Development plan · Monaghan County Council
Monaghan County Development Plan 2025–2031
The council's development plan written statement: its strategy, policies, objectives and development standards.
Monaghan County Council · 2025–2031 · 376 pages
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- 69 RURAL SETTLEMENT OBJECTIVE RSO 3 To maintain population levels in the remaining rural areas by accommodating appropriate rural development and to consolidate the existing town and village structure. 1 For the purpose of this section a landowner is defined as an individual with a minimum landholding in the local rural area of two hectares (5 acres), which he or she has owned for a minimum period of five years prior to the date of submission of a planning application. 2 Immediate family is considered to be a sibling, son or daughter, or adopted child of the landowner. Where the landowner’s child(ren) have resided outside the state or Northern Ireland for a minimum continuous period of ten years or where the landowner has no children, a niece/nephew maybe considered a landowner’s family member. 3 For the purposes of this section, local area is defined as being within a radius of four kilometres. 4 For the purposes of this section, rural area is defined as outside the defined development limits of a settlement. 2.13.2 CATEGORY 2 – REMAINING RURAL AREAS This area comprises all other rural areas outside of the settlements and the rural areas under strong urban influence. Within the remaining rural area, it is recognised that sustaining communities is important and as such it is considered appropriate to facilitate rural housing in accordance with the principles of proper planning and sustainable development. In these areas the challenge is to retain population and support the rural economy while seeking to consolidate the existing village network. This stability is supported by a traditionally strong agricultural economic base. RURAL SETTLEMENT POLICY RSP 8 To facilitate rural housing in the remaining rural areas subject to the relevant planning policies as set out in Chapter 15, Development Management Standards of the Monaghan County Development Plan 2025-2031. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
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- Monaghan County Development Plan 2025 – 2031 chapter 03 housing strategy 71
- 3.0 INTRODUCTION The primary purpose of the Strategy is to ensure that the overall supply of housing is sufficient to meet the needs of the existing and projected population of the County. The Strategy includes measures that address the housing needs of the existing and future population of the area covered. The Strategy also provides for more sustainable patterns of development by ensuring that as far as possible housing developments are designed and located to make full use of public transport and give access to education, employment, health and other services. The Strategy is informed by a robust, evidence base derived from the Housing Need Demand Assessment (HNDA) 2023 - 2031. The requirement for a HNDA is set out in the National Planning Framework (NPF), specifically NPO 37 and has been prepared in line with Circular 14/2021 HNDA and the Guidance on the Preparation of a Housing Need and Demand Assessment (DHLGH, 2021) and the HNDA Tool Instructions (DHLGH, 2021). The Strategy is informed by the Core Strategy which is contained in Chapter 2 of this Development Plan and sets out projected housing supply and population growth targets for the County. The Settlement Strategy provided in Chapter 2 indicates where housing will be provided in line with the Settlement Hierarchy of the County. 3.1 LEGISLATIVE CONTEXT Section 94 of Part V of the Act places an obligation on all planning authorities to prepare a Housing Strategy for the purpose of ensuring that the area of the Development Plan provides housing for the existing and future population of the plan area. The Act requires that a Housing Strategy takes account of the following: k the existing need and the likely future need for both social and affordable housing, k the need to ensure that housing is available for persons who have different levels of income, k 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 elderly persons and persons with disabilities, k the need to counteract undue segregation in housing between persons of different social backgrounds, and k the existing need and the likely future need for housing, in particular houses and duplexes, for purchase by intending owner-occupiers. Section 94(4) states that a Housing Strategy shall include an estimate of the amount of: k Housing for the purposes of the provision of social housing support within the meaning of the Housing (Miscellaneous Provisions) Act 2009, k Affordable housing that will be required within the county during the period of the plan, and k Cost Rental Housing. Section 94 (5) (a) states that when making these estimates, the Planning Authority shall have regard to the following: k The supply of and demand for houses generally, or houses of a particular class or classes, in the whole or part of the area of the Development Plan, k The price of houses generally, or houses of a particular class or classes, in the whole or part of the area of the Development Plan, k The income of persons generally or of a particular class or classes of person who require houses in the area of the Development Plan, k The rates of interest on mortgages for house purchase, k The relationship between the price of housing, incomes and rates of interest for the purpose of establishing the affordability of houses in the area of the Development Plan, and k Such other matters as the Planning Authority considers appropriate. 72 Monaghan County Development Plan 2025 – 2031 HOUSING STRATEGIC OBJECTIVE HSSO 1 To plan for future housing in the County within defined settlements, making efficient use of infrastructure and services in towns and villages, and enabling their plan led growth, whilst facilitating sustainable rural housing where it supports rural communities.
