus on meeting the needs and opportunities of an ageing population.45
- The NPF warns against the intensification of social housing in areas that are already dense with social housing and advocates for the development of diverse neighbourhoods with a balance of public and private housing to create healthy communities. The NPF states that in addition to the significant investment in social housing we also need to ensure that more affordable homes are built for sale or rent, particularly in our cities, towns and villages, enabling people to choose to live within their communities and closer to where they work. It indicates that this will be facilitated through more proactive land management and coordinated and efficient provision of enabling infrastructure, particularly on local authority and State-owned lands, as well as providing flexibility on design and density, particularly in our urban cores, to enable more cost-efficient construction and provide a variety of homes aimed at first-time buyers. 3.4.2 Regional Spatial & Economic Strategy (RSES) The Regional Spatial & Economic Strategy (RSES) for the Eastern and Midland Region (EMRA) recognises that housing affordability and supply issues are impacting upon health and wellbeing, due to overcrowding, with people residing in substandard accommodation or becoming homeless. The slow growth of housing stock compared to rates of population growth and household formation has led to an increase in the average number of people per household to around 2.8 in the Region, based on the 2016 census, which saw a reversal of the long-term decline in the average household size. The RSES points out that there is a need to incentivise mobility in the housing market, to address social isolation among older people and to offer more choice by way of an increased supply of accommodation for all life stages. The RSES highlights the importance of housing quality to secure positive health outcomes and that achieving compact growth targets will require active land management responses to ensure that land and building resources within existing settlements are used to their full potential. Policy It is the policy of the Council to: HO P2 Accord with the provisions of the National Planning Framework 2018, the Regional Spatial and Economic Strategy for the Eastern and Midland Region 2019 (including the Metropolitan Area Strategic Plan) and the Ministerial Circular relating to Structural Housing Demand in Ireland and Housing Supply Targets, and the associated Section 28 Guidelines: Housing Supply Target Methodology for Development Planning (2020) and make provision for the scale of population growth and housing supply targets outlined in these plans and guidelines.46
- 3.5 Housing Strategy The preparation of a Housing Strategy is a mandatory requirement under the Planning and Development Act 2000 (as amended). The purpose of the strategy is to ensure that provision is made for the housing needs of the existing and future population of the plan area. Section 94(3) of the Act stipulates that the housing strategy shall take into account: • the existing need and likely future need for housing for the purposes of the provision of social housing support and; of housing for eligible households, both within the meaning of the Housing (Miscellaneous Provisions Act) 2009 • the need to ensure that housing is available for people who have different levels of income • the need to ensure that a mixture of house types and sizes is developed to reasonably match the requirements of the different categories of households, as may be determined by the planning authority, and including the special requirements of older persons and people with disabilities, and • the need to counteract undue segregation in housing between people of different social backgrounds. The NPF acknowledges that the housing sector is more complex since the requirement for housing strategies was introduced under the Planning and Development Act 2000. Accordingly, the NPF has identified that an enhanced methodology is required - a Housing Need Demand Assessment - to support the preparation of housing strategies. The purpose of the Housing Need Demand Assessment tool is to: • Assist local authorities to develop longer-term strategic views of housing need across all tenures; • Provide a robust evidence base to support decisions about new housing supply, wider investment and housing related services that inform an overall national housing profile; • Inform policies about the proportion of social and affordable housing required; and • Provide evidence to inform policies related to the provision of specialist housing and housing related services. In tandem with a need to increase housing supply, is the need to facilitate improved housing choice to cater for evolving demographics across County Kildare, as analysed in the HNDA. By providing good housing choice, existing residents can remain within their local communities and new residents to Kildare will have better housing options to choose from. The Housing Strategy and Kildare HNDA process complements the Core Strategy in providing the quantitative evidence base to articulate the medium to longer term spatial development strategy of the functional area of the Local Authority. In so doing, it demonstrates that the County Development Plan and its objectives are consistent with national and regional development objectives.47
