Kildare County Development Plan 2023–2029 — Chapter 3: Housing

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   Objective It is an objective of the Council to: HO O29 Support means of preventing homelessness and provide tangible and timely pathways out of homelessness for households, working in cooperation with public and voluntary bodies and actively seeking solutions for same. 3.11.4 Travellers Kildare County Council has an adopted Traveller Accommodation Programme, which outlines the accommodation needs, policy and implementation measures to address the accommodation needs of the Traveller Community. The accommodation programme for the period 2019-2024 has been prepared in accordance with the provisions set out in the Housing (Traveller Accommodation) Act 1998. The Council’s Traveller Accommodation Programme sets out the range of social housing supports for Travellers, including standard Local Authority Housing, Approved Housing Body Housing and the Rental Accommodation Scheme, Housing Assistance Payment (HAP) for private rented accommodation, Local Authority Home Loan, Group Housing and Halting Site Bays. The council has received social leasing targets to the end of 2023, thereafter, no further leased units will be provided. The current Traveller Accommodation Programme sets out a combined accommodation need assessment for the period 2019 to 2024, aiming to deliver 73 homes to Traveller families over the five-year period, with 28 of these units proposed as additional Traveller-specific accommodation. To date, 43 standard housing units and 6 Traveller-specific accommodation units have been provided (to December 2021). The TAP is subject to a mid-term review (2022) and this will demonstrate an update on existing and future needs. The Traveller accommodation need assessment and delivery figures include a target of 28 additional Traveller specific accommodation units over the lifetime of the 2019 – 2024 Traveller Accommodation Programme. The additional Traveller specific accommodation will be provided in line with the following identified need: Tankardsgarden, Newbridge A redevelopment project at the Tankardsgarden site was discontinued due to a change in the housing needs of the families on site and technical constraints associated with the erosion of land along the banks of the River Liffey, which runs alongside the site. Currently, the Tankardsgarden site comprises 1 bay and 1 caravan. Athy Consultation undertaken for the TAP 2019-2024, established demand for additional group housing in Athy. The council is progressing plans for the construction of 5 houses and the upgrading of existing bays at Ardrew, Athy.62

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   Countywide An update on existing and future needs will be provided as part of the forthcoming review of the Traveller Accommodation Plan.’ Objectives It is an objective of the Council to: HO O30 Support the delivery of the Kildare County Council Traveller Accommodation Programme 2019 - 2024 (and any superseding programmes agreed by the Council) in accordance with the principles of proper planning and sustainable development. HO O31 Implement the delivery targets, of the Kildare County Council Traveller Accommodation Programme 2019-2024 (and any superseding programmes agreed by the Council) and to meet the delivery targets as a minimum, including to identify and develop sites for Traveller specific housing and to provide accommodation appropriate to the identified needs of members of the Traveller community. HO O32 Ensure that Traveller accommodation is located in proximity to key services including education, community, health, recreation and public transport facilities, and to support those communities in accessing Council services in their widest provision (including arts and culture). HO O33 Support the implementation of the recommendations of the Irish Human Rights & Equality Commission Equality Review on the provision of Traveller accommodation in Co. Kildare. HO O34 Recognise the separate identity, culture, tradition, and history of the Travelling people in order to reduce the levels of disadvantage that Travellers experience, consistent with UN Sustainable Development Goal No. 10 - ‘Reduced Inequalities. 3.11.5 International Protection Applicants The Council will continue to liaise and work with the relevant agencies and stakeholders in securing appropriate accommodation for refugees and asylum seekers in appropriate locations throughout County Kildare. Objective It is an objective of the Council to: HO O35 Continue to work with Central Government and relevant State Agencies to support the provision of housing for International Protection Applicants (asylum seekers/ refugees) in County Kildare, and to support those communities in accessing Council services in their widest provision (including arts and culture).63