- Where affordable housing is determined as not appropriate (or no affordable housing need is assessed), the full 20% requirement must be applied towards social housing. The Local Authority and developer shall make an agreement in accordance with the options specified in section 96(3) of the Act, which can be transfer of houses on the site in question, transfer of houses on other sites, or the granting of a lease of houses on the site or on other sites, or the default set out in legislation of a transfer of 20% of the site, or to agree a combination of the options. This Housing Strategy informed by the HNDA is required to make an assessment of need for these affordable housing tenures (in addition to social housing), and to determine the breakdown of Part V housing requirements between social and affordable over the period of the Development Plan. 3.2 POLICY CONTEXT The Act requires that the Housing Strategy is consistent with National and Regional policy. As such the following plans and guidelines have been considered in the drafting of the Strategy: k National Planning Framework – Project Ireland 2040 (NPF) k National Development Plan 2021-2030 (NDP) k Implementation Roadmap for the National Planning Framework (DHPLG, 2018) k Northern and Western Regional Assembly Regional Spatial and Economic Strategy 2020- 2032 (NWRA RSES) k Housing for All (DHLGH, 2021) k Guidance on the Preparation of a Housing Need and Demand Assessment (DHLGH, 2021) k Housing Supply Target Methodology for Development Planning (DHLGH, 2020) k Housing Options for Our Aging Population (DHPLG and DoH, 2020) k Town Centre First Policy (DRCD, 2024) k Sustainable Urban Housing: Design Standards for New Apartments (DHLGH, 2022) k Quality Housing for Sustainable Communities: Best Practice Guidelines (DEHLG, 2007) k Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (DHLGH, 2024) k The National Housing Strategy for Persons with a Disability 2022-2027 (DHLGH, 2023) k Youth Homelessness Strategy 2023-2025 (DHLGH, 2022) k Vacant Homes Action Plan 2023-2026 (DHLGH, 2024) 3.3 HOUSING MARKET DRIVERS In line with the Guidance on the Preparation of a Housing Need and Demand Assessment (DHLGH, 2021) this section identifies key demographics and economic trends expected over the period of the HNDA that will impact on the local housing market, including the following: k Demographic analysis; k Housing affordability, including incomes, house prices, rent levels; and k Key drivers of the local and national economy. Future housing demand will be influenced by changes in population numbers, household formation rates and household size. The balanced spatial distribution of housing across the County will continue to be an important consideration. 3.3.1 POPULATION TRENDS Census 2022 shows that Ireland’s population grew to 5.15 million, exceeding the five million threshold for the first time in 171 years. On Census Day 2022, there were 5,149,139 people recorded in the State, an increase of 8% upon the April 2016 figure. County Monaghan experienced an increase in population between 2016 and 2022, growing by 6.4% (3,902 people), bringing the total population of the County to 65,288. 52.6% of this increase (2,055 people) was the result of natural increase, while 47.3% of (1,847 people) was the result of migration into the County. This constituted an annual rate of population increase of 10 people per 1,000, the sixth lowest in the State. In addition to the above and having regard to Census 2022, the following trends are applicable to County Monaghan: k The number of people aged 65 and over continues to grow. This age group increased by 21% to 10,397. k Between April 2016 and April 2022, housing stock in the County grew by 4% from 25,311 to 26,339. The number of vacant dwellings decreased by 3% to 2,793. k The average household size in the County is 2.81 persons, a slight decrease on 2016, with a little over half of households having only 1 or 2 persons. k In April 2022, 16,144 of homes were owneroccupied in the County, compared with 15,769 in April 2016. k The number of homes owned with a mortgage or loan fell by 6% from 6,828 to 6,385 since Census 2016 while the number of homes owned outright (without a loan or mortgage) increased by 9%, from 8,941 to 9,759. 73 Monaghan County Development Plan 2035 – 2031housing strategychapter 03
