Development plan · Longford County Council
Longford County Development Plan 2021–2027
The council's development plan written statement: its strategy, policies, objectives and development standards.
Longford County Council · 2021–2027 · 486 pages
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- Under this Core Strategy, the scale and location of settlements has been considered and accordingly the requisite nature and scale of development appropriate to various settlement locations has been evaluated. Higher densities are applied to the Key Town of Longford Town (35-40 units per hectare), with a reduction in residential densities for Self-Sustaining Growth Towns (25 units per hectare), Self-Sustaining Towns (25 units per hectare) and other towns and villages (20 units per hectare) and in a manner that is commensurate to the existing built environment of these settlements. Towns in the lower tiers will provide for commensurate population and employment growth, providing for natural increase and becoming more economically self-sustaining in line with the equality and capacity of public transport, services and infrastructure available. From the population and housing allocations presented in the Core Strategy Table, a series of zoning maps are provided in Volume 2: Appendix 1 of this plan with respect to the settlements, and which reflect the figures provided and indicate the quantum and locations of future development for the plan period. In some instances, there may be slight variations in terms of zoning provided as a result of the physical characteristics of sites on the ground, however in line with the NPF and RSES the release of lands will be prioritised in a sequential manner and monitoring will be employed to promote development patterns in line with the Core Strategy. Similarly, the quantum of new residential zoned lands in some settlements will deliberately exceed the minimum quantum of land required for future residential development as detailed in the Core Strategy. Given some of the minimum land requirements for future residential development in certain settlements of the county, there is a justifiable concern that the Key Aims and the County Policy Objectives of the Core and Settlement Strategies would be undermined if future residential development in settlements were deemed to be undeliverable if limited to the minimum quantum of land requirements for residential development and in the absence of any flexibility or alternative lands for residential development within the settlement. Accordingly, the approach adopted to deliberately exceed the minimum zoning requirement provides sufficient flexibility to prevent any land banking and address any potential issues of intransigence from landowners which could undermine the delivery of residential development in such settlements and the Settlement Strategy advocated in this plan. This approach is also in line with that advocated in Department of Environment, Heritage and Local Government Guidance Note on Core Strategies (2010), where consideration of market choice is a requirement in relation to the quantum, location and phasing of development. In giving effect to the Strategic Aims of the Core Strategy, a series of County Policy Objectives are included as follows: CPO 4.46 CPO 4.47 CPO 4.48 CPO 4.49 Core Strategy - County Policy Objectives It is the County Policy Objective to: Ensure that the future spatial development of County Longford is in accordance with the National Planning Framework, including population targets set out under the Implementation Roadmap for the National Planning Framework and the Regional Spatial and Economic Strategy (RSES) for the Eastern and Midland Region 2019-2031. Implement all land use planning policy and objectives in a manner which takes account of and is consistent with the Core Strategy in order to accelerate a transition to a greener, low carbon and climate resilient county with a focus on reduced travel demand through the promotion of sustainable settlement patterns. Adhere to the quantum of housing development prescribed in the Core Strategy Table. Development shall not be permitted where it conflicts with the Core Strategy. Support the compact growth of towns and villages to ensure that development proceeds sustainably and at an appropriate scale, density and sequence and in line with the Core Strategy TableCounty Development Plan 2021–2027 111