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   3.11.6 Third Level Students Students are an increasingly important part of the housing landscape in Kildare, particularly in Maynooth. According to Census 2016, 20,559 residents of County Kildare reported their principle economic status as students (12.2% of all those aged 15 and over). Also recorded by Census 2026 was that 25.3% of the population of Maynooth town over the age of 15 are students, compared to an average of c. 11% for the other towns within the vicinity, including Leixlip and Kilcock which are connected to Maynooth via a rail line and also compared to the state average of 11.4%. Maynooth University is the principal third level institution in County Kildare, and it has a total enrolment of 13,700 students. Objectives It is an objective of the Council to: HO O36 Support the provision of purpose-built student accommodation in appropriate locations and of appropriate design (including adequate communal facilities and external communal space), to meet demand for student housing in accordance with the National Student Accommodation Strategy. HO O37 Support increased supply of student accommodation in Maynooth, Kilcock, Leixlip and Celbridge to meet the anticipated student accommodation demand generated by Maynooth University. Applications for change of use from student housing to any other form of housing will be resisted without adequate demonstration that an over-provision of student housing exists. 3.11.7 Domestic Violence Refuge The Council will work with other statutory agencies to facilitate and support appropriate accommodation for people experiencing domestic violence and to improve the range and quality of services available. Objective It is an objective of the Council: HO O38 To proactively facilitate and support Túsla, the Child and Family Agency, service providers and other relevant agencies in the provision of domestic violence refuges within each Municipal District in the county.64

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   3.12 Social, Affordable Purchase and Cost Rental Housing The government’s ‘Housing for All - a New Housing Plan for Ireland’ (2021) estimates that Ireland will need an average of 10,000 social homes each year over the next five years, with 9,500 of these being new-builds, and an average of 6,000 affordable homes for purchase or rent. An overarching governance structure will be established in the Department of the Taoiseach to oversee the implementation of Housing for All. Government departments, State agencies, Local Authorities, Approved Housing Bodies (AHBs), the Land Development Agency (LDA) and other delivery partners will work with the delivery office to achieve the implementation of the plan. The Housing Strategy and HNDA set out in Appendix 1, are the key planning mechanisms for the delivery of new affordable housing and sustainable communities. The statutory context for the provision of social and affordable housing has changed under the Affordable Housing Act 2021. Kildare County Council will seek to facilitate the maximum allowable provision under the Planning Act (as amended) for affordable and social housing provision as part of future planning permissions, reflecting the high levels of demand within the county. • The Affordable Housing Act provides for a requirement that any new planning permission granted for housing subject to the Act will have a 20% Part V requirement on that land where; o At least half of the land or equivalent net monetary value obtained under Part V must be used for social housing support. o The remainder can be used for affordable purchase housing, cost rental housing or both. o If there is no requirement for affordable housing, the remainder can be used as an additional discount on construction costs, or for more social housing. • The Planning Authority will review the Part V requirements contained in this Plan if the legislation underpinning this requirement is amended. The HNDA reports that the total number of social housing applicants, as of 2 November 2021, was 3,417 (households). This figure excludes households currently on the Housing Assistance Payment (HAP) scheme, accommodation provided under the Rental Accommodation Scheme (RAS), and accommodation provided under the Social Housing Capital Expenditure Programme (SHCEP) schemes. In addition to the existing social housing need, the HNDA provides longer-run estimates (to 2031) for housing need based on projected housing market affordability (future house prices, rental values and income). The longer-run estimates facilitated by the HNDA tool incorporates the Department of Housing, Local Government and Heritage/ ESRI Convergence Scenario for Housing Supply Targets at a County Level. On this basis, Kildare County Council has produced an estimate of housing need to 2031, broken down by tenure type, as outlined in Table 3.2, while Table 3.3 shows housing need broken down by year to 2031.65

