HOUSING - Roscommon County Council
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Chapter 5: Housing 5. HOUSING Housing is a basic requirement and it is important that good quality housing can be provided for all in a suitable location at an affordable price. Home ownership has traditionally been promoted in Ireland as the most attractive method of housing provision. The vision for the future of the housing sector in Ireland is based on choice, fairness and equity across tenure types and on delivering quality outcomes for the resources invested. The overall strategic objective is to ‘enable all households access to good quality housing appropriate to household circumstances and in their particular community of choice’ (Housing Policy Statement June 2011). The Council has an essential role in the provision of good quality housing for those in need of housing assistance. Roscommon County Council provides housing assistance for various sectors within the community. The Council also zones land so that suitable accommodation, with the appropriate services, can be provided. The provision of social housing continues to offer challenges to Roscommon County Council with traditional construction schemes being phased out in favour of initiatives such as the Rental Accommodation Scheme (RAS), social housing leasing initiatives, build-to-lease, and the sourcing of loan finance by approved housing bodies for construction and acquisition. Figure 5.1 shows the numbers of houses built or completed in the County over the past 17 years. This figure illustrates the sharp upsurge in housing development which peaked between 2001 and 2009. In those years various government policies and other economic drivers facilitated over-investment in the property market, creating a huge demand for housing that was initially not directly proportionate to evidence based assessments of local population growth and actual future housing requirements. Large volumes of land were zoned for residential development in towns and villages which resulted in unprecedented levels of housing development, often at peripheral locations in relation to settlement centres. Over the past few years the Government has also had to rethink its housing policy to ensure that an unsustainable oversupply of housing does not occur in the future. For this reason revised population targets have been produced for each County; those for County Roscommon have been included in the Regional Planning Guidelines for the West Region 2010-2022 (RPGs). Based on the Population targets set out in the RPGs, the population of County Roscommon will grow by approximately 6,200 people over the next six years up to 2020. The RPGs tell us that there are roughly 2.5 Figure 5.1 Houses Completed people on average living in each house in the County, therefore 2,480 houses will be required over the lifetime of this County Development Plan. This amounts to approximately 413 houses per year. Provision must be made for these within our towns and villages as well as the countryside in a planned and sustainable manner. The Council’s principal approach to the delivery of this new housing development has been set out within the Housing Strategy 2014-2020 as well as the Core Strategy of this plan (See Chapter 2). Roscommon County Development Plan 2014–2020 Page 121
Chapter 5: Housing
5.1 ROSCOMMON HOUSING STRATEGY 2014-2020
Housing plays an important role in shaping the social, economic and physical character of our communities.
For this reason, planning legislation requires that all local authorities prepare a housing strategy as part of
their development plan. The housing strategy aims to identify the housing needs of all people in the
community so that good quality housing is available to everyone regardless of income; so that everyone has
access to housing of a type, size and location that matches their needs.
The Housing Strategy must incorporate government policy and in particular must follow the population
targets set out for the County and contained in the RPGs. In this way it links to the Core Strategy which
provides more detail on our approach to accommodating population targets. In this regard, one of its key
functions is to calculate the amount of social and affordable housing that will be needed over the lifetime
of the County Development Plan.
The Housing Strategy also promotes social inclusion in the provision of social housing. This includes
encouraging a mix of housing in all areas which can accommodate people with different identified needs.
General Housing Policies
Policy 5.1 Facilitate the provision of an adequate supply of private housing in the County, in a manner
consistent with the Core Strategy, Settlement Hierarchy and Housing Strategy, which will
support the creation of sustainable communities through the provision of an appropriate
range of housing types, sizes and high quality residential environments.
Policy 5.2 Require the development of mixed and balanced communities so as to avoid areas of social
exclusion and ensure that the needs of older people, people with disabilities and other
special needs persons and households are adequately catered for in new developments.
Policy 5.3 Promote, where appropriate, higher density development on serviced lands in towns and
villages, including infill and backland development, whilst having regard to existing
settlement pattern and form as well as the principles outlined in the Guidelines for Planning
Authorities – Sustainable Residential Development in Urban Areas, May 2009, DEHLG1.
Policy 5.4 Ensure that services and utilities in residential developments are provided concurrently with
the construction of new residential development.
Policy 5.5 Ensure that new housing development in towns and villages is of appropriate scale, layout
and quality design and that it relates to the character and form of the settlement.
Policy 5.6 Emphasise quality, innovation and a design-led approach in all housing development with
proposals appropriate to each site and location.
Policy 5.7 Ensure that, where relevant, housing development will be subject to screening for
Appropriate Assessment in accordance with Article 6(3) of the Habitats Directive.
General Housing Objectives
Objective 5.1 Monitor the extent of residential development, including permitted residential
development, within the County to ensure that it is consistent with the Settlement
Hierarchy and the infrastructural capacity of each settlement, and to ensure that sufficient
lands are zoned in appropriate locations to accommodate housing over the period of the
Plan.
1
It should be noted that the previously titled Department of the Environment, Heritage and Local Government (DEHLG) is now the
Department of the Environment, Community and Local Government (DECLG).
Roscommon County Development Plan 2014–2020 Page 122Chapter 5: Housing
5.2 SOCIAL AND AFFORDABLE HOUSING
During the late 1990’s and first decade of this Century the rapidly inflating housing market dictated that
many people could not afford to buy a home, and consequently the government supported them through
affordable housing schemes which gave them a chance to buy new homes/land at lower than market
prices.