- CPO 4.50 CPO 4.51 CPO 4.52 CPO 4.53 Core Strategy - County Policy Objectives It is the County Policy Objective to: Monitor and manage the delivery of residential development in County Longford through the development management process to ensure it is in line with the Core Strategy. In this respect, the Planning Authority shall maintain a record of residential development permitted in individual settlements, as well as residential development permitted as single rural housing, in order to ensure compliance with the population allocations defined by the Core Strategy Table. Zone an appropriate amount of lands within the settlement areas to accommodate the projected population growth as set out in the Core Strategy, including the undertaking of variations of Local Area Plans if required, to ensure consistency with the provisions of the Core Strategy. Facilitate higher and increased building heights at suitable locations and in accordance with settlement hierarchy in line with Specific Planning Policy Requirement (SSPR) 1 of the Urban Development and Building Heights Guidelines for Planning Authorities’ (2018). Achieve the delivery of high-quality built environments ensuring that development is designed to a high standard in line with the Sustainable Residential Development in Urban Areas – Guidelines for Planning Authorities and Best Practice Urban Design Manual (DoECLG 2009), the ‘Urban Development and Building Heights Guidelines for Planning Authorities’ (2018) and Specific Planning Policy Requirements (SPPRs) 1 – 4 (inclusive), the core strategy for the county and other planning considerations. 4.11 Monitoring and Implementation The key determinants in achieving the Settlement Strategy outlined are the population and housing targets, as assigned in the Core Strategy Table according to settlement and settlement typology presented. The monitoring of the extent of residential development is required to ensure that development occurs in a coherent, reasoned and evidence-based manner. The delivery of all residential development will be carefully monitored during the lifetime of this plan to ensure it does not cumulatively result in the housing units and population been exceeded. Longford County Council shall ensure that the future spatial development of County Longford is governed by means of a plan-led approach, directing residential and employment generating development to locations in accordance with National and Regional Policy, and with environmental carrying capacity, which can support investment in public infrastructure and services and which is sensitive to the physical character of the built and natural environment. Further detail can be found in Chapter 15: Monitoring, Evaluation and Implementation.Longford County Council 112
- 4.12 Housing Strategy In accordance with Part V of the Planning and Development Act 2000, as amended, each planning authority is required to prepare a Housing Strategy which will cover the period of its Development Plan. The Housing Strategy must have regard to the proper planning and sustainable development of the area and must address the overall supply of housing within the administrative boundary of the local authority. Accordingly, the Planning Authority has a statutory obligation to address the need for social and affordable housing and to ensure that sufficient land is zoned for housing over the period of its Development Plan. Under Section 94 (1) (a) of the Planning and Development Act 2000 (as amended), each planning authority: ‘shall include in any development plan a strategy for the purpose of ensuring that proper planning and sustainable development of the area of the development plan provides for the housing of the existing and future population of the area in the manner set out in the strategy’. This takes account of: ■ existing need and the likely future need for housing; ■ need to ensure that housing is available for persons of different income levels; ■ 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 elderly persons and persons with disabilities, and; ■ need to counteract undue segregation in housing between persons of different social backgrounds. 4.12.1 Housing Need Demand Assessment (HNDA) The Housing Strategy contains a Housing Need Demand Assessment. This supports the preparation of the housing strategy and all subsequent related housing policy outputs, e.g. county development plans, local area plans, traveller accommodation plans. The purpose of the HNDA is to: ■ Assist local authorities to develop long-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, including the need for different types and sizes of provision. ■ Provide evidence to inform policies related to the provision of specialist housing and housing related services. The HNDA process is elaborated and presented in greater detail in the Housing Strategy provided in Volume 3, Annex 4. 4.13 Housing Legislation and Policy In addition to the legislation already outlined, the Longford Housing Strategy 2021-2027 (Annex 4), provides a comprehensive overview of other relevant housing legislation and policy at national regional and local levels. A brief synopsis of some of the other key legislative and policy instruments is provided accordingly: 4.13.1 Urban Regeneration and Housing Act 2015 There is a requirement for up to 10% social housing in developments in excess of 9 units. Further consideration is given to social housing delivery mechanisms in Annex 4. 4.13.2 Project Ireland 2040 - National Planning Framework and National Development Plan The NPF contains a number of National Policy Objectives (NPOs) that support the delivery of residential development at a suitable location and scale to achieve an overall target of 550,000 additional households nationwide by 2040, with the achievement of these relevant NPOs to be underpinned by the development of a Housing Need Demand Assessment (HDNA) by each Local Authority. In terms of social housing, the National Development Plan will, through a planned capital investment of over €4.2 billion, support the delivery of some 40,000 new social housing homes by 2021. Direct Local Authority build, acquisitions, rejuvenationCounty Development Plan 2021–2027 113
