Chapter 4: Sustainable Housing

Table 4-1 Summary of Social (and Affordable) Housing Requirements 2021-2027

	2021	2022	2023	2024	2025	2026	2027	Total
Additional Anticipated Households	268	1,071	1,071	1,071	1,071	1,071	838	6,427
Social (and Affordable) Housing Requirements	4	26	37	61	76	91	81	376
% (as a Total of Additional Anticipated Households)	1.4%	2.4%	3.5%	5.7%	7.1%	8.5%	10.0%	5.8%

Table 4-2 Overview of Mortgage Qualification and Private Rental Affordability for Additional Anticipated Households in County Wexford⁵

	2021	2022	2023	2024	2025	2026	2027	Total
Anticipated Households that Do Not Qualify for a Mortgage to Purchase the Cheapest Property	83	331	331	442	442	442	332	2,403
Anticipated Households Not Able to Afford Private Rental (based on RTB Demand allocation by Unit Type)	70	337	337	337	382	382	306	2,149

Table 4-3 Forecasts for Household Size of the Additional Anticipated Households in County Wexford 2021-2027⁶

	2021	2022	2023	2024	2025	2026	2027	Total
1 person household	25	102	103	105	106	108	82	630
2 person household	60	242	244	246	249	251	170	1,481
3 person household	52	208	209	210	211	212	159	1,260
4 person household	67	271	272	274	275	276	208	1,643
5+ person household	64	249	243	237	231	225	164	1,143

Table 4-4 Forecasts for Dwelling Type of Additional Anticipated Households in County Wexford 2021-2027⁷

	2021	2022	2023	2024	2025	2026	2027	Total
1 Bed	24	97	97	97	97	97	73	583
2 Bed	97	387	387	387	387	387	291	2,325
3 Bed	108	433	433	433	433	433	324	2,596
4+ Bed	38	154	154	154	154	154	115	924
Total	264	1,071	1,071	1,071	1,071	1,071	803	6,427

Table 4-5 Indicative Density and Scale 

Density in Level 1 Key Towns and Level 2 Large Towns (Settlements above 5,000 population)

Cities and Town Centres

In order to maximise inner city and town centre population growth, there should, in principle, be no upper limit on the number of dwellings that may be provided within any town or city centre site, subject to the following safeguards: compliance with the policies and standards of public and private open space adopted by development plans or local area plans, avoidance of undue adverse impact on the amenities of existing or future adjoining neighbours, good internal space standards of development, conformity with any vision of the urban form of the town or city as expressed in development plans, particularly in relation to height or massing, recognition of the desirability of preserving protected buildings and their settings and of preserving or enhancing the character or appearance of an Architectural Conservation Area; and compliance with plot ratio and site coverage standards adopted in development plans or local area plans. Brownfield Sites Where such significant sites exist and, in particular, are close to existing or future public transport corridors, the opportunity for their re-development to higher densities, subject to the safeguards expressed above or in accordance with local area plans, should be promoted, as should the potential for car-free developments at these locations. Public Transport Corridors Walking distances from public transport nodes (e.g. stations / halts / bus stops) should be used in defining such corridors. It is recommended that increased densities should be promoted within 500 metres walking distance of a bus stop, or within 1km of a light rail stop or a rail station. The capacity of public transport (e.g. the number of train services during peak hours) should also be taken into consideration in considering appropriate densities. In general, minimum net densities of 50 dwellings per hectare, subject to appropriate design and amenity standards, should be applied within public transport corridors, with the highest densities being located at rail stations/bus stops, and decreasing with distance away from such nodes. Inner suburban/Infill Potential sites may range from small gap infill, unused or derelict land and backland areas, up to larger residual sites or sites assembled from a multiplicity of ownerships. In residential areas whose character is established by their density or architectural form, a balance has to be struck between the reasonable protection of the amenities and privacy of adjoining dwellings, the protection of established character and the need to provide residential infill. The local area plan should set out the planning authority’s views with regard to the range of densities acceptable within the area. Sub-division of dwellings Many inner suburbs contain large houses on relatively extensive sites whose conversion to multiple dwellings without a dramatic alteration in the public character of the area is achievable. In such areas, particularly those of falling population but which are well served by public transport, their conversion to multiple occupancy should be promoted subject to safeguards regarding internal space standards, private open space and maintenance of the character of the area.   Institutional Lands A considerable amount of developable land in suburban locations is in institutional use and/or ownership. Such lands are often characterised by large buildings set in substantial open lands which in some cases may offer a necessary recreational or amenity open space opportunity required by the wider community. In the event that planning authorities permit the development of such lands for residential purposes, it should then be an objective to retain some of the open character of the lands, but this should be assessed in the context of the quality and provision of existing or proposed open space in the area generally. In the development of such lands, average net densities at least in the range of 35-50 dwellings per hectare should prevail and the objective of retaining the open character of the lands achieved by concentrating increased densities in selected parts (say up to 70 dph). Outer Suburban/Greenfield sites These may be defined as open lands on the periphery of cities or larger towns whose development will require the provision of new infrastructure, roads, sewers and ancillary social and commercial facilities, schools, shops, employment and community facilities Studies have indicated that whilst the land take of the ancillary facilities remains relatively constant, the greatest efficiency in land usage on such lands will be achieved by providing net residential densities in the general range of 35-50 dwellings per hectare and such densities (involving a variety of housing types where possible) should be encouraged generally. Development at net densities less than 30 dwellings per hectare should generally be discouraged in the interests of land efficiency, particularly on sites in excess of 0.5 hectares. Provision for Lower Densities in limited cases To facilitate a choice of housing types within areas, limited provision may be made for lower density schemes of a minimum of 20 units per hectare provided that, within a neighbourhood or district as a whole, average densities achieve any minimum standards recommended above.