Government policy is now committed to making the rented sector a stable and attractive housing option,
delivering choice across tenures. The Government has stood down all existing affordable housing
programmes to reflect current affordability conditions and now considers that if a household is capable of
“renting a high quality home in a vibrant community but lacks the resources necessary to purchase an
equivalent home, that household does not need assistance from the State, particularly where pressures on
resources are extreme and the resources available must be focused on responses to the most acute
housing needs (Housing Policy Statement June 2011)”.2The Council recognises that ‘affordability’ is no
longer a major issue and welcomes the government aim to deliver a choice across tenures including a
stable rental market as a real alternative to buying a home. That said, the Council also recognises the right
of the individual to own a home and does not object in principle to the concept of owner-occupiers.
The Housing Strategy for County Roscommon shows that over the lifetime of the strategy approximately
6% of households in County Roscommon, about 144 families, will face affordability problems in relation to
renting or buying a home. The Council has a number of ways to help these families by providing a home for
them through its existing housing stock, Rental Accommodation Scheme (RAS), new social housing
provision or through voluntary and co-operative housing groups. Given the Country’s current economic
circumstances it is unlikely that any large-scale government funding will become available for social housing
in the coming years. However, under Part V of the Planning and Development Acts 2000-2011, the Council
will require that a minimum of 6% social/affordable housing is provided from each housing development on
lands zoned for residential use or zoned for a mixture of residential and other uses.
Social and Affordable Housing Policies
Policy 5.8 Require that a minimum of 6% of land zoned for residential use (or for a mixture of
residential and other uses) is reserved for the provision of housing referred to in Section
94(4)(a) of the Planning and Development Acts in accordance with the requirements of Part
V of the Planning and Development Acts.
Policy 5.9 Promote social integration by ensuring that social and affordable housing is well distributed
throughout all residential areas rather than concentrated in a few locations and by
encouraging the provision of community facilities, in particular, childcare facilities in new
and established residential areas.
Policy 5.10 Require that a suitable variety and mix of dwelling types and sizes are provided in
developments to meet different needs having regard to demographics and social changes,
smaller household sizes, lower formation age, immigration.
Policy 5.11 Secure the provision of social and affordable housing in accordance with the Housing
Strategy 2014-2020 to meet the needs of all households currently not provided for.
Social and Affordable Housing Objectives
Objective 5.2 Continue with the programme of refurbishment and regeneration of existing local authority
household stock subject to availability of funding.
Objective 5.3 Retain existing local authority housing stock and where possible prevent the loss of
residential accommodation; this does not preclude the sale of local authority housing.
2
It should be noted that Part V of the Planning and Development Acts 2000-2011, which relates to the provision of social and
affordable housing, has not been amended to reflect the government’s new policy direction although it is currently under review.
Roscommon County Development Plan 2014–2020 Page 123Chapter 5: Housing
5.3 VOLUNTARY HOUSING AND CO-OPERATIVE SECTOR
In the past, the voluntary and co-operative housing sector have had a relatively small role to play in
providing housing in County Roscommon; there were 151 Voluntary Housing units available to rent in
August 2012, with a further 27 under construction. This sector has tended to deliver housing through a
small number of key organisations across the County and have at times worked jointly with the local
authority and private developers. Given the limited funding that is currently available to local authorities
for new social housing, new government policy puts approved housing bodies from the voluntary and co-
operative sector at the heart of its vision for future housing provision.
Voluntary and Co-operative Housing Policy
Assist voluntary and non-profit co-operative housing associations in the provision of
Policy 5.12
housing.
5.4 SPECIAL NEEDS AND HOMELESSNESS
Society can be judged by how it treats its most vulnerable3 especially in times of great economic constraint.
Housing needs differ, not only in terms of household size and affordability, but also in terms of level of
need, accessibility requirements and differences in cultural traditions.
The Council will continue to provide assistance to those with special needs through local authority housing
and voluntary housing as well as through our existing housing schemes. The Housing Aid for Older People
Scheme and Mobility Aids Grant help older people living in poor housing conditions to make repairs and
improvements to their home, and the Housing Adaptation Grant helps those with a disability to make their
home more suitable to their everyday needs. As well as this, all new local authority housing developments
take account of the accommodation needs of those requiring housing assistance.
Census figures indicate that there were 171 homeless persons in the West Region, including County
Roscommon, in 2011. Overall there are low levels of homelessness in County Roscommon with 24 cases of
homelessness being brought to the attention of the Council’s housing office in 2012. Appropriate supports
were put in place to meet the needs of these people, including the provision of accommodation in six cases.
The Council will continue to provide support to those who are at risk of becoming homeless and will work
with other agencies to find the best possible long-term solution for those who find themselves without a
home.
Policies for Special Needs and Homelessness
Policy 5.13 Promote a partnership approach between the local authority and other agencies, including
health authorities, disability interest groups and voluntary housing associations, involved in
the provision of housing to people with special needs.
Policy 5.14 Support proposals for the provision of sheltered housing, day centres for people with
special needs etc. within or close to towns, villages and neighbourhood centres, subject to
normal planning requirements.
Policy 5.15 Encourage the provision of adequate specific, purpose-built accommodation, (including
those within a complex of facilities), for the elderly and people with special needs in order
to maintain their privacy and independent living whilst having the protection of a wider
sheltered environment.
Objectives for Special Needs and Homelessness
Objective 5.4 Facilitate the provision of suitable accommodation for the homeless and for those in need
of emergency accommodation, as resources permit.
Objective 5.5 Facilitate the provision of suitable accommodation for those with special needs through
existing and new local authority and voluntary housing as well as the upgrade of existing
residences through local authority grants, as resources permit.
3
Housing Policy Statement, June 2011, DECLG
Roscommon County Development Plan 2014–2020 Page 124Chapter 5: Housing
5.5 TRAVELLER ACCOMMODATION
ACCOMMODAT
Census figures show that there were 59 Traveller families (301 people) living in County Roscommon in
2011.