- k Homes rented from private landlords showed a 12% increase from 3,062 to 3,420. k The number of homes rented in the 65 and over age group was 167 (which was an 80% increase). In the 60 to 64 age group, it was up 136% compared with 69% nationally. k By the age of 35, more than half of householders in the County owned their own home (with or without a mortgage or loan). Nationally, this age was 36. k Between the 2016 and 2022 Censuses, the average weekly rent paid to a private landlord in County Monaghan in April 2022 was €155, which was a 31% increase on 2016. k There were more than 1,063 dwellings classed as vacant both in the 2016 and 2022 Censuses in the County, which could be an indication of a longer term vacancy status. k In addition to other non-nationals, there are at present, 891 Ukrainians living in the County (Feb 2024) 3.4 POPULATION AND HOUSING PROJECTIONS – NATIONAL LEVEL 3.4.1 POPULATION Appendix 2 of the National Planning Framework Implementation Roadmap includes transitional regional and county population projections up to 2031. Figures for County Monaghan are illustrated in Table 3.1. With a 2022 population of 65,288 persons, the population growth in the County is roughly in line with progression towards the NPF targets, albeit at the lower end of the estimated range. 3.4.2 HOUSING The database sheet accompanying the Housing Supply Target Methodology Guidelines, provides projected annual figures for new household demand in each local authority area up to the year 2031. For County Monaghan, the housing demand for the Development Plan period is 2,558. Table 31 of the database sheet accompanying the Housing Supply Target Methodology Guidelines set out in Table 3.2, indicates the number of new houses required for the Development Plan period, to enable the County to meet the Economic and Social Research Institute (ESRI) NPF new household demand up to 2031. 74 Monaghan County Development Plan 2025 – 2031 COUNTY CENSUS CENSUS PROJECTION PROJECTION 2016 2022 2026 2031 Monaghan 61,386 65,288 67,000 – 68,000 69,000 – 71,000 TABLE 3.1 TRANSITIONAL REGIONAL AND COUNTY POPULATION PROJECTIONS TO 2031 Source: Implementation Roadmap for the National Planning Framework, 2018. MONAGHAN COUNTY COUNCIL ANNUAL AVERAGE TOTAL HOUSEHOLDS NO. HOUSEHOLDS NO. A ESRI NPF scenario projected new household demand 2017 to Q2 2031 268 4,026 B Actual new housing supply 2017 to Q3 2024 228 1,769 C Homeless households, and estimated unmet N/A 301 demand as a Census 2022 D Housing Demand 2025-2031= Total (A-B+C)/6 426 2,558 TABLE 3.2 HOUSING SUPPLY TARGET COUNTY MONAGHAN Source: Housing Supply Target Methodology for Development Planning- Guidelines for Planning Authorities, 2020 & Central Statistics Office
- 3.5 HOUSING AFFORDABILITY In recent years, Ireland has experienced a sustained period of price inflation in the housing market due to high demand, low supply and higher construction costs. Having regard to the quarterly reports published by Daft.ie, house prices in the State rose by 1.8% on average in the first quarter of 2024, following a fall in the last quarter of 2023. Overall house prices in the first quarter of 2024, are on average 5.8% higher than the previous year. The average house price in the State is detailed at €326,469 whilst in County Monaghan it is €238,292, a 10.1% increase from quarter one in 2023. 3.6 HOUSEHOLD STRUCTURE According to Census 2022, there are 22,958 private households in County Monaghan, an increase of 5.9% when compared to the 2016 figure. The average household size in the County is 2.81 persons per household, a slight decrease from the 2016 average household size of 2.83 but above the national average of 2.74 people as illustrated in Table 3.3. These figures indicate that the average household size in County Monaghan has been declining since 2011. There were 16,435 families in the County in April 2022, up from 15,972 in 2016 (+3%). The average number of children per family in the County was recorded as 1.49, which is above the State average of 1.34. The 2022 Census highlights that the number of people living alone in the County has increased by 9% from 5,148 to 5,618 since Census 2016. Census 2022 also reveals that County Monaghan has a significant number of 1 and 2 person households. There were 9,894 people aged 65 and over living in the County in April 2022, of these 2,692 were living alone. This represents a 21% increase in those aged 65 and over living alone since Census 2016. 75 Environment, Energy and Climate ActionEnvironment, Energy and Climate Actionintroductionchapter 01Monaghan County Development Plan 2035 – 2031housing strategychapter 03 AVERAGE HOUSEHOLD SIZE (PERSONS PER HOUSEHOLD) 2011 2016 2022 County Monaghan 2.84 2.83 2.81 State 2.73 2.75 2.74 TABLE 3.3 AVERAGE HOUSEHOLD SIZE Source: Central Statistics Office, Ireland. Source: Central Statistics Office, Ireland. PRIVATE HOUSEHOLDS BY SIZE HOUSEHOLD SIZE PRIVATE HOUSEHOLDS (NO.) PERSONS IN PRIVATE HOUSEHOLDS (NO.) 1 person household 5,618 5,618 2 person household 6,220 12,440 3 person household 3,723 11,169 4 person household 3,647 14,588 5 person household 2,422 12,110 6 person household 969 5,814 7 person household 253 1,771 8 person household 106 919 TOTAL HOUSEHOLDS 22,958 64,429 TABLE 3.4 PRIVATE HOUSEHOLDS BY SIZE CENSUS 2022
