Ministerial guidelines
Sustainable Rural Housing: Guidelines for Planning Authorities
One-off houses in the countryside: rural area types, local housing need, and siting and design.
Department of the Environment, Heritage and Local Government · April 2005 · 66 pages
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- 5 Planning Guidelines should be accommodated where they arise. With regard to urban generated housing in the open countryside, the NSS identified four broad categories of rural area types with differing development circumstances that required tailored settlement policies in the development plan process. In rural areas under strong urban influences, the NSS stresses that development driven by cities and larger towns should generally take place within their built up areas or in areas identified for new development through the planning process. In stronger rural areas, the NSS suggested that the extensive village and small town structure had much potential in accommodating additional housing development catering for persons working in larger cities and towns but desiring a rural lifestyle. In structurally weaker rural areas, the NSS emphasised the importance of accommodating any demand for permanent residential development, while acknowledging the importance of supporting the urban structure of such areas as well. In areas where there is a tradition of highly dispersed rural settlement, particularly parts of the south west, west and north west coast, the NSS emphasised the importance of locating new housing in a way which fits in with the traditional settlement patterns and strengthens existing patterns of housing. Implementation of the rural settlement policy framework of the NSS must be followed through in the planning process at local level. A key objective for the local planning system is to deliver sustainable rural settlement. The widely accepted definition of sustainable development is development that meets the needs of this generation without compromising the ability of future generations to meet their needs. The concept captures the important ideas that development: • has economic, social and environmental dimensions which together can contribute to a better quality of life,
- 6 lanning Guidelines • must strike a balance between these three dimensions to be sustainable, • should allow future generations to enjoy a quality of life at least as high as our own, and • should respect our responsibilities to the wider international community. In relation to rural housing, sustainable development is, therefore, much more than an environmental concept, although it includes that important element. It requires an acknowledgement of the role that people living in both small towns and villages and the wider countryside have to play in supporting a dynamic rural economy and social structure. For example, rural areas experiencing substantial and persistent population decline risk losing the level of population necessary to sustain essential services such as schools, local shops and sporting clubs leading to difficulties in supporting a vibrant social structure. Reversing population decline by accommodating new development contributes to sustainability by helping to deliver strong social and economic benefits to rural areas. Such benefits can be maximised by locating new rural housing development as closely as is conveniently possible to essential local services and community facilities. Implementing the rural settlement policy framework of the NSS in full, with its focus on economic, social and environmental issues and the inter-linkages between them, will be a step in making Ireland’s development sustainable. The 1997 policy document Sustainable Development: A Strategy for Ireland established the first overall national level policy framework addressing sustainable development. The strategy mapped out a strategic policy framework to deliver more sustainable development. The strategy referred to contrasts in development trends between rural depopulation in some areas and strong pressure for development of housing in rural areas close to urban areas.
- 7 Planning Guidelines However, the rural housing policy framework set out in the NSS, as a more recent and comprehensive expression of Government policy on housing in rural areas, should now be regarded as superseding the more limited provisions in that regard set out in the Sustainable Development Strategy. The publication of the Government’s White Paper on Rural Development 1 in 1999 represented a comprehensive expression of Government policy on various facets of rural and regional development and this policy was taken into account in preparing the NSS. The White Paper stated at Section 11 that the Government’s vision for the future of rural society is based on the maintenance of dispersed, vibrant rural communities. A key objective of the White Paper was the maintenance of rural population, not just in terms of numbers, but also in terms of achieving a balanced spatial distribution of population. The White Paper recommended that planning policy should, as far as possible, facilitate people willing to settle in rural areas, especially those willing to settle in their own areas of origin, in order to achieve a balanced rural population. The White Paper also recognised that, while the aspirations of the rural community must be respected, planning policy must be sensitive to the conservation of the rural environment including preservation of beauty spots and natural habitats. It also acknowledged that pressures for holiday homes may be causing affordability gaps for local people and recommended the targeting of investment in water services infrastructure in small towns and villages as a means of opening up development opportunities. The National Spatial Strategy’s approach to the rural housing issue took account of detailed research and analysis into the spatial structure of the different types of rural areas in Ireland. This analysis led to the conclusion that to achieve balanced regional development, it will be necessary to accommodate the scale and type of 1 Ensuring the Future – A Strategy for Rural Development in Ireland – a White Paper on Rural Development, Department of Agriculture Food and Rural Development 1999.