The Council’s role is to make sure that everyone has access to good quality, affordable and well located
housing that suits their needs. The Council works closely with the Traveller community, through the Local
Traveller Accommodation Consultative Committee
Committee to identify accommodation requirements of the
Traveller community.
The Council prepares a Traveller Accommodation Programme in co-operation operation with Traveller
representatives. The current Traveller Accommodation Programme for County Roscommon covers the
period 2009-2013. The programme
rogramme assesses the current and future needs
need of the Traveller
Travell community and
indicates the full range
nge of housing options available
availa to them. Under the current programme various types
of accommodation measures have been delivered including allocation of standard social housing and
provision of group housing at Turpan
rpan Beg, Ballyforan.
It is anticipated that a further Traveller Accommodation
Accommodation Programme will be prepared for the period 2014-
2014
2018. This process will entail consultation with the Traveller community to identify the future
accommodation needs of the community.
Policies for Traveller Accommodation
Policy 5.16 Provide for the accommodation needs of Travellers, as far as is reasonable and practicable,
using the full range of housing options available to the Local Authorities and having regard
to the policies of the Traveller Accommodation Programme 2009 – 2013. 2013
Policy 5.17 Consult with Travellers, their representative organisations and local communities in relation
to the siting, planning and design of prospective halting sites or group housing schemes and
promote
romote social inclusion. Halting sites will be subject to
to the detailed design standards as
outlined in the Department of the Environment’s Guidelines for Residential Caravan Parks
for Travellers, October 1997, and normal development management standards.
Policy 5.18 Provide and manage halting sites in a manner compatible with the local environment and
the needs of the travelling community, based on management plans set up in co-operation
co
with Traveller families.
Objective for Traveller Accommodation
Objective 5.6 Provide appropriate accommodation to meet the needs of Travellers,
Travellers including the use of
particular areas for that purpose through the implementation of the Traveller
Accommodation Programme 2009–2013
2009 and any future updates.
Roscommon County Development Plan 2014–2020
2014 Page 125Chapter 5: Housing
5.6 RECENT HOUSING TRENDS AND PRESSURES IN COUNTY ROSCOMMON
The decade leading up to the sharp downturn
downtu in the housing market in 2007 saw unprecedented levels of
housing development both nationally and within County Roscommon, as discussed in Section 5. This
housing development was not evenly distributed spatially throughout
ughout the county but rather in a manner
which reflected the prevailing market demand during this period. Spatial Planning aims and objectives
seeking to direct residential development to designated settlements and promote high quality urban
structure and design were undermined to an extent by development pressure for residential housing housin
estates at the periphery of our towns and villages.
villages This ultimately resulted in:
• Large numbers of new residential housing estates on the periphery or outside several of the
towns and villages of the County.
• Cases of poor urban and village structure, sprawling low density settlements and urban rural
coalescence.
• Large numbers of vacant residential housing estates (particularly in North
orth Roscommon where
uptake of occupancy was typically lower than in South Roscommon).
• High concentrations of rural housing development in the countryside, close to larger centres of
population within and adjacent to the County.
Demand for housing development has declined
dec significantly since the sharp and prolonged downturn in the
housing market which has prevailed since 2007.
2007 Byy 2012 house completions in the county had fallen to t
approximately 10% of peak rates.
es. In addition to the fall off in demand for housing development,
dev residential
housing estate vacancy has become a serious issue in the
county.
5.6.1 Vacant Housing and Unfinished Estates
E
According to the 2011 Census the vacancy rate for the County in
April 2011 was 23.2% of all homes.
homes This is significant when
compared to the average vacancy rate for the whole Country
which was 14.5% in 2011. The Census also shows that there
were more vacant homes in smaller towns and villages,
villages (4,390 residences),, than in larger (census) towns,
(1,880 residences). Recent studies conducted by Roscommon County Council Planning Department have
also shown that residential
esidential vacancy tends to be a bigger problem in towns and villages in the north of the
County than in the south. Whilst there are instances of residential vacancy in the countryside,
co most of the
recently built dwellings in the countryside
ountryside tend to be occupied.. Residential vacancy is more profoundly
manifested in towns and villages where estates and groups of dwellings were typically constructed for a
perceived demand rather than
han an identified occupant.
In total, Census 2011 recorded 5,630 vacant houses, 640 vacant apartments and 1,062 vacant holiday
homes in April 2011. To put this into perspective, if we project that on average 2.5 people4 will live in each
of these homes (excluding holiday homes) then these vacant residences could potentially accommodate
upward of 15,675 people. Given that the expected population growth for the County over the next six years
4
The RPGs indicate an average of 2.5 persons per household for the County.
Roscommon County Development Plan 2014–2020
2014 Page 126Chapter 5: Housing is 6,200 people (see Section 5. above) these vacant homes alone could potentially accommodate every person needing a new home in the County for at least the next 12 years until 2026 without the need to build even a single new home. It cannot be assumed that every vacant house is for sale or even available, or that these residences will even be suitable for habitation for the next 12 years. However, it is important that we use as many of these residences as possible, as an alternative to new additions to the housing stock, which could ultimately result in existing vacant properties deteriorating further. The 2011 National Housing Development Survey shows that there were 96 unfinished housing estates in the County in September 2011 made up of a total of 352 vacant houses and 189 houses nearing completion (see Map 10 below) Not only can unfinished housing estates detract from the attractiveness and vitality of our towns and villages but the lack of essential services such as roads, lighting, footpaths, and piped services as well as rubble and construction waste left on site, can cause serious health and safety risks to both residents and visitors, in particular children. In addition, vacant and unfinished houses can become subject to anti-social behaviour. The priority on unfinished estates is to resolve any health and safety issues and, as with vacant housing in general, to ensure that as many houses as possible are occupied as an alternative to new build which is likely to ultimately result in those already existing and vacant deteriorating further. Roscommon County Council would welcome and encourage the development of initiatives at a national level to help the take up of vacant housing in County Roscommon, particularly in unfinished housing estates. Roscommon County Council recognises that there are serious problems surrounding residential vacancy within some of the designated settlements within Tiers 1-3 (see Table 2.2 Core Strategy) of the settlement hierarchy and proposes to address these through the vehicle of the Local Area Plans and Area Plans which will be adopted during the period of this County Development Plan. Roscommon County Development Plan 2014–2020 Page 127
Chapter 5: Housing Roscommon County Development Plan 2014–2020 Page 128
Chapter 5: Housing
Fig. 5.2 – National Housing Development Survey 2011
Roscommon County Development Plan 2014–2020 Page 129Chapter 5: Housing Roscommon County Development Plan 2014–2020 Page 130
Chapter 5: Housing
Policies for Vacant Housing and Unfinished Estates
Policy 5.19 Support the use of existing building stock by recognising vacancy rates in the Core Strategy,
and in the preparation of the Area Plans associated with the CDP as well as in our Local Area
Plans.