Density in Small Towns and Villages – Settlements between 400 and 5,000 in population

Centrally Located Sites Within a given smaller town or village, there can be marked variations in development context which affect the density of development and external space standards needed to take account of those contexts. Because of the variety of contexts and the probability of mixed use developments, it is difficult to be prescriptive about the level of density recommended. However, within centrally located sites small infill sites, densities of 30-40+ dwellings per hectare for mainly residential schemes may be appropriate or for more mixed-use schemes.  Development of larger greenfield sites, which are not zoned under a local area plan or settlement plan, will be subject to overall densities of 20-35 dwellings per hectare but will be required to provide a minimum of 30% for community or open space uses. Applications for residential developments of a maximum of 15 dwellings on a defined site will be required and further development will be considered once the first scheme has been satisfactorily completed. Edge of Centre Sites The emphasis will be on achieving successful transition from central areas to areas at the edge of the smaller town or village concerned. Development of such sites tend to be predominantly residential in character and given the transitional nature of such sites, densities to a range of 20-35 dwellings per hectare will be appropriate including a wide variety of housing types from detached dwellings to terraced and apartment style accommodation. On un-zoned lands applications for residential developments of a maximum of 15 dwellings on a defined site will be required and further development will be considered once the first scheme has been satisfactorily completed. Edge of Small Town/Village In order to offer an effective alternative to the provision of single houses in surrounding unserviced rural areas, it is appropriate in controlled circumstances to consider proposals for developments with densities of less than 15 - 20 dwellings per hectare along or inside the edge of smaller towns and villages, as long as such lower density development does not represent more than about 20% of the total new planned housing stock of the small town or village in question. This is to ensure that planned new development in small towns and villages offer a range of housing types, avoiding the trend towards predominantly low density commuter-driven developments around many small towns and villages within the commuter belts of the principal cities and other similar locations. Such lower density development also needs to ensure the definition of a strong urban edge that defines a clear distinction between urban and the open countryside. On un-zoned lands applications for residential developments of a maximum of 15 dwellings on a defined site will be required and further development will be considered once the first scheme has been satisfactorily completed.

Scale of Residential Development in Level 1 and Level 2 Settlements

The scale of residential development in these settlements will be set out in the respective Local Area Plan.