- of formerly empty homes and provision by housing bodies are identified as the chief delivery mechanism. 4.13.3 Rebuilding Ireland – An Action Plan for Housing and Homelessness (2016) Rebuilding Ireland specifically provides a multistranded approach to achieving key housing objectives, including to significantly increase the supply of social housing, to increase the housing build numbers by 2020, to service all tenure types, and to tackle homelessness. The Plan is designed to put in place the necessary financing, regulatory, governance and resource mechanisms and initiatives to accelerate the delivery of all types of housing supply - private, social and rental sector in places of high demand and acute shortage. The plan sets out five pillars for which a series of actions are planned to address the challenges presented by Ireland’s disjointed housing sector as follows: ■ Address homelessness; ■ Accelerate social housing; ■ Build more homes; ■ Improve the rental sector; ■ Utilise existing housing. 4.13.4 Regional Spatial and Economic Strategy for the Eastern and Midland Region Regional Policy Objectives (RPOs) contained within the RSES for the region aim to support local authorities in completing Housing Need Demand Assessments as required under the NPF and provide for a diverse range of housing types and tenures. The strategy also set out to 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 and exploring new models of low-cost rental and affordable homeownership. 4.13.5 Longford County Housing Strategy 2015-2021 The Longford County Housing Strategy 2015-2021 provided a comprehensive review of demographics and housing demand within County Longford to inform the Longford County Development Plan 2015-2021. It contains the projected need for the planning provision of housing, as well as the demand for social and affordable housing within the County based on data from the 2011 census and regional population targets. This analysis identified a requirement for 2,120 households during the lifetime of the Longford County Development Plan 2015-2021. Given the difficult economic situation at the time, the Housing Strategy did not envisage Longford County Council building a substantial number of social or affordable housing units during the Plan’s lifetime. However, it was acknowledged that there would be a need for social housing irrespective of overall social housing output. In order to meet this need the Housing Strategy advocated the implementation of Part V requirements of 14% in all new housing schemes subject to the type and location of the housing units required by the planning authority at a given time. 4.13.6 Longford County Council Traveller Accommodation Programme 2019-2024 The Longford County Council Traveller Accommodation Programme (TAP) 2019-2024 fulfils requirements under the Housing (Traveller Accommodation) Act 1998. The TAP aims to meet the accommodation needs of travellers in Longford County Council Offices, Aras an Chontae, Great Water Street, LongfordLongford County Council 114
- Longford within a five-year period up to 2024 whilst recognising the ethnic identity of the Traveller community and aiming to provide accommodation that is suitable to their specific needs. The TAP provides for standard housing options, as well as traveller-specific accommodation such as halting sites, temporary/emergency sites and one-off rural houses within County Longford. Different housing options will be provided in accordance with an assessment of need and are subject to feasibility. 4.14 County Longford Housing Strategy and Housing Need Demand Assessment 2021 - 2027 – Overview All aspects relating to the housing market were considered during the preparation of the Housing Strategy and associated Housing Needs Demand Assessment (HNDA), including an assessment of the prevailing economic and local market conditions through detailed quantitative and qualitative assessments, which included drawing on local auctioneer and property management expertise, to ascertain a comprehensive impression of the current and future market outlook. Whilst the evidence gathered would suggest that challenges exist within the housing market in County Longford, there is consensus that activity should gather pace within the immediate future as the economy continues to grow and, with that, the increased demand for additional housing. Set within this context, the Council has planned for the growth of the housing market in Longford, whilst recognising the need for increased levels of development within established urban settlements and the importance for fostering ‘compact growth’ in our settlements in the overall sustainable development of the County. 