Policy 5.20 Strive to ensure that housing developments and associated services and facilities are
completed to a standard that is in accordance with the terms of the relevant planning
permission.
Policy 5.21 Adopt a flexible and supportive approach towards the alternative use of vacant residential
units and buildings within town and village centres, in particular for community, educational,
health, tourism, commercial, retail, enterprise and cultural uses, subject to appropriate scale,
design and compatibility with existing and proposed surrounding uses.
Policy 5.22 Encourage property owners / developers to improve the appearance of vacant / derelict /
buildings, in particular in housing estates. The following measures should be considered:
Simple maintenance (painting, cleaning, removal of vegetation, removal of defunct
inappropriate signage, securing property to protect from vandalism, installation of
temporary window displays).
Screening or boundary treatment.
Policy 5.23 Request applicants to provide phasing plans in particular developments, which will ensure
that the preceding phases are substantially completed* before the commencement of
subsequent phases. This would apply to all new residential developments over 10 dwellings.
* Substantially completed includes the completion of all public infrastructure and services.
Policy 5.24 Support the development of national initiatives to help the take up of vacant housing in the
County.
Objectives for Vacant Housing and Unfinished Estates
Establish baseline data on the number of vacant residential units in each settlement in the
Objective 5.7
CDP area and continue monitoring vacancy throughout the period of this Development Plan.
5.6.2 Reversing Negative Trends and Pressures
Roscommon County Council has taken the first step with regard to over-zoning of lands by reducing the
amount of land zoned for residential development in our most recently adopted local area plans and the
phasing of residential lands. This plan proposes the introduction of a ‘Residential Reserve’ of lands in
addition to the ‘New Residential’ land use zoning objective (See Section 5.8.2), to replace the system of
phasing the release of residential land used in the years immediately preceding this Plan period.
A key force for change in the reversal of these negative trends and pressures will be the appropriate
location of new residential development in a planned manner over the period of this County Development
Plan.
5.7 THE APPROPRIATE LOCATION OF NEW RESIDENTIAL DEVELOPMENT
As highlighted previously the Council must ensure that provision is made for population growth of
approximately 6,200 persons over the period of this County Development Plan. The means by which the
Council make provision for this population growth has a significant bearing on how our towns, villages and
countryside develop over the period of this plan. It has consequences for the urban and rural environment,
and the economy and social fabric of the County. The Council has been mindful of County Roscommon’s
place within the broader settlement framework of the Country and West Region, as well as the recent
trends and pressures discussed above, in determining the most appropriate means of making provision for
this population allocation.
Roscommon County Development Plan 2014–2020 Page 131Chapter 5: Housing
Housing in County Roscommon’s Designated Settlements (Tiers 1-3)
Residential development located at greater and greater distances from where people work, go to school
and shop leads to longer commuting distances and increased car travel which is not economically, socially
or environmentally sustainable in the long-term. For this reason, the Council seeks to direct the majority of
new residential development into the towns and villages that have adequate services to provide for them.
In the larger towns of the County, land will be specifically zoned for residential development and urban
generated housing demand will be met in these towns and in smaller villages. The Councils approach to
residential development in our towns and villages is set out in Sections 5.8 below, and in detail in the Local
Area Plans and Area Plans which are being prepared and adopted by Roscommon County Council for each
of these settlements.
Rural Housing in County Roscommon (Tier 4)
Housing Development will be considered in accordance with the Councils rural housing policy as set out in
Sections 5.9 to 5.17 below. It is the Councils intention to resist pressure for non essential housing
development on the periphery and rural hinterlands of the Counties larger towns which have been
observed to have experienced the most pressure for such development in recent years. This policy will have
the added benefit of improving the urban fabric of these settlements as well as maximising business
potential and retailing (higher footfall in town centre), the efficiency of public infrastructure, and reducing
traffic volumes on the approach roads. The Council will, adopt a positive attitude to individual rural housing
development in areas recognised as structurally weak, under no significant urban influence and subject to
low development pressure.
5.8 HOUSING IN DESIGNATED SETTLEMENTS (TIER 1-3 SETTLEMENT HIERACHY)
The Core Strategy (see Chapter 2) uses the Regional Planning Guidelines population targets to calculate the
amount of land that the Council must make provision for i.e. (needs to be zoned) for residential
development in the County in order to provide for the expected population increase over the lifetime of
this plan. It includes a Settlement Hierarchy which orders each of the County’s towns into ‘Tiers’ based on
the size of the existing town and how many more people it can comfortably accommodate. The Core
Strategy allocates population and identifies how much residential zoned land is to be provided in each of
the towns based on the Settlement Hierarchy.