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   The results show that c. 30.2% of new households formed between 2023 and 2031 will require social housing support while 10.6% will fall within the bracket of ‘affordability constraint’ and therefore will require affordable housing, either affordable purchase or cost rental. In terms of figures, the HNDA Tool output estimates that based on a housing supply target of 13,840 units to 2031, 3,934 households will require social housing support and a further 1,818 households will require affordable housing, either affordable purchase or cost rental. % Tenure Breakdown Number of New Dwellings 2023- 2031 Number of New Dwellings per Annum New private ownership homes 31.50% 4360 436 New private rental homes 27.70% 3834 427 New affordable homes (Affordability Constraint) 10.60% 1467 164 New Social Housing homes 30.20% 4180 466 100% 13,840 Table 3.2 - Forecasted housing need by tenure type 2023 2024 2025 2026 2027 2028 2029 2030 2031 Total New private ownership homes 519 492 469 464 475 491 477 466 471 4324 New private rental homes 439 420 420 420 430 429 417 393 396 3764 New affordable homes (Affordability Constraint) 93 119 146 177 196 249 258 281 299 1818 New Social Housing homes 530 499 458 448 442 424 397 374 362 3934 Total Housing Need 1581 1530 1493 1509 1543 1593 1549 1514 1528 13840 Table 3.3 - Forecasted housing need by tenure type As stated in the DHLGH ‘Guidance on the Preparation of a Housing Need and Demand Assessment’ the HNDA Tool is intended to “give broad, long-run estimates of what future housing need might be, rather than precision estimates”. It offers ‘policy-off’ forecasts with its outputs subject to the inputs, scenarios, and assumptions built into the model. The HNDA results show a continuing demand for social housing support and a rising demand for affordable houses.66

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   Current data indicates that there are 2,040 social housing units in the pipeline for County Kildare to be delivered over the next 1-3 years, comprising SHIP Construction Turnkey, CAS, CALF, PPP, Part V and leasing1, of which 537 are under construction, 907 are at an advanced stage of funding approval and a further 596 social housing units are at a ‘Proposal’ stage. These current delivery streams represent c. 31.5% of existing social housing need across the County. To reflect the high levels of demand within the County for social and affordable housing, the Council will require the maximum allowable provision under the Planning Act (as amended) for Part V social and affordable housing provision as part of future planning permissions. In addition to the implementation of Part V, the Council will work in partnership with the Department of Housing, Planning and Local Government, Approved Housing Bodies, and other key stakeholders to deliver and manage social and affordable housing. Other mechanisms of delivery will include direct build, acquisitions, void management, long term leasing, enhanced leasing, repair to lease, private rental (RAS and HAP) and the Buy and Renew Scheme. Policies It is the policy of the Council to: HO P9 Promote the provision of social and affordable housing in accordance with the Council’s Housing Strategy, Housing Need Demand Assessment and Government policy as outlined in the DHPLG Social Housing Strategy 2020 and to ensure, where applicable: (a) That 20% of (i) lands zoned for residential use, or for a mixture of residential and other uses, in respect of which permission for the development of 5 or more houses is granted, and (ii) any land which is not zoned for residential use, or for a mixture of residential and other uses, but in respect of which permission for the development of 5 or more houses is granted, shall be reserved for the provision of social housing, affordable housing and cost rental housing; with at least half the 20% to be used for social housing support, and the remainder to be used for affordable housing, which can be affordable purchase, cost rental or both, social housing, or a combination of affordable and social housing, in accordance with the Affordable Housing Act 2021 and Part V of the Planning and Development Act 2000 (as amended). Or 1 Social Housing Capital Investment Programme (SHCIP or SHIP), Capital Assistance Scheme (CAS), Capital Advanced Leasing Facility (CALF), Public Private Partnership (PPP), Enhanced Leasing (25- year term)67