4.14.1 Future Housing Requirements The Longford Housing Strategy projects a likely need for 1,169 additional residential units in County Longford over the period from 2021 – 2027, the equivalent of 167 units per annum, as set out in Table 4.16. The Housing Strategy also identifies the projected number of households who will not be able to meet the ‘affordability criteria’27 and who do not qualify for a mortgage and cannot afford private rental accommodation. Households which are identified as not being able to meet the ‘Affordability Criteria’ over the plan period are therefore considered to require social (and affordable) housing. The Housing Strategy has determined that 252 of the 2,568 additional anticipated households will not qualify for a mortgage during the plan period. Additionally, these 252 households will not meet the affordability criteria for private rental. This equates to an average of 9.8% of the additional anticipated households with the identified social requirement throughout the plan period being 252 no. units. 27 This is based on understanding the threshold in the lowest house price band per year during the Development Plan period and application of the “Annuity Formula”. The “Annuity Formula” is based on the determination of an “Affordability Threshold”, a “Loan to Value Ratio”, an “Annual Percentage Rate (APR) - Interest Rate”, the determination of a “Monthly Percentage Rate (MPR) - Interest Rate”, and the determination of a “Loan Term (Years/Months)”. Table 4.16: Summary of Anticipated Additional Households and Requirements over the plan period of 2021-2027 2022 2023 2024 2025 2026 2027 2021- 2027 Additional Anticipated Households Total 428 428 428 428 428 428 2,568 No. of Additional Households That Do Not Qualify for a Mortgage Subset of Above 42 42 42 42 42 42 252 No. of Additional Anticipated Households That Do Not Qualify for a Mortgage AND Cannot Afford Private Rental Subset of Above 42 42 42 42 42 42 252 Housing Shortfall (%) Of Total 9.8% 9.8% 9.8% 9.8% 9.8% 9.8% 9.8%County Development Plan 2021–2027 115
- 4.14.2 Existing Social Requirement and Targets There are 933 households on the County Longford Social Housing List (March 2020). With respect to unit type requirements, the greatest demand is for three-bedroom properties which account for 56.5% of the need. This is followed by two-bedroom units (37.2%). Demand for social housing is concentrated in Longford Town (50%), Ballymahon (11.7%) and Edgeworthstown (8.9%). Under Rebuilding Ireland, County Longford was targeted to deliver 309 social housing units within the ‘building, acquisition, leasing’ category specifically between 2018-2021. Through 2018-2019, Longford County Council have already delivered 261 units through these mechanisms. Thus, over the course of 2020- 2021 only 48 additional units are required to be delivered through ‘building, acquisition and leasing’ mechanisms in order to meet the Rebuilding Ireland targets. This is an encouraging indicator as to Longford County Council’s ability to provide it social housing requirements in line with the aspirations of Rebuilding Ireland. Additionally, a target of delivering 257 units across all social housing delivery streams (build, acquisition, leasing, Housing Assistance Payment (HAP) and Rental Accommodation Scheme (RAS)) was set for 2019. By the end of 2019, the total output in County Longford was 308 units, which indicates that Longford County Council achieved 120% of its Rebuilding Ireland Target to 2019. This is further elaborated in the Longford Housing Strategy in Annex 4. It is also a key priority of the Council to ensure that groups with special housing needs, such as the elderly, people with disabilities, the homeless, those in need of emergency accommodation and Travellers are accommodated in a way suitable to their specific needs. 4.14.3 Average Household Size Census 2016 indicates that the 40,755 people living in 15,122 private households in County Longford resulted in an average household size of 2.70 which is marginally lower than the state average of 2.75. However, the NPF states that the national average is expected to decline to around 2.5 by 2040, whilst acknowledging that urban households tend to be smaller than in the suburbs or rural parts of the country. In line with this projected trend, a graduated average household size is utilised within this plan to 2040 (i.e. assuming alignment with the NPF by 2040). By the end of the plan period in 2027, the average household size is projected to be 2.61. By applying the relevant household size to projected population increases, it is possible to forecast required household numbers to 2027 and beyond. This is addressed further in Annex 4: County Longford Housing Strategy 2021-2027. 