Tiers 1 and 2 of the Settlement Hierarchy include the settlements of Roscommon Town,
Monksland/Belanamullia, Boyle, Castlerea and Ballaghaderreen. These are seen as the key population
growth centres of the County. It is envisaged therefore that these centres will be the primary locations for
new residential development during the period of this County Development Plan. Local Area Plans and Area
Plans have been prepared for all of these settlements wherein population growth projections have been
formulated and residential land zoned and phased to accommodate this population growth in a planned
manner (see Core Strategy and Relevant Local Area Plans/Area Plans).
Tier 3 settlements are also earmarked for population growth in a planned manner and Local Area Plans and
Area plans have also been prepared for these settlements together with population calculations, residential
land zoning and phasing (see Core Strategy and Relevant Local Area Plans/Area Plans).
Table 5.1 shows the Core Strategy Allocations for the County’s larger towns. The residential land
requirements indicated here will be provided for in the Area Plans associated with this County
Development Plan as well as in Local Area Plans. Exact figures for new homes needed in each town are also
provided, however there is flexibility to change these numbers if circumstances change in the future. In this
regard, the Council will monitor new housing development in the County on an ongoing basis over the next
six years.
Roscommon County Development Plan 2014–2020 Page 132Chapter 5: Housing
TABLE 5.1 CORE STRATEGY ALLOCATIONS
Settlement Hierarchy Population No. of Houses Density Residential Land
5 6 7 8
Tier Town Allocation required per Ha required
County Roscommon 6,200 2,480 -
1 9
Roscommon Town 845 338 20 25.4 Ha
Boyle 367 147 20 11Ha
2 Castlerea 300 120 20 9 Ha
Ballaghaderreen 271 108 20 8.1 Ha
2 SC Monksland / Bellanamullia* 538 215 20 16.1 Ha
Cortober** 48 24 15 2.4 Ha
Strokestown 109 44 15 4.4 Ha
3
Elphin 85 34 15 3.4 Ha
Hodson Bay 37 15 15 1.5 Ha
Rural Settlements & the
4 3,600 1,435 -
Countryside
* Monksland/Bellanamullia, as a Special Category within Tier 2, will develop in the context of the larger settlement of Athlone
which is part of the Midlands Linked Gateway. The population allocation of 845 does not include 50% overzoning or
residential reserve, which will facilitate significantly higher population growth should the requirement for such development
arise over the Plan period.
** Cortober within Tier 3, will develop in the context of the larger settlement of Carrick-on-Shannon.
5.8.1 Residential Density
In order to calculate the amount of residential land which the Council must make provision for (zone for
residential use). Having looked at average densities in the larger of the County’s towns and given the rural
nature of County Roscommon, a density of 20 houses per hectare is considered suitable for all Tier 1 and 2
towns, and an average of 15 houses per hectare for Tier 3 settlements due to observed development
trends in these settlements. However, as government policy promotes higher densities in larger towns,
higher densities may be considered in these towns where the criteria set out in the Sustainable Residential
Development in Urban Areas, 2009, and its companion Urban Design Manual, are met.
Whilst a density of 15 houses per hectare is considered suitable for the other Tier 4 towns, lower densities
may also be acceptable given the more rural nature of these settlements and the importance of providing
opportunities for lower density development in these areas as a viable alternative to one-off housing in the
countryside.
5.8.2 The Release of Urban Residential land and the Residential Reserve:
In addition to lands zoned for ‘new residential’, Area Plans associated with this CDP also include a
‘Residential Reserve’ land use. The selection process for lands to be included in the housing reserve will be
broadly based on the sequential approach to site assembly. Under this approach it is an abiding principle
that those areas closest to the established residential areas, for example lands closest to the town core,
which have ready access to public services and facilities and would consolidate development in the area,
should be preferable for inclusion within this Residential Reserve over lands which are more remote from
the town centre.
5 st
Population allocation is based on current population figures as per the An Post Geodirectory 31 2013, and excluding vacant
residential units.
6
The RPGs indicate an average of 2.5 persons per household for the County. All settlements use this except Cortober which uses 2.
7
‘Density per Ha’ is an average density used for the purposes of Core Strategy population projections and residential land required.
It is not intended to be used for development management purposes.
8
This figure includes 50% overzoning, in accordance with the DEHLG’s Development Plans: Guidelines for Planning Authorities,
2007, to allow for an element of choice.
9
The RPGs suggest a minimum population allocation of 652 people for Roscommon Town.
Roscommon County Development Plan 2014–2020 Page 133Chapter 5: Housing
Lands
nds included within the ‘Residential Reserve’ land use zoning objective will be suitable for housing
development during the period of the relevant land use plan when:
(a) All lands zoned ‘New Residential’
Residentia have been developed; or
(b) All lands zoned ‘New Residential’ have been subject to the grant of planning permission (extant
planning permission),, and there is demonstrable demand,
demand, supported by factual evidence, for
further new residential development,
development within the Plan area.
5.9 RURAL HOUSING IN VILLAGES AND THE COUNTRYSIDE (TIER
IER 4)
4
Tier 4 of the settlement hierarchy, as set out in Section 2 (Core Strategy) of this plan, has been allocated
almost 60% of new population growth allocation
al for the county or 3,600 people over the period of this
County Development Plan. Tier 4 includes all villages and settlements not included in tiers 1-3 1 of the
settlement hierarchy and the countryside.
The Council does not envisage that this population
populati allocation amounting to 1,439 new households, would
be distributed in a random or market led manner, but rather in a positive and planned
anned manner which can
best facilitate the optimum socio-economic
economic development the County’s villages and the countryside
c without
undermining the rural environment or further eroding village structures therein.