Scale of Residential Development in Level 3(a) and 3(b) Settlements

The scale of residential development in Level 3 (a) Settlements will be set out in the respective Settlement Plan/Local Area Plan.  Regarding Level 3 (b) settlements, the appropriate scale/number of units in each residential scheme will be determined based on the scale and characteristics of the individual settlement. In line with the Core Strategy and with the exception of Rosslare Harbour and Kilrane, the population of the other Level 3(a) and 3(b) settlements is not to grow by more than 30% by 2040. Accordingly, the combined permitted residential development should not increase the population of a settlement by more than 20% of its 2016 population during the lifetime of this Plan.

Scale of Residential Development in Level 4 Large Villages

In general, in villages with a population of <400 people, the scheme size should be no more than 10-12 units, and in villages with a population of >400 people, the scheme size should be between 10 – 15 units. In line with the Core Strategy, the population of each Level 4 settlement is not to grow by more than 30% by 2040. Accordingly, the combined permitted residential development should not increase the population of a settlement by more than 20% of its 2016 population over the period of this Plan.

 

Levels 5-6 Settlements 

The appropriate scale of residential development in these settlements will be considered in accordance with the guiding principles below and on a case-by-case basis having regard to the character, function and size of that settlement.

Level 5 Settlements

Category 1 Villages: In general, the guiding principle is the combined permitted residential development should not increase the settlement’s population in 2016 by more than 20% over the period of this Plan.   Each residential scheme should be no more than 10-12 units.

Category 2 Villages: In general, the guiding principle is the combined permitted residential development should not increase the population of a settlement by more than 25 people/10 houses during the lifetime of this Plan in order to protect the character of the settlements. The size of each residential scheme will be considered on a case-by-case basis having regard to the scale and characteristics of the settlement.

In deciding on the appropriate scale and density of development in the Level 5 settlements, the development will be considered having regard to the Sustainable Residential Guidelines and will depend on number of factors including the: 

• The population of the settlement and the scale of the proposal relevant to the existing population. 
• Contribution to the enhancement of the village form by reinforcing the street pattern or assisting in the redevelopment of back land sites. 
• Contribution to the protection of the architectural and environmental qualities of the village. 
• The availability of infrastructure including appropriate waste water treatment facilities, water supply and education facilities.

Level 6 Rural Nodes

In general, the guiding principle is that development must be commensurate to the scale of the node and no more than 5 houses will be permitted in a smaller rural node and no more than 5-8 houses will be permitted in a larger rural node during the period of this Plan.  The houses should preferably be located on individual sites and respect the form and structure of the village with care taken to avoid any ribbon development. An exception to this may be considered where it is demonstrated that an additional dwelling(s) can be accommodated without detracting from the rural character of the node. A permanent residence condition shall be attached to planning permissions.

4.7.2.2 Ready-to-go land

The availability of a good supply of ready-to-go development land is an important component in the housing supply chain as it helps to deliver housing units. The purpose of zoning land for residential development is to secure the production of that housing, and the quantum of required residential zoned land in the county is set by the Core Strategy. With the building of more houses a key pillar of ‘Rebuilding Ireland’, it is important that all residential zoned land can be developed, rather than some of the Core Strategy quantum being ‘tied to’ lands that will not be developed for reasons including land ownership or infrastructural constraints. The Council will apply the following NPF approaches to ensure that (a) sufficient land is zoned for residential development, (b) this land is available, serviced and ready-to-go, and (c) the building of more houses is secured.

Tiered Approach to Zoning Land

The NPF outlines that effective implementation will require substantially better linkages between the zoning of land and the availability of infrastructure. NPO 72a requires planning authorities to apply a standardised, tiered approach to differentiate between (i) zoned land that is serviced and (ii) zoned land that is serviceable within the lifetime of the plan:

Appendix 3 of the NPF sets out the methodology for this tiered approach to land zoning:

• Tier I: Serviced Zoned Land

This zoning comprises lands that are able to connect to existing development services, for which there is service capacity available and can therefore accommodate new development. These lands will generally be positioned within the existing built-up footprint of the settlement or contiguous to existing developed lands. Inclusion in Tier 1 will require the lands to be within the footprint of or spatially sequential within the settlement. 