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   (b) Where (i) planning permission was granted before 1 August 2021, or (ii) where land was purchased between 1 September 2015 and 31 July 2021 in respect of which new planning permission was granted between 3 September 2021 and 31 July 2026, Kildare County Council will require that 10% of lands zoned for residential use, or for a mixture of residential and other uses, in respect of which permission for the development of 5 or more houses is granted, shall be reserved for the provision of social housing, in accordance with the Urban Regeneration and Housing Act 2015 (as amended) and Part V of the Planning and Development Act 2000 (as amended) (c) Where Part V provision on planning applications is being accepted off site, that the units offered be located within a 5km catchment of the area. HO P10 Support the provision of new student accommodation at suitable locations. Where sites are developed for student accommodation, the portion of the site relating to this will be exempt from the social and affordable housing requirements of Section 96(1) of the Planning and Development Act 2000 (as amended). Objectives It is an objective of the Council to: HO O39 Meet the county’s housing need for social housing provision through a range of mechanisms, including Part V of the Planning and Development Act 2000 (as amended), a social housing building programme, acquisition, Repair and Lease Scheme, the Housing Assistance Payment (HAP) scheme, the Rental Accommodation Scheme (RAS) and the utilisation of existing housing stock. HO O40 Support Government’s affordable housing initiatives, including the Affordable Purchase Scheme and First Home / Share Equity Scheme, introduced by the Affordable Housing Act 2021. HO O41 Support local authorities, approved housing bodies and other sectoral agencies in the provision of a greater diversity of housing type and tenure, including social and affordable housing, new models of cost rental and affordable homeownership and co-operative housing. HO O42 Support and, where feasible, work in partnership with the Land Development Agency (LDA) in the provision of social and affordable housing in County Kildare.68

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   3.13 Sustainable Rural Housing The NPF and ‘Our Rural Future’, Ireland’s Rural Development Policy 2021-2025’, (DRCD, 2021) are clear in their support for the need to plan for sustainable communities and to reinforce our rural communities. These transformative national policy documents set out that this will be achieved through attracting new and existing residents to live in rural areas, to encourage and promote the reuse of vacant homes and to make provision for housing in the countryside for those who demonstrate a need to live in our rural areas. The NPF acknowledges that rural towns across Ireland function as local drivers for their surrounding areas through well-established economic, administrative and social functions. They support clusters of services, have a significant share of homes and jobs, and act as transport hubs for a much wider rural community. The NPF also highlights that rural town living requires a proportionate and tailored approach to residential development. This means that it is necessary to tailor the scale, design and layout of housing in rural towns to ensure that a suburban or high-density urban approach is not applied to a rural setting and that development responds to the character, scale and density of the town. While acknowledging the potential of our rural settlements, it is recognised that there is a continuing need for housing provision for people to live and work in the countryside. The National Planning Framework (NPF) sets out clear guidance and policy objectives (Objective 19) relating to the future growth and development of rural areas across Ireland. It is recognised within NPF that there is a continuing need for housing provision for people to live and work in Ireland’s countryside. Careful planning is required to manage demand in our most accessible countryside around cities and towns. For guidance, NPF describes large towns and employment centres as towns with a population of more than 10,000 people or more than 2,500 jobs. NPF also suggests the use of a standard EU/OECD definition to map the commuter catchments where 15% of the local workforce is employed in the selected towns and centres of employment (at Electoral Division (ED) level). For the case of Kildare, this means an analysis of commuting flows to Dublin Metropolitan Area, Naas, Newbridge, Maynooth, Celbridge, Leixlip, Kildare Town, Athy, Kilcock, Sallins, Portlaoise, Portarlington, Edenderry, Carlow Town and Blessington. While commuting levels are the primary evidence-based factor, documentation published by the OPR (Rural Settlement and Local Authority Plan-Making: Practical Advice) also suggest that an evidence-based approach should be based on both data analysis and local knowledge. The identification of Areas Under Strong Urban Influence in County Kildare took account of the following: • High levels of commuting pattern (as per NPF/RSES guidance above) • Proximity to cities/towns or to major transport corridors with ready access to69