Rural Roscommon (Tier 4) consists of:
of
1. Serviced (typically larger) villages (e.g. Frenchpark, Ballinlough, Cloonfad,
Knockcroghery, Athleague, Roosky, Ballintober, Ballyforan, Loughglynn, Tulsk),
2. Unserviced (typically smaller) villages/village nuclei (e.g.
.g. Castlecoote, Castleplunket,
Castleplunket
Brideswell),
3. The countryside (facilitating “one off” housing as appropriate).
The
he Councils attitude to housing development in these settlement and area types is set out in Sections 5.10
to 5.13.
Roscommon County Development Plan 2014–2020
2014 Page 134Chapter 5: Housing
5.10 TIER 4 VILLAGES
This category of settlement within ithin Tier 4 of the settlement hierarchy
hierarchy has been subject to a
disproportionately large volume of new housing development within the County over the past decade.
These settlements are typically not zoned
zone for development but are in some cases serviced by public sewage
infrastructure (see section 4.3 of this Plan).
Plan) The recent settlement history of thee County’s larger villages and
small towns has varied
ied significantly. However
However some strong trends have been observed, such as the strong
pressure for housing development within, and particularly on the periphery of larger villages in the north of
the County such as Tulsk, Cloonfad,
loonfad, Frenchpark, Ballinlough,
Ball and Loughglynn. Most,, though not all, of these
serviced villages have been subject to significant levels of housing development over the past decade. This
type of housing development has typically been located on the periphery of these settlements.
The perpetuation of this edge/out of town and village development could diminish the character and
setting of these villages particularly through the development of disproportionately large residential
housing estates on the periphery of these settlements, with little functional relationship with the original
settlement’s development pattern.
Given the limited population growth predicted for the County over the coming
ming years and the high level of
vacancy in our serviced smaller towns and villages, such as Tulsk, Ballinlough and Cloonfad, it is unlikely
that there will be a need for new residential housing schemes in several villages within Tier 4, over the life
of this Plan.
5.10.1 Moratorium on Multi-Unit
Unit Housing Schemes
The Council considers that residential development in the villages experiencing high levels of vacancy
vaca
should typically be limited to one to three houses/residential units or refurbishment or rebuilding of
existing houses so as not to exacerbate vacancy levels in these settlements. This suspension or moratorium
on residential housing schemes will not affect the reuse, replacement or sub-division
sub division of existing dwellings
and structures
ructures in these towns and villages and will not affect infill or above-the-shop
above residential
development. The demolition and rebuilding of sub-standard
sub standard housing is also permitted, in particular where
a more sustainable, energy efficient and greener design is proposed, subject to normal planning
requirements.
This moratorium will mean that multi-unit
multi unit residential housing schemes of 3 or more units will not normally
be permitted in the settlements showing high vacancy
vaca levels outlined in Table 5.2 below. The moratorium
will be revisited in 2016 during the mid-term
mid term review of this Plan. In the meantime the Council will continue
to monitor vacancy in these settlements as well as throughout the County in general.
Roscommon County Development Plan 2014–2020
2014 Page 135Chapter 5: Housing
TABLE 5.2 SETTLEMENTS SUBJECT TO MORATORIUM ON MULTIPLE HOUSING DEVELOPMENT
No. of Vacant Houses % Vacancy
Settlement Boundary Used
(Census 2011) (Census 2011)
Scramoge 35 56% Settlement boundary
Lisacul 24 49% Settlement boundary
Tulsk 72 48% Census boundary
Cootehall 75 44% Plan boundary
Croghan 16 27% Settlement boundary
Cloonfad 39 22% Census boundary
Roosky 51 21% Census boundary (part)
Frenchpark 65 21% Census boundary
Loughglynn 29 20% Census boundary
Ballinlough 45 18% Census boundary
Ballinameen 19 17% Census boundary
TOTAL 470
The Council would welcome and encourage the development of national initiatives to help the take up of
vacant housing in County Roscommon, particularly in unfinished housing estates. The development of such
national initiatives would be particularly important for the take up of vacant housing in the towns and
villages outlined in Table 5.2 above.
5.10.2 Other Serviced Villages within Tier 4 of the Settlement Hierarchy
As indicated above, the spatial distribution of housing development over the past decade has been uneven
and some serviced villages within Tier 4 of the Settlement Hierarchy, with comparatively low levels of
vacancy, are strategically placed or have additional capacity for population and residential growth over the
period of this County Development Plan. The Council has invested in the provision of infrastructure and
services in these settlements and it is considered appropriate that the use of these should be optimised.
There are several serviced villages within Tier 4 of the Settlement Hierarchy which are not subject to the
provisions of Section 5.10.1 above and therefore have capacity for population growth. The Council
considers that this growth should be commensurate with the position of these settlements within Tier 4 of
the Settlement Hierarchy and small in scale. The Council will therefore not normally favour residential
developments in groups exceeding 8-10 units or what the Planning Authority has identified to be (see
mapped village Cores in Appendix ) outside the traditional core of the village. The Council shall require that
any such development should also contribute in a meaningful way to the built environment of the village
core.
5.10.3 Unserviced Rural Villages and Village Nuclei
As well as the larger zoned towns (Tiers 1-3), and larger villages within Tier 4 of the settlement hierarchy,
the County’s smaller villages including crossroad type villages, village nuclei, and smaller settlements, have
the potential to relieve development pressure for rural housing in the countryside whether rural or urban
generated. These centres, though not serviced by public sewage infrastructure, have the ability to
accommodate limited and small scale (typically individual) rural housing needs while ensuring that rural
social and community infrastructure and services such as schools, shops, public houses, post offices and
local sports organisations are maintained.