- In accordance with NPO 37, Kildare County Council has undertaken a Housing Need & Demand Assessment (HNDA). The HNDA has been prepared in line with ‘Guidance on the Preparation of a Housing Need and Demand Assessment’ (DHLGH, April 2021), and is set out over four Sections: 1. Key Housing Market Drivers 2. Housing Stock Profile and Pressures, Existing Need and Management Issues 3. Estimating Future Housing Need and Demand 4. Specialist Provision The HNDA evidence base includes a range of housing data, along with wider economic, demographic and affordability trends, to understand key housing market drivers and give a statistical estimate of future housing needs by tenure. The Housing Strategy and HNDA address the provision of housing for the existing and future population of County Kildare and take account of: - The existing need and likely future need for housing for the purposes of the provision of social housing support and of housing for eligible households. - The need to ensure that housing is available for people who have different levels of income. - The need to ensure that a mixture of house types and sizes is developed to reasonably match the requirements of the different categories of households, as may be determined by the Planning Authority and including the special requirements of older persons and people with disabilities. - The need to counteract undue segregation in housing between people of different social backgrounds. - The provision of good housing mix in all developments will be encouraged to ensure that residents have access to a range of house types and tenures. The Kildare County Council Housing Need & Demand Assessment (HNDA) and Housing Strategy address many issues associated with housing in the county, including housing need, improving social mix and catering for those with particular needs including older persons, the Traveller community, homeless people and people with disabilities. The HNDA provides long-run estimates for housing need based on projected housing market affordability and finds that for the period 2023 to 2031, c. 30.2% of new households formed will need social housing support, 31.5% will be able to buy a home, 27.7% will be able to rent, and 10.6% will need affordable housing (affordable purchase or cost rental). While the Housing Strategy has found that there is rationale for seeking 20% of eligible residential development to be reserved for social and affordable housing during the strategy period of 2023-2031, this only addresses social housing needs that will arise during that period and does not take into account the considerable demand for such housing that has built up to date. It is also clear that the combination of the Council’s own construction, acquisitions and Part V will only cater for a proportion of the population experiencing affordability problems in the County. The Council must48
- continue to utilise all policy avenues open to it and any new schemes that become available to ensure the greatest delivery of social and affordable housing possible and to ensure a regionally equitable balance of housing delivery. Policy It is the policy of the Council to: HO P3 Implement, in conjunction with the Housing Section, the Housing Strategy and Housing Need Demand Assessment (HNDA) to meet the projected population, changing household size and housing needs, including social and affordable housing requirements for County Kildare over the lifetime of the County Development Plan. Objective It is an objective of the Council: HO O1 To secure the implementation of the Kildare County Housing Strategy in accordance with the provisions of national legislation and relevant policies and standards. 3.6 Housing Supply The Core Strategy outlines a housing supply target of approximately 9,144 housing units for the county to the end of 2028, being the end of the Plan period. Chapter 2 sets out growth targets for towns, villages, settlements and rural areas during the Plan period. Growth is directed based on the status of the town or settlement within the settlement hierarchy and the capacity of physical and social infrastructure and the environment to accommodate growth. The Plan will support consolidation through infill development and the redevelopment of areas that are in need of renewal and the sustainable extension of established urban areas. Policy It is the policy of the Council to: HO P4 Ensure that sufficient zoned land continues to be available at appropriate locations to fulfil the housing requirements of the county. Objectives It is an objective of the Council to: HO O2 Ensure that sufficient land is zoned at appropriate locations in compliance with the Core Strategy and Settlement Strategy of the Development Plan, in order to meet the likely future housing demands identified in the Housing Strategy and HNDA.49