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   urban areas • Ready access to a good road network with ready access to the larger urban areas The Sustainable Rural Housing Guidelines (2005) state that it is ‘vitally important that a process of research and analysis be carried out into population and development trends in rural areas’ before planning authorities draft the written statement of the development plan which should include the identification of the location and extent of ‘Rural Area Types’, to include - • Areas under Strong Urban Influence • Stronger Rural Areas • Structurally Weak Areas • Areas with clustered settlement patterns 3.13.1 Defining our Rural Housing Policy Zones Careful planning is required to manage demand in our most accessible countryside around cities and towns, focusing on the elements required to support the sustainable growth of rural economies and rural communities. Further guidance on rural housing policy is also available through the Eastern and Midland’s Regional, Spatial and Economic Strategy (RSES) (RPO 4.80). Based on this guidance (NPF and RSES) and as a means of informing the updated rural housing policy within the County Development Plan (CDP) review, Kildare County Council engaged the All-Island Research Observatory (AIRO) at Maynooth University to delineate areas within Kildare that are classified as Rural Areas Under Strong Urban Influence (Rural Category 1) and Stronger Rural Areas (Rural Category 2). The following section outlines the methodology used to identify and formulate the Areas Under Strong Urban Influence Map, 2021. 3.13.2 An Evidence-based Approach This methodology is primarily driven by the NPF/RSES definition for the identification of Areas Under Strong Urban Influence. For Kildare, this means a commuting analysis of flows to the Dublin Metropolitan Area (DMA) and then the individual settlements of Naas, Newbridge, Maynooth, Celbridge, Leixlip, Kildare Town, Athy, Kilcock, Sallins, Portlaoise, Portarlington, Edenderry, Carlow Town and Blessington. As with all previous functional area mapping carried out by AIRO for the National Planning Framework and the EMRA RSES, the selected settlements are based on the National Transport Authority ‘Urban Core’ boundaries which are based on amalgamations of CSO Settlement boundaries that also include key employment locations on the outskirts of settlements (i.e., M7 Naas Business Park included as part of Naas CSO settlement). While commuting levels are the primary evidence-based factor in the delineation of Areas Under Strong Urban Influence, the project team have also consulted recent documentation published by the OPR (Rural Settlement and Local Authority Plan-70

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    Making: Practical Advice 2 ) that suggests an evidence-based approach should be based on both data analysis and local knowledge within local authorities. In particular, the development of an Areas Under Strong Urban Influence Map should take account of the following: • High level of commuting patterns (as per NPF/RSES guidance above) • Proximity to cities/towns or to major transport corridors with ready access to urban areas • Ready access to a good road network with ready access to the larger urban areas • Avoid a ‘patchwork approach’ with multiple categories/ lots of small rural area designations. • Option to ‘layer’ planning and environmental constraints It is also important to consider, in parallel with the NPF definition, the existing CDP delineation of Rural Area Zones in Kildare, recent demographic trends on population loss and stagnation over the last twenty-year period (1996 to 2016), and existing density of one-off housing developments in rural areas. The following steps comprised the overall analysis. o Step 1: Mapping of Existing Rural Housing Zone 1 (2017) o Step 2: Mapping of NPF/RSES Definition (2021) o Step 3: Local Refinement of NPF/RSES Definition (2021) to respond to local conditions o Step 4: Validation of Areas Under Urban Influence Map for Demographic, One-Off Density and Environmental Factors Further analysis is set out in Appendix 10 (Development of Areas Under Strong Urban Influence Map, 2021) which accompanies this plan. In accordance with the findings of the evidence-based report, the approach outlined below will apply to the Zones identified on Map 3.1. Zone 1 - Areas under Strong Urban Influence In ‘Areas under Strong Urban Influence’, it will be an objective of the Council to facilitate the provision of single housing in the countryside based on the core considerations of: o demonstrable ‘economic or social’ need to live in a rural area and build their home, and o siting, environmental and design criteria for rural housing in statutory guidelines and plans 2 https://www.opr.ie/wp-content/uploads/2021/05/May-2021-Councillor-Training-Webinar-Anne-Marie- OConnors-Presentation-1.pdf71

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