• Tier 2: Serviceable Zoned Land

This zoning comprises lands that are not currently sufficiently serviced to support new development but have the potential to become fully serviced within the lifetime of the plan. These lands may be positioned within the existing built-up footprint of a settlement, or contiguous to existing developed lands or to Tier 1 lands, where required to fulfil the spatially sequential approach to the location of new development within the settlement.

NPO 72c also outlines that when considering the zoning of land for development purposes that cannot be serviced within the lifetime of the plan, such lands should not be zoned for development.

Prioritising Development Lands

As outlined in the NPF there are many other planning considerations relevant to land use zoning beyond the provision of basic enabling infrastructure including the overall planned levels of growth, location, suitability for the type of development envisaged, availability of and proximity to amenities, schools, shops or employment, accessibility to transport services etc. The Planning Authority will weigh up all of the relevant factors, together with the availability of infrastructure, to determine the order of priority to deliver planned growth and development in a settlement.

4.7.2.3 Active Land Management

The Council will use its available powers to manage the supply of land for housing. This includes the Vacant Sites Levy and Compulsory Purchase Order (CPO) powers and is further discussed in Chapter 5 Design and Place-making in Towns and Villages.

4.7.2.4 Land Development Agency

The Land Development Agency (LDA) is a commercial, State-sponsored body that has been created to co-ordinate land within State control for more optimal uses where appropriate, with a focus on the provision of housing. The LDA will work with State bodies and local authorities to make more effective use of State lands, providing a stable, sustainable supply of land for housing.

The new Land Development Agency Bill, 2021, when enacted, will put the LDA on a statutory footing and set out its core objectives and powers. Amongst other things;

• The LDA will be deemed a designated development agency under the Planning and Development Acts 2000 (as amended).

• A "Register of Relevant Public Land” will be established by the LDA to identify lands owned by relevant public bodies in areas with a population greater than 10,000 that can be made available for housing. It is intended that the LDA will have the power to acquire relevant public land at market value, by means of being offered first refusal on a proposed sale by the land-owning public body.
• The Agency will have CPO powers where it is required to provide access to or infrastructure for relevant public land or land owned by the LDA and where it is has failed to acquire the land via agreement.
• There will be a requirement that a proportion of any housing provided on relevant public land be made available for affordable housing by the LDA or any other party which acquires such land.

4.7.2.5 Compact Growth

The development of land at higher densities to achieve compact growth will contribute to a greater yield in housing units. The density provisions allocated to each level in the Settlement Hierarchy is set out in Chapter 3 Core Strategy. Compact growth is further discussed in Chapter 5 Design and Place-making in Towns and Villages. 

4.7.3 Utilise Existing Stock

The Council will continue to encourage the utilisation of existing housing stock and its refurbishment. The Council's Vacant Homes Strategy and Action Plan, 2018-2021 indicated that there were 5,918 vacant houses (based on Census 2016) and 110 vacant social houses in the county.  It outlined the methodology to be undertaken to confirm the level of vacancy, and measures to be pursued to bring vacant home backs into use. 

The change of use of vacant commercial properties to residential use will also be considered at appropriate locations and in accordance with the proper planning and sustainable development of the area. ‘Bringing Back Homes – Manual for Reuse of Existing Buildings’ (DHPLG 2018) was developed to support and facilitate the reuse of older/vacant buildings in our towns and villages for residential use. The Manual recognises that revitalising main streets through well-planned and designed residential units, particularly above shops, could help to rejuvenate smaller town and village centres (see Chapter 5 Design and Place-making in Towns and Villages for further details).

The Planning and Development (Amendment) (No 2) 2018 (S.I. No. 30 of 2018) provides an exemption, for a period of time, for the change of use, and related works, of vacant commercial premises for residential purposes. This exemption allows the change of use of vacant commercial units in urban areas, including vacant or under-utilised areas over ground floor premises, into residential units without having to go through the planning process. This will facilitate the provision of increased and much needed housing supply, maximise the use of vacant under-utilised spaces and assist in the rejuvenation of the core of urban areas. The exemption can be availed for until the 31st December 2021 and is subject to a list of conditions and limitations. 

4.7.4 Housing Tenure

Housing tenure is described as owner occupied accommodation and rented accommodation and is either provided privately or by public housing bodies. 