- 3.7 CURRENT HOUSING MARKET The most significant factors affecting the housing market in Ireland today is the continued undersupply of new housing to the market coupled with growing demand. The recent interest rate increases, and rising cost of living will impact house prices in the short to medium term. Lack of supply in the rental market is also a contributing factor to the strong demand, along with a lack of supply of social and affordable housing. The cost of construction materials is also a particular concern in relation to the supply of new homes. The challenges facing the development sector include increased inflation, shortages in labour and the nature of Ireland’s public procurement process. 3.8 EXISTING HOUSING STOCK, TYPE AND TENURE The Guidance on the Preparation of a HDNA (DHLGH, 2021) requires a profile of all existing housing stock (owner occupied, private rented, social rented, vacant, etc.) to be set out. This housing stock profile should also include housing stock pressures and management issues, for example overcrowding, obsolescence, vacancy, dwellings requiring upgrade or renovation, etc. Housing stock in County Monaghan increased by 4% from 25,311 to 26,339 between 2016 and 2022, whilst housing stock in the State grew by 5% from 2,003,645 to 2,112,121. The vast majority of householders in the County reside in houses or bungalows (95.4%) with only 4.5% of the housing stock comprising apartments and flats. In April 2022, 16,144 homes were owner-occupied in the County, compared with 15,769 in April 2016. The number of homes owned with a mortgage or loan fell by 6% from 6,828 to 6,385 since Census 2016 while the number of homes owned outright (without a loan or mortgage) increased by 9%, from 8,941 to 9,759. Homes rented from private landlords showed a 12% increase from 3,062 to 3,420. Nationally, 66% of homes were owner occupied. Some 531,207 homes were owned with a mortgage or loan, while almost 680,000 homes were owned without a mortgage or loan, which was up 11% from 2016. More than 330,000 homes were rented from a private landlord, an increase of 7% since 2016. There was a significant increase of 83% (up to almost 17,000 households) in the number of over 65s renting from a private landlord in the State. In County Monaghan, the number of homes rented in the 65 and over age group was 167 representing an 80% increase. In the 60 to 64 age group, it was up 136% compared with 69% nationally. Census 2022 shows that by the age of 35, more than half of householders in the County owned their own home (with or without a mortgage or loan). Nationally this age was 36. This age, which marks the changeover between home ownership and renting, has been increasing over time, up from 26 years in 1991, 27 years in 2002, 28 years in 2006, 32 years in 2011, and 35 years in 2016. 3.9 VACANCY Between April 2016 and April 2022, the number of vacant dwellings in the County decreased by 3% from 2,884 to 2,793. Census 2022 notes that many properties classed as vacant in the Census may only be vacant for a short period of time and for a wide variety of reasons including, for example homes for sale, rent, new build or renovation etc. However, there were more than 1,063 dwellings classed as vacant both in the 2016 and 2022 censuses in County Monaghan and additionally, 549 units had been vacant since 2011, which is an indication of a longer-term vacancy status. County Monaghan ranked 9th in the State for the proportion of dwellings that have been vacant for 7 years and ranked 7th for the proportion of dwellings that have been vacant for 11 years. According to the 2022 figures, variation in vacancy rates was apparent at the local level with most settlements seeing a slight decrease in vacancy rates. Clones Town saw the largest drop-in vacancy rate from 18.1% to 13.7% whilst Monaghan Town saw a slight increase from 11.5% to 12.3%. The 2022 Census recorded a vacancy reason for each vacant dwelling. It should be noted that, while a dwelling may have had more than one reason for being vacant (e.g., a property for sale with a recently deceased owner), only a single reason was recorded. In County Monaghan, the leading reasons recorded for vacancy were that the dwelling was a rental property (21.7%) and that the owner was deceased (20.3%). This reflects the national trend where these are also the leading reasons, but the proportion of vacant properties falling into these categories in County Monaghan is higher in both cases. Considering the relatively high proportion of dwellings that have been vacant for 7 or more years, this may indicate that a large number of dwellings are unable to be released to the market due to probate-related situations following the deaths of owners. 