However, in permitting new residential development in these areas we must ensure that the unique
character of our smaller towns and villages is not altered by poorly chosen, out-of-place development. For
this reason, the Council will not accept housing proposals that amount to ribbon development and urban
sprawl, or that have not developed around a nucleus or crossroad with enough lower level social and
community services to serve the new development and the people who will be living there. It is not
Roscommon County Development Plan 2014–2020 Page 136Chapter 5: Housing
sustainable to provide large numbers of houses in rural areas without access to basic services. These areas
are not meant to become urban centres, they will be allowed to develop according to their place in the
Settlement Hierarchy (see Chapter 2 for details). The Council is committed to making sure that the variety
of these settlements located across the County will offer attractive and affordable housing options,
typically on an individual case by case basis, to meet the needs of established rural communities and those
wishing to settle in rural areas.
Policies for Tier 4 Rural Villages and Village Nuclei
Policy 5.25 Housing in all rural villages should avoid urban sprawl and suburban type development. The
setting of many of the settlements is rich and varied and when considering design solutions
regard should be had to local materials and local styles. The unique character, vernacular
style and special setting of many of the settlements mean that their capacity to absorb
large-scale developments is limited. The developer must have regard to the characteristics
of the local setting and aim to create a sense of place and identity in any proposed
development. All new development shall be of appropriate scale and enhance the local
setting and create attractive places to be, live, work and for leisure.
Policy 5.26 All development shall maintain a strong settlement boundary that protects the identity of
all towns and villages. (See Mapped Village Cores Tier 4 Settlements).
Policy 5.27 Multi-unit residential housing schemes of 3 or more units will not normally be permitted in
the settlements set out in Table 5.2 of the County Development Plan (Settlements Subject
to Moratorium on Multiple Housing Development). This suspension or moratorium on
residential housing schemes will not affect the reuse, replacement or sub-division of
existing dwellings and structures in these towns and villages and will not affect infill or
above-the-shop residential development within what the Planning Authority has identified
to be the core of the village (See Mapped Village Cores Tier 4 Settlements). The demolition
and rebuilding of sub-standard housing is also permitted, in particular where a more
sustainable, energy efficient and greener design is proposed, subject to normal planning
requirements.
Policy 5.28 Residential Development within Serviced Tier 4 Villages, (excluding those governed by Policy
5.27 above) shall be commensurate to the position of these settlements within Tier 4 of the
Settlement Hierarchy and small in scale. The Council will not normally favour residential
developments in groups exceeding 8-10 units or furthermore outside what the Planning
Authority has identified to be ‘opportunity sites’ within the ‘village/settlement core’ (See
Mapped Village Cores Tier 4 Settlements), or otherwise determines to be, outside the
traditional core of the village. The Council shall require that any such development should
assimilate into the village core environment and contribute positively to the built
environment of the village core.
Objective for Tier 4 Rural Villages and Clusters Village Nuclei
Prepare Village Design Statements or Mini-plans from 2015 onwards, based on the new
Objective 5.8
democratic structure i.e. municipal districts that will be in place, as resources permit.
5.11 HOUSING IN THE COUNTRYSIDE
Roscommon is a rural county with a long tradition of people working and living in rural areas, particularly
those working in agriculture and farming. Although many people living rurally work in nearby towns, others
work a considerable distance away and a lot of time and money is spent commuting to work, dropping
children to school, crèche, sports etc. Consideration must also be given to how this movement of people
into the countryside affects our town and villages as well as the landscape of our countryside and the
environment.
Roscommon County Development Plan 2014–2020 Page 137Chapter 5: Housing
The predominant form of housing development in County Roscommon for the decade leading up to the
preparation of this plan was as on a ‘one off’ basis in the countryside.
c It has however
ever been illustrated in
Chapter 3 of this plan the proportion of our rural population engaged in agriculture is set to fall further
during the period of this County Development Plan. It is anticipated that in the period of this plan no more
than 20% of all new housing development required in the County will be in the form of individual housing
development directly associated with agricultural activity. Residential development not no associated with
agricultural or other rural based activity is normally categorised as being ‘urban
urban generated’.
generated
Urban Generated rural housing has the long term effect of drawing diverting population growth away from
towns and villages so that many smaller towns and villages do not evolve and develop as vibrant centres of
population.. The economic downturn has magnified this effect in many of our towns and villages which have
not benefited from the economic growth experienced in larger settlements during
during the sustained economic
growth period from the late 1990’s to 2007. The rural landscape, which is the County’s most vital tourism
asset, has been altered by the amount of one-off housing that has occurred to date. date Some of this
development was clearly necessary
cessary to meet essential housing requirements of local communities, whilst
more was urban generated, and was not necessary to sustain local communities or the continuity of local
business.
Urban generated
ted housing offers few benefits to local communities when introduced though it has been
argued that such development can incrementally increase the population base of structurally weak
peripheral locations such as parts of rural north Roscommon.
Rural Housing can be a positive input to rural communities, particularly where it facilitates the continuity of
agricultural and other natural resource based activity in the countryside.
c ryside. Patterns of development
de which
have significantly less benefit in such settings include ribbon development, urban sprawl and generally high
concentrations of non essential development in the rural hinterlands of our larger settlement and
employment centres (See Figure 5.2 2)
The Government has prepared documents such as the National Spatial Strategy 2002-2020
2002 and Sustainable
Rural Housing – Guidelines for Planning Authorities 2005 in recognition of the sustained pressure for rural
housing which has prevailed
revailed over the past two decades. While this
this pressure has eased since 2007,
2007 it has led
to some patterns of development which are commonly regarded as undesirable in the rural situation.