4.14.4 Household Size Cohort Annex 4 provides further detail on projected household composition over the plan period, based on analysis of trends between 2002-2016. This analysis demonstrates a trend towards 1 and 2 person households over the plan period, which are projected to form a combined total of 58.7% of all households by 2027. In contrast, the number of households comprising of 4 people or more will continue to decline between 2021-2027. Households with 4 or more people will amount to approximately 25-% of total households by 2027. 4.14.5 Household Composition As set out in Section 6.6 of the NPF, information on household composition and projections in relation to household size are informative evidence inputs that can assist with understanding stock profile pressures. The Longford Housing Strategy 2021- 2027 provides analysis of the historic information (2002, 2006, 2011 and 2016 Census) in relation to the composition of households at County level in order to understand these dynamics and estimate how they may change over time. Specifically, the intercensal average has been used to determine a trended annual average change in household composition. This indicates the following changes can be anticipated during the plan period: ■ 1 person households will increase by an average of 0.19% annually ■ 2 person households will increase by an average of 0.18% annually ■ 3 person households will increase by an average of -0.03% annually ■ 4 person households will increase by an average of -0.05% annually ■ 5+ person households will increase by an average of -0.28% annually Figure 4.7 and Table 4.17 indicate the estimated proportion and number of households by size during the plan period.Longford County Council 116
- 27.6% 27.8% 28.0% 28.2% 28.4% 28.6% 28.7% 28.9% 29.1% 29.2% 29.4% 29.6% 29.8% 29.9% 16.1% 16.1% 16.1% 16.1% 16.0% 16.0% 16.0% 14.8% 14.7% 14.7% 14.6% 14.6% 14.5% 14.4% 12.6% 12.3% 12.0% 11.7% 11.5% 11.2% 10.9% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% 2021 2022 2023 2024 2025 2026 2027 1 person household 2 person household 3 person household 4 person household 5+ person household Figure 4.7: Forecasted Household Size Cohort in County Longford during the plan period Table 4.17: Household Size Cohort Forecasts for Additional Anticipated Households in County Longford during the plan period Additional Anticipated Households 2022 2023 2024 2025 2026 2027 2028 1 Person Household 119 120 121 121 122 123 726 2 Person Household 124 125 126 127 127 128 758 3 Person Household 69 69 69 69 68 68 412 4 Person Household 63 63 63 62 62 62 374 5 + Person Household 53 51 50 49 48 47 298 Total Additional Anticipated Households 428 428 428 428 428 428 2,568 4.14.6 Tenure Tenure is another important consideration for the delivery of housing and Section 6.6 of the NPF identifies the need to estimate the demand for different tenure types. Analysis of the historic tenure split has therefore been undertaken in the Longford Housing Strategy 2021-2027 to help discern and forecast how the household tenure may change during the plan period. Historic data indicates the intercensal observed change between 2002-2016 and an annual average change applied forward for the plan period as a continuation of trends was applied. The following changes can be anticipated during the plan period: ■ Annual average change of -1.02% observed in owner occupied households (average intercensal change of -5.1%). ■ Annual average change of 0.7% observed in privately rented households (average intercensal change of -3.5%). ■ Annual average change of 0.33% observed in other rented households (average intercensal change of -1.6%). The applied changes for the additional anticipated households are indicated in Figure 4.8 and Table 4.18.County Development Plan 2021–2027 117
- 60.3% 59.3% 58.3% 57.3% 56.3% 55.2% 54.2% 21.3% 22.0% 22.7% 23.4% 24.1% 24.8% 25.5% 18.3% 18.7% 19.0% 19.3% 19.6% 20.0% 20.3% 0.00% 10.00% 20.00% 30.00% 40.00% 50.00% 60.00% 70.00% 80.00% 90.00% 100.00% 2021 2022 2023 2024 2025 2026 2027 Owner occupied Private Rental Other Rental Figure 4.8: Household Tenure Forecasts for Households in County Longford during plan period Table 4.18: Household Tenure Forecasts for Additional Anticipated Households in County Longford during plan period Additional Anticipated Households 2022 2023 2024 2025 2026 2027 Total Owner occupied 254 250 245 241 236 232 1,458 Private Rental 94 97 100 103 106 109 610 Other Rental 80 81 83 84 85 87 500 No. of Additional Anticipated Households 428 428 428 428 428 428 2,568 4.14.7 Residential Densities Higher densities are applied to the Key Town of Longford Town (35-40 units per hectare), with a reduction in residential densities for Self-Sustaining Growth Towns (25 units per hectare) and Self- Sustaining Towns (25 units per hectare), other towns and villages (20 units per hectare) and rural serviced settlements 15 units per hectare and in a manner that is commensurate to the existing built environment of these settlements and subject to good design and Development Management Standards (see Chapter 16). Residential Densities are defined in Chapter 4, Table 4.14 (page 95) of It is important that the density of new development in towns and villages is reflective of the existing character and that growth is linked to infrastructural capacity.Longford County Council 118