Census 2016 confirmed that home ownership rates in the county remain high, with 71.5% of the households in the county owner occupied. This was considerably higher than the State average of 67.7%.  The Census indicated that the private rental sector is expanding in the county.  The rate of private rented properties was 14.6%, and while this figure is lower than the State average 18.2%, the rate of growth in the county (3.7%) was more than twice the State average (1.4%). There was a clear spatial distribution to the private rented sector with highest rates and numbers all located in the main settlements.

It is also apparent that the private rental housing market is heavily subsidised by state funding in the form of Housing Assistance Payments (HAP), the Rental Accommodation Scheme (RAS) and Rent Supplement.

There is a need to focus on both tenures in future housing provision.  The shift towards the rented tenure highlights the need to improve the rental sector by increasing the supply of units at affordable rents across all types of housing types, i.e. houses and apartments. 

Apartments play a role in increasing housing supply and meeting demand, particularly the rental sector. Apartments may be made available for sale, whether for owner occupation or for rent, or more recent housing models that are built specifically for rental purposes (e.g. ‘Build to Rent’ or ‘Shared Accommodation’. 

Housing for students is a specific component of the rented housing sector with distinct characteristics and requirements. The location of purpose built student accommodation needs to be as close  as possible to the centre of education, as well as being connected to accessible infrastructure such as walking, cycling and public transport. The Council will encourage the provision of student accommodation alongside any future development of third-level education campuses in the county.

4.7.5 House Types

The HNDA, which informed the Housing Strategy, identifies the need for a mix of house types to reflect the diverse housing needs of the existing and future population. A need for one and two bedroom properties is particularly evident. 

Houses

Houses will continue to be the preferred house type for many households in the county. 
The HNDA indicates that there is a need to provide a mix of unit sizes to accommodate the future composition of households in the county . In this regard, where a residential scheme is proposed with houses, the development should provide for the following house type mix, except in cases where SPPR 2 of the Apartment Guidelines for Planning Authorities applies: 

• 25% two-bedroom houses
• 30% three-bedroom houses 
• 30% four-bedroom/five-bedroom houses 
• 15% to be allocated to any of the above based on evidence of demand. 

This standard will be applied to schemes of  25 or more units. The Planning Authority will consider a deviation from the above housing type mix where local requirements and/or market evidence suggest that a different housing mix is required.

Apartments

All apartment developments in the county, where private or public, must comply with the new Apartments Guidelines. The Guidelines include nine SPPRs which must be complied with, and these have been incorporated where relevant into the Plan.  The Guidelines also introduced two new concepts - ‘Build to Rent’ apartments and ‘Shared Accommodation/Co-Living. 

‘Built to Rent’ Apartments
The emerging ‘Build to Rent’ (BTR) sector offers new opportunities to increase the scale and pace of delivery of new housing. BTR is defined as ‘purpose-built residential accommodation and associated amenities built specifically for long-term rental that is managed and serviced in an institutional manner by an institutional landlord.’ With BTR, once constructed, the overall scheme is available to the rental sector over a much shorter timescale on completion and the investment model is therefore capable of delivering a much higher volume of housing than traditional models. 

While large scale BTR development is more likely to occur in cities and large urban areas, the Council will give consideration to this housing model in the Key and Large towns, at an appropriate scale. These schemes must comply with SPPR 7 and 8 in the Apartment Guidelines where relevant. 

Shared Accommodation/’Co Living’
This a new format of residential accommodation which comprises professionally managed rental accommodation, where individual rooms are rented within an overall development that includes access to shared or communal facilities and amenities. The amended Apartment Guidelines for Planning Authorities published in December 2020 introduced SPPR 9 which states the following:

There shall be a presumption against granting planning permission for shared accommodation/co-living development unless the proposed development is either:

1. Required to meet specific demand identified by a local planning authority further to a Housing Need and Demand Assessment (HNDA) process; or
2. On the date of publication of these updated Guidelines, a valid planning application to a planning authority, appeal to An Bord Pleanála, or strategic housing development (SHD) planning application to An Bord Pleanála, in which case the application or appeal may be determined on its merits.