76 Monaghan County Development Plan 2025 – 2031
- The third most frequently given reason for vacancy in the County is that the dwelling is an abandoned farmhouse (13.8%). Abandoned farmhouses account for nearly double the proportion of vacant properties in County Monaghan than at State level. Particular focus should be directed towards this type of vacancy. This vacant stock could accommodate some of the additional housing units estimated to be required over the period of the plan and initiatives such as Croí Cónaithe have had a degree of success in this regard. 3.10 HOUSING SUPPLY Between 2012 and 2022, 1,776 dwellings were completed in County Monaghan. Of these, 62.8% were single houses, 32.2% in multi-unit schemes and 5% were apartments. The County is ranked 8th for the highest proportion of single houses in the State and the figure is well in excess of the State average of 29.1%. Completions have increased since 2019, even taking into account the slow down experienced due to the Covid Pandemic between 2020-2021. The proportion of completed apartments has also increased and accounted for 6.2% of completions between 2019 and 2022, although this is still significantly less than the State average of 20.1%. The highest number of house completions was experienced within the Carrickmacross-Castleblayney Municipal District which recorded 809 completed units between 2012 and 2021. Monaghan Municipal District saw 554 units completed whilst 420 units were completed within the Ballybay-Clones Municipal District. Data published by the Department of Housing, Local Government and Heritage (DHLGH) indicates that that Commencement Notices for 3,699 new homes were received by Building Control Authorities in February 2024, an increase of 85% on the number of new homes commenced in the same month last year (1,997 units) and the highest number of units commenced in February since records began in 2015. In the first two months of 2024, 7,056 new homes were commenced, a figure 72% higher that when compared to the first two months of 2023, with rolling 12-month commencements totalling above 35,750. These figures indicate that supply, which is key to addressing housing needs continues to increase and that a robust stock of new housing is in the pipeline. House commencements in County Monaghan have averaged at between 200- 299 units since 2018. This is above the annual average for the Border Region but considerably below the State average which is buoyed by the presence of large urban areas. Completion of new social housing in 2022 was predominantly provided by Monaghan County Council with 82.5% of all new build social housing units and ‘turnkey’ acquisitions coming through Monaghan County Council, well above the State level proportion where approved housing bodies provided 41.3% of all social housing completions. 3.11 RESIDENTIAL RENTAL MARKET Renters continue to face large increases in the amount of rent they pay. Between the 2016 and 2022 Censuses, the average weekly rent paid to a private landlord in County Monaghan was €155, which was a 31% increase on 2016. The average weekly rent paid to a private landlord (at national level) rose to €273, up €73 (37%). This was more than double the rate of increase (17%) between 2011 and 2016. The average standardised monthly rental price of a residential property in County Monaghan in 2023 was €873. The most expensive single location was in Carrickmacross (€947), in comparison to Ballybay which was the cheapest at €787. Monaghan Town and Castleblayney exhibited the lowest and highest increases in rents in the last five years at 24.8% and 43.1% respectively. According to The Daft.ie Rental Price Report for Quarter 1 of 2024, market rents in County Monaghan were on average 7.7% higher in the first three months of 2024 than for the same period in 2023. The average listed rent in County Monaghan is €1,190, up 52% from the level prevailing before