Commonly recognised examples of FIGURE 5.3 SNAPSHOT SHOWING EXTENT OF SINGLE RURAL HOUSES
such patterns of development are AROUND ROSCOMMON TOWN
ribbon development and urban
sprawl. Ribbon development is a high
density of almost continuous road
frontage type development and is
undesirable because it can create too
many accesses onto existing traffic
routes affecting traffic safety, it can
create servicing
rvicing problems e.g. water
supply, drainage,, footpaths and street
lighting, and it can intrude on public
views and our enjoyment of the
countryside.
Urban sprawl is development which
has spread outwards from towns and
villages along its approach roads whether
wh in ribbon form or not. This creates the same problems
prob as ribbon
development, but often has a far greater visual impact. In the main, ribbon development and urban sprawl
will be discouraged.
Roscommon County Development Plan 2014–2020
2014 Page 138Chapter 5: Housing 5.11.1 Rural Housing Strategy It is the aim of the rural housing strategy to facilitate those with close economic, and/or familial links to the countryside in residing in those rural areas where they were raised and work. It is our aim to direct new rural housing to the towns and villages in the County in order to ensure the vitality and viability of these settlements into the future, to safeguard from inappropriate development areas with particular environmental sensitivity or subject to urban influence; and to promote sustainable communities and better places for everyone to live. This strategy seeks to: Ensure good practice in terms of site location, design, access and traffic management, servicing and drainage, flood risk water quality, as well as landscape, environmental, and natural and built heritage sensitivities. This is primarily guided by Chapter 9 of this Plan - Development Management Guidelines and Standards, though the policies set out in Chapters 5 and 9 are interrelated with others within the plan and should not be viewed in isolation. Guide residential development to the most appropriate locations (in accordance with relevant Regional and National Guidance) in rural areas in the interests of protecting the urban and rural environment as well as key assets such as Landscape, water quality and natural and cultural heritage. The appropriate location of such individual housing development in the countryside of County Roscommon is the primary focus of Section 5.11, 5.12 & 5.13 of this Plan. This approach aims to first guide prospective developers in terms of the Councils attitude to the location of individual rural housing development and second, once an appropriate location has been determined, guide developers in terms of good practice in the planning and construction of the dwelling. 5.11.2 Ensuring Good Practice Prospective developers considering individual housing development in the Countryside should refer to the Development Management Guidelines and Standards (Chapter 9) of this Plan which provide further details in terms of the good practice required in the siting and design of a new house in the countryside. As a general principle, however, the Council will seek to control patterns of development such as urban sprawl and ribbon development discussed in Section 5.11 above. Such controls will also normally apply to development in environmentally sensitive areas for example important natural heritage areas, areas of particular groundwater sensitivity, etc. New development should relate closely to existing groups of buildings, particularly traditional farm complexes, and should not extend strip-like along public roads. It is also very important that new houses are visually discreet and that they blend and integrate successfully into the surrounding rural landscape. Applications for single houses will be assessed with reference to their capacity to be absorbed into the landscape without creating an undue visual impact or giving rise to significant traffic or environmental impacts. Visual impact will be assessed in reference with the landscape designations set out in the Landscape Character Assessment (LCA) and Chapter 7 Natural Heritage of this Plan. Further guidance on location, siting and design of rural housing is detailed in Chapter 9 Development Management Guidelines and Standards. Roscommon County Development Plan 2014–2020 Page 139
Chapter 5: Housing
5.11.3 Guiding the Appropriate Location of Housing Development in the Countryside
ded as a positive input in the countryside
Rural Housing is regarded countryside by Roscommon County Council where it
facilitates the continuity of rural communities, agricultural and other natural resource based activity in the
countryside,
ountryside, and where it is located and constructed in accordance with the Good Practice Guidelines set
out in Chapter 9 of this Plan.
In setting out the Councils attitude to the location of individual
individual housing development in the countryside
two determinants must be established:
1. Identify rural areas which are sensitive to, and have low assimilative capacity for individual housing
h
development.
2. Establish
stablish suitability criteria for prospective developers considering locating a dwelling in each of
these areas.
The above have been considered in the context of evidence based assessments of population change,
observed planning trends and pressures and the place of these areas within the Regional and National
spatial planning framework.
Step 1: Identifying
Identify Rural Area Types
The National Spatial Strategy 2002-2020
2002 and the Guideliness on Sustainable Rural Housing 2005 (SRHG),
provide guidance for local authorities on rural housing by identifying distinct types of rural areas
area and by
distinguishing between ‘rural-generated’
generated’ housing and ‘urban-generated’
generated’ housing and indicating in what
areas and under what circumstances they should or should not be allowed. County Roscommon can be
divided into three rural area types based on recent population change. Map 6 gives a general outline of
these areas based on Census 2011 population figures.
Rural Areas under Strong Urban Influence
These are rural areas within commuting distance of larger towns where urban generated housing in the
open countryside is increasing and population growth has been significant in recent years. As shown in Map
6, these include the rural areas surrounding Monksland/Bellanamullia, Roscommon Town, Athleague,
Lanesborough,
esborough, Termonbarry and Roosky as well as the rural areas around Boyle and Carrick-on-Shannon.
Carrick
Stronger Rural Areas
These are rural areas that have a stronger agricultural base and/or more developed village and small town
structure with a generally stable population. As shown in Map 6, these include rural areas to the west of
Roscommon Town and to the north and south of Monksland/Bellanamullia as well as those rural areas
surrounding Castlerea, Ballaghaderreen, Strokestown, Elphin, Keadue, Ballymoe and Lough Key.
Key
Structurally Weak Rural Areas
These are rural areas more distant from the main settlement centres with a generally weaker agricultural
base and/or
or weaker town and village structure with resulting population decline. As shown in Map 6,
6 these
areas include rural areas west of Monksland/Bellanamullia and south of Boyle as well as those surrounding
Frenchpark, Ballinlough,
h, Castleplunket, Lecarrow and Creagh.
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