- 8 lanning Guidelines development that sustains population levels in rural communities, while also promoting development at locations ranging from the gateways to smaller rural towns and villages in the drive towards more balanced regional development. Furthermore, the analysis in the NSS identified the need for settlement policies at development plan level to take account of local circumstances in differing types of rural areas ranging from those closest to the country’s main cities and towns to those in more remote areas. In formulating policies for rural housing that are sustainable, planning authorities, in accordance with these guidelines should: (1) Take account of the processes that are triggering changes in settlement patterns in rural areas, particularly those factors that are giving rise to demand for housing in rural areas. (2) Take account of other related dimensions in relation to rural settlement such as environmental and heritage protection and the need to maintain the integrity of economic resources. (3) Act as a facilitator in bringing together, within existing local structures, the main interests concerned with rural settlement such as the elected members, farming and community organisations, organisations representing rural dwellers, county development boards, environmental organisations and any other relevant organisations such as the providers of rural public transport. (4) Develop within the broad interests outlined at (3) above, an awareness of the facts on the ground in relation to population and economic trends in rural areas as well as environmental indicators, that will inform the policy options for the planning authority’s development plan. (5) Work with interests such as those at (3) above to create a shared view of how the issue of rural settlement should be addressed through the development plan in the particular authority concerned. It is vitally important that planning authorities work to bring the elected members, officials, the wider public and interest groups together in building ownership over the development plan and its implementation.
- 9 Planning Guidelines Chapter 2: Policy Aims 2.1 Introduction In supporting housing development patterns in rural areas that are sustainable, policies and practices of planning authorities should seek to: (1) Ensure that the needs of rural communities are identified in the development plan process and that policies are put in place to ensure that the type and scale of residential and other development in rural areas, at appropriate locations, necessary to sustain rural communities is accommodated, (2) Manage pressure for overspill development from urban areas in the rural areas closest to the main cities and towns such as the gateways, hubs, and other large towns. An important task in addressing these aims is to identify the scale and distribution of the future housing needs of rural communities and to set out policies in the development plan. Planning authorities should aim, therefore, to support the following overarching policy objectives in their policies, practices and actions: • The importance of encouraging development needed to sustain and renew established rural communities in both smaller rural towns and villages and wider countryside areas, • The need to ensure that the planning system guides residential and other development to the right locations in rural areas in the interest of protecting natural and man-made assets in those areas, and • The need to analyse the different types of economic, social and physical circumstances of different types of rural areas and to tailor planning policies to respond to these differing local circumstances.
- 10lanning Guidelines 2.2 Sustaining and Renewing Established Rural Communities Planning authorities should monitor development, population, economic and other trends in rural areas closely and ensure that the planning system is responding. For example: (1) Significant population decline in rural areas should trigger the need for development plan and local authority investment policies aimed at encouraging housing development at appropriate identified locations in parallel with promoting development and economic activity in smaller villages and towns. (2) Very significant population increases in rural areas adjoining towns and cities in contrast with population stability or decline within these urban areas suggests the need to examine the reasons why the population of the town or city is not growing, how any barriers to development might be overcome and appropriate supportive policies for rural areas adjoining urban areas. The key message in this regard is that the planning system must take a more analytically based and plan led approach. Further guidance on these matters is outlined in Section 3 of these draft guidelines which deals with development plan policies. 2.3 Strengthening Rural Villages and Towns Difficulties in securing affordable and high quality housing in cities, towns and villages are frequently cited as the reason why many people seek to build houses in the open countryside. Planning authorities need to ensure that cities, towns and villages offer attractive and affordable housing options to meet the housing needs of urban communities and persons wishing to live in urban areas. This will assist in mitigating excessive levels of pressure for urban generated development in rural areas, especially those closest to the environs of cities and towns. It will also enhance the availability and affordability of sites and housing in rural areas to meet the housing needs of the established rural community.