the Covid pandemic. The average annual rental price increase for the County between 2017 and 2022 was 6.5%. Monaghan Town exhibited the lowest average annual increase of towns apparent in the data at 5.3% and Castleblayney exhibited the highest at 8.5%. The change over time in average monthly rent shows a slight slow down in annual rental price increases between 2017 and 2021 followed by a sharp increase in 2022. The overall volume of Residential Tenancy Board (RTB) registered tenancies in the County decreased from circa 800 in June 2022 to 541 in June 2023. The lack of rental properties is particularly apparent outside of Monaghan Town, with a related effect on unit size and choice. There are several types of housing support in operation including the provision of social housing and the Housing Assistance Payment (HAP). HAP is a form of support available to people who have a long-term housing need and specifically for those persons or families who are eligible for social housing but are unable to be assigned an appropriate social housing dwelling. Under HAP, the Local Authority can make a monthly payment to a landlord, subject to terms and conditions including rent limits, on a tenant’s behalf. 77 Environment, Energy and Climate ActionEnvironment, Energy and Climate Actionintroductionchapter 01Monaghan County Development Plan 2035 – 2031housing strategychapter 03
- Under the current HAP legislation, limits for HAP payments are based on the number of people in a household and the rental market in the area. Local authorities have a limited additional flexibility to exceed the maximum rent limits on a case-by-case basis. As of June 2022, the Department of Housing, Local Government and Heritage proposed further flexibility for local authorities, permitting them to exceed rent limits by up to 35%. As of April 2024, there were 466 HAP properties listed in the County with the majority being located between the Monaghan Urban and Monaghan Rural Electoral Divisions. 3.12 SOCIAL HOUSING Social housing is provided by the Local Authority to meet the needs of low-income families, who otherwise would not be assured of sustainable and secure housing tenure. Approved Housing Bodies (AHB) also provide social housing for people who are unable to provide housing from their own resources. Central Government plans to rapidly increase the number of houses owned by Local Authorities and AHBs so that the most vulnerable in society will have access to a home. Housing for All - a New Housing Plan for Ireland is the Government’s housing plan to 2030. It is a multi-annual, multi-billion-euro plan which will improve Ireland’s housing system and deliver more homes of all types for people with different housing needs. The Government’s overall objective is that every citizen in the State should have access to good quality homes which: k Can be purchased or rented at an affordable price, k Will be built to a high standard and in the right place, and k Will offer a high quality of life. The policy has four pathways to achieving housing for all: k supporting home ownership and increasing affordability, k eradicating homelessness, increasing social housing delivery and supporting social inclusion, k increasing new housing supply, and k addressing vacancy and efficient use of existing stock. For County Monaghan the approach to meeting the social housing demands of the population should be more specific to the needs of the County. Whilst there is still a requirement for new build units, there is also a key need to refocus an element of supply by bringing privately owned vacant and derelict units back into productive use. This will be a key element in County Monaghan as part of a broader policy context of regenerating towns and villages throughout the County. 3.12.1 SOCIAL HOUSING LIST ANALYSIS As of April 2024, there are currently 1045 households on the social housing waiting list along with a further 125 on the transfer list. In 2023, Monaghan County Council accommodated approximately 20% of the social housing waiting list in social housing units. 78 Monaghan County Development Plan 2025 – 2031 Source: Department of Housing, Local Government and Heritage. HAP OVERVIEW MONTHLY PAYMENTS SINGLE €330 COUPLE - NO DEPENDENTS €390 COUPLE/LONE PARENT WITH 1 CHILD €500 COUPLE/LONE PARENT WITH 2 CHILDREN €515 COUPLE/LONE PARENT WITH 3 OR MORE CHILDREN €530 SINGLE IN SHARED ACCOMMODATION €200 COUPLE IN SHARED ACCOMMODATION €220 TABLE 3.5 MAXIMUM HAP MONTHLY PAYMENTS IN COUNTY MONAGHAN BAND 3, 2023
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