- HO O3 Co-operate with the Eastern and Midland Regional Assembly in planning for new homes and meeting housing needs for the Dublin Metropolitan Area (which includes Maynooth, Leixlip, Celbridge, and Kilcock) through the implementation of the Dublin Metropolitan Area Strategic Plan. 3.7 Residential Densities Density A key objective of the NPF and RSES is to increase the density of development in all built up areas, in order to achieve the indicated population targets in a compact and sustainable manner. Increased densities will facilitate optimising the use of serviced lands and maximising the viability of investment in social and physical infrastructure, in particular public transport. Integration of land use and transport planning is crucial to deliver the 10-minute settlement concept (‘Guiding Principle’ of the RSES) and this will be supported with higher densities at appropriate locations. The NPF also acknowledges that there is a need for more proportionate and tailored approaches to residential development. This means that it is necessary to adapt the scale, design and layout of housing in towns and villages, to ensure that suburban or high-density urban approaches are not applied uniformly, and that development responds appropriately to the character, scale and setting of the town or village. County Kildare has a significant settlement network of differing scales, functions, and infrastructure provision. Some of our larger settlements perform an important role within the wider region, with particular influence within the Dublin Metropolitan Area, while other towns are more self-sustaining, local drivers of development. The Guidelines for Planning Authorities on Sustainable Residential Development in Urban Areas, DEHLG (2009) and Urban Development and Building Height Guidelines, DHLGH (2018) outline appropriate densities and building heights applicable to settlements of various size and location within these settlements. For further details on the implementation of the Urban Development and Building Height Guidelines refer to Section 14.8 Urban Design and Building Heights. The average housing densities, that determine the residential yield from sites depends on the location of that site, which settlement it belongs to, where that settlement fits within the settlement hierarchy, the site’s position with respect to the urban core, the proximity to public transport corridors and to major employment zones. Where communities live in areas of medium to high residential densities, the prospects improve for local services and amenities, use of sustainable transport modes for daily journeys and the reduction of unsustainable travel patterns. Table 3.1 outlines the density levels for different settlement types as per Sustainable Residential Development in Urban Areas - Guidelines for Planning Authorities, DEHLG (2009).50
- Category Location for New Residential Development General Density Parameters (Units per Hectare) Larger Towns (Population > 5,000) Town Centre & Brownfield Sites Site Specific Public Transport Corridors 50 units per ha Inner suburban/infill Site Specific Institutional Lands 35-50 units per ha Outer Suburban /’Greenfield’ 30-50 units per ha Smaller Towns & Villages Centrally located sites 30-40+ units per ha Edge of centre sites 20-35 units per ha Edge of small town/village 15-20 units per ha with lower density in some cases (refer to Section 6.12 of the Guidelines) Rural Settlements Infill, backland and edge of centre sites within Rural Settlements 15 units per ha with lower density in some cases Table 3.1 - Appropriate density levels as per the Sustainable Residential Development in Urban Areas - Guidelines for Planning Authorities, DEHLG (2009) The guidance and density ranges provided in Sustainable Residential Development in Urban Areas - Guidelines for Planning Authorities, DEHLG (2009) have been considered in preparing the Core Strategy table contained in Chapter 2 of the Plan. The Core Strategy table includes a Target Residential Density (Units per Hectare) for each settlement based on its function within the settlement hierarchy. Circular letter NRUP 02/2021 was issued to Planning Authorities to provide clarity in relation to the interpretation and application of current statutory guidelines in respect of how residential densities are applied to towns and villages. The Circular highlights that in certain locations, particularly at the edges of towns in a rural context, more compact forms of development may include residential densities at a lower level than would be considered appropriate in a city or large town context. Accordingly, the Circular clarifies the application of the Sustainable Residential Development Guidelines to ensure that when carrying out their planning functions, An Bord Pleanála and Planning Authorities apply a graduated and responsive, tailored approach to the assessment of residential densities in Peripheral and/or Less Accessible Urban Locations, as defined in the Sustainable Urban Housing: Design Standards for New Apartments, DHLGH, 2020, and as they apply to towns of all sizes, to ensure that such places are developed in a sustainable and proportionate manner.51
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