- 11 Planning Guidelines A range of different housing options in small towns, villages and in more rural areas is required to meet the differing needs of the people who live in those communities. Local authorities have a variety of measures available to them to secure the ongoing development, renewal and improvement of towns and villages. These measures include the incorporation of appropriate policies in the development plan, derelict sites legislation and serviced land initiatives relating to water service and roads related infrastructure. Development of individual serviced sites or housing schemes of appropriate scale and character, within, or in the vicinity of small rural towns and villages can be encouraged using these mechanisms. Using the development plan and local plan processes, planning authorities should therefore make every effort to harness all of these measures to ensure that sufficient high quality, well located and affordable development can take place. Further suggestions in this regard will be contained in forthcoming Guidelines on Development Plans. 2.4 Guiding Development The planning system seeks to encourage and support appropriate development at the most suitable locations. Objective policies and unambiguous criteria will both aid persons preparing applications for permission to carry out development and build wider public support for the planning system. For example, looking to the area of natural and cultural heritage and natural resources, rural areas contain many features of interest and value that are key elements of that heritage and which are also a key part of a healthy economy and vibrant society. Natural features include habitats, environmentally sensitive areas, important scenic landscapes of national and international repute, ground and surface waters, mineral and aggregate reserves. Features and assets created by human activity include aspects of
- 12lanning Guidelines heritage such as archaeology, inland waterways and protected structures. Siting new development in rural areas in a way that protects the integrity of these natural and man-made features is an essential part of sustainable development. The development plan has a key role to play in identifying features and providing helpful advice. Such advice could include checklists to assist applicants in choosing the most appropriate sites and positions within sites. Such advice should also indicate the measures that could be adopted to minimise the impact of the proposed development. 2.5 Tailoring Planning Policies to Local Circumstances Sites in different rural areas or indeed different sites in the same area can differ markedly as regards suitability for development due to a range of different considerations, including access and drainage. The planning and development issues inherent in considering an application for a dwelling in a rural area close to, for example, the outskirts of Dublin, or a major county town or on the western seaboard all differ considerably. Within a county or part of a county, local development trends, road access issues or drainage matters can create varying considerations relating to proper planning and sustainable development. Taking account of the above, the outcome of different planning applications which may seem largely similar will not always be the same. However, the planning system must aim for consistency and transparency in the application and interpretation of development plan policy criteria in the assessment of all applications.
- 13 Planning Guidelines Chapter 3: Rural Housing and the Development Plan 3.1 Development Plan Objectives Under section 34(2) of the Planning and Development Act 2000, the provisions of the development plan are one of the key considerations that a planning authority must have regard to in deciding on individual planning applications. It is therefore vitally important that the development plan sets out a clear policy framework relating to rural settlement and that other relevant parts of the development plan are consistent with this policy framework. As previously indicated, this framework must be grounded in national policy, other planning guidelines2 made under Section 28 of the Act and must be supported by an appropriate analytical base. The framework must also be linked to other key elements of the development plan such as the housing strategy made under Section 94 of the Act and associated assumptions such as future population levels etc. Section 10(2) of the Act sets out a number of objectives which development plans must include. Many of these mandatory objectives address issues of relevance to the consideration of housing proposals in rural areas. Section 10(3) provides that a development plan may also indicate objectives for any of the purposes referred to in the First Schedule to the Act and many of these are also relevant to the consideration of housing proposals in rural areas. Examples of the latter include: • Promoting sustainable settlement and transportation strategies in urban and rural areas, 2 A comprehensive list of guidelines is contained on the Departments website www.environ.ie
- 14lanning Guidelines • Preserving the quality and character of urban or rural areas, • Protecting and preserving the quality of the environment, including the prevention, limitation, elimination, abatement or reduction of environmental pollution and the protection of waters, groundwater, the seashore and the atmosphere, • Protecting features of the landscape which are of major importance for wild fauna and flora, and • Preserving the character of the landscape, including views and prospects, and the amenities of places and features of natural beauty or interest. Furthermore, under Section 94 of the Act, each planning authority must prepare a housing strategy for the purpose of ensuring that the proper planning and sustainable development of the area of the development plan provides for the housing of the existing and future population. Planning authorities should ensure that the housing strategy is harnessed in taking a more analytically based and plan led approach to identifying the level of future housing requirements in both urban and rural areas and in responding to such requirements in assessing development proposals. Working forward from the housing strategy’s broad assumptions regarding future population and housing demand, ways in which to harness the housing strategy in setting development plan policies for rural housing include; (1) Setting out, in broad terms, how future population levels will be distributed in proportional terms between both urban and rural areas. (2) Making such assumptions regarding future population levels in rural areas in a way that is in general conformity with the planning authority’s own forecasts of future population levels, the NSS and any Regional Planning Guidelines that are in place. (3) Identifying the order of magnitude of future housing requirements that would be desirable to accommodate future housing needs in both rural and urban areas.
Source Department of the Environment, Heritage and Local Government: Sustainable Rural Housing: Guidelines for Planning Authorities (April 2005) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.