- 4.14.8 Layout and Design A good development creates a ‘sense of place’ and community belonging to the residents. This is created by providing a mixture of house types and tenure, an individual design, the use of a variety of materials for the context of the site and area and connectivity of the site to other places. In considering proposals for development, the Council will have regard to the DEHLG Guidelines on ‘Quality Housing for Sustainable Communities – Best Practice Guidelines for Delivering Homes Sustaining Communities’ (2007), ‘Delivering Homes Sustaining Communities – Statement on Housing Policy’ (2007), ‘Sustainable Urban Housing: Design Standards for New Apartments Guidelines for Planning Authorities’ (2018) and ‘Sustainable Residential Development in Urban Areas’ and the accompanying ‘Urban Design Manual: A Best Practice Guide’ (2009). 4.14.9 Apartment Development The 2016 Census indicates that 1-2 person households now comprise a majority of households and this trend is set continue, yet Ireland has only one-quarter the EU average of apartments as a proportion of housing stock. (Department of Housing, Planning and Local Government, 2018). In Longford, 4.2% of households lived in apartments in 2016, substantially lower than the national rate of 12%. As with housing generally, the scale and extent of apartment development should increase in relation to proximity to core urban centres and other relevant factors in line with the standards, principles and any specific planning policy requirements (SPPRs) set out in the Urban Development and Building Heights Guidelines for Planning Authorities’ (2018) and the ‘Sustainable Urban Housing: Design Standards for New Apartments, Guidelines for Planning Authorities’ (2018). 4.15 Housing Strategy County Policy Objectives The following sets out the County Policy Objectives relating to housing in County Longford over the plan period of 2021-2027. Further particulars relating to housing provision are to be found in the Core Strategy and Settlement Strategy which sets out the extent of housing provision to serve the county’s existing and future population in locations that comply with the Settlement Hierarchy, and also Chapter 16: Development Management Standards, which includes standards in relation to housing provision. CPO 4.54 CPO 4.55 CPO 4.56 CPO 4.57 CPO 4.58 Housing Strategy - County Policy Objectives It is the County Policy Objective to: Provide new homes to meet expected future housing requirements in the County as identified in the HNDA. A total of 2,568 new homes shall be provided over the plan period to meet requirements a result of forecast population growth. New homes shall be provided in a planned and coordinated manner in accordance with the aims and policies of the Core Strategy, the RSES, and the National Planning Framework. Seek the provision of an appropriate mix of housing types and tenures to ensure homes for communities in towns, villages and rural areas and to meet the needs of people of all incomes and needs. Provide for new housing in existing settlements to ensure that settlements grow in a manner that is sustainable, includes provision of sufficient social and economic infrastructure, and to a scale which aligns with the Settlement Hierarchy set out in the Core Strategy. Provide new housing in rural areas including one-off homes in accordance with the Development Plan where it meets the social and economic needs of these areas, tackles isolation, and promotes social inclusion. Provide housing appropriate to the needs of the elderly (in accordance with the Longford Age Friendly Strategy 2015-2020 and any subsequent strategies), persons with disabilities, lone parents, Travellers, and the homeless. The Council shall support and promote the use of Universal Design principles and life-long adaptability in new housing developments to meet the needs of diverse groups and an aging population.County Development Plan 2021–2027 119
- Seek high quality of design in all housing development having due regard to Government policy relating to sustainable development, which aims to reduce the demand for travel within existing settlements, and the need to respect and reflect the established character of rural areas.Longford County Council 120
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