The HNDA that forms part of the Housing Strategy (Volume 9) did not identify the need for this type of accommodation in the county.

Unit Mix in Apartment Developments
Having regard to SPPR 1 in the Apartment Guidelines, the following standard shall be complied with  in either an apartment only scheme or a mixed residential schemes including both houses and apartments:

• Apartment developments may include up to 50% one-bedroom or studio type units (with no more than 20-25% of the total proposed development as studios, and there shall be no minimum required for apartments with three or more bedrooms. Compliance with SPPR 1 of the Apartment Guidelines takes precedence over compliance with any other house mix standard in this Plan, save for the requirements relating to compliance with SPPR 2 in the Guidelines. 

Building Refurbishment Schemes

In line with SPPR 2 of the Apartment Guidelines, for all building refurbishment schemes on sites of any size, or urban infill schemes on sites of up to 0.25ha, the following standard shall be complied with: 

• Where up to nine residential units are proposed, there shall be no restriction on dwelling mix, provided no more than 50% of the development (i.e. up to 4 units) comprises studio-type units; 
• Where between 10 to 49 residential units are proposed, the flexible dwelling mix provision for the first nine units may be carried forward and the parameters set out in SPPR 1, shall apply from the 10th residential unit to the 49th; 
• For schemes of 50 or more units, SPPR 1 in the Apartment Guidelines shall apply to the entire development. 

Compliance with SPPR 2 of the Apartment Guidelines takes precedence over compliance any other house mix standard in this Plan, save for the requirements to comply with SPPR 1 of the Guidelines. 

4.7.6 Unfinished Housing Developments

The Council have been very active in resolving unfinished housing development in the county, and will continue to resolve outstanding issues. 

4.7.7 Place-Making and High Quality Schemes

Well-designed and high quality residential developments will make a significant contribution to the creation of attractive towns and villages and communities where people want to live, work and socialise.  The quality of design and layout of residential development is very important in ensuring that these schemes add to the communities in which they are located and provide a high quality living environment for those who live in them. New residential development should be located and laid out in a way which ensures that they are easily integrated into the existing fabric and structure of the settlements and that natural assets are protected. Further details of the requirements for residential developments are set out in Chapter 5 Design and Place-making in Towns and Villages and Volume 2 Development Management Manual. 

Future Housing Delivery Objectives

It is the objective of the Council:

4.8 Specific Housing Needs

The Council will continue to ensure that housing for persons with specific requirements are met in a manner which suits their physical and social needs. 

4.8.1 Housing for the Homeless

The Council will continue to work in conjunction with voluntary housing bodies and other agencies to provide emergency accommodation for the homeless and those who find themselves in need of crisis facilities. 

4.8.2 Housing for Older People

As the number of people in the older age cohorts increases greater consideration must be given to the housing needs of older people and to ensure that housing solutions suit their specific physical and social needs. The Government’s Policy Statement on Housing Options for Our Ageing Population (published in 2018) supports the development of housing and services on centrally located sites within urban areas as research shows that good quality, well connected, urban centres with a range and choice of housing tenures and types actively supports ageing in place. Older people can choose housing that is appropriate and responsive to more complex needs which enables them to enjoy more active, healthy and socially connected lives and to age healthily and safely within their community. Simultaneously it is recognised that older people contribute a wealth of skills and experiences that enhance all of our communities bringing significant value across the generations.  

Older people must be offered a range of housing solutions.  A lot of older people will wish to remain in their current homes and live independently. This arrangement in many cases will require alterations to existing properties, and the Council have a role in facilitating such alterations e.g. housing adaptation grant scheme for older people. 

There is an increasing trend of older people moving into sheltered housing/residential care settings/retirement villages as they grow older. The Council recognises the need and importance of these facilities, in particular, the provision of high-quality, small, self-contained living units within a larger complex with shared entertainment, recreation and healthcare facilities. This allows older people to retain their independence and privacy while enjoying daily social interactions and the security of a sheltered living environment. 

These facilities should be located in towns and villages and be located in close proximity to local services such as shops, post office and other community facilities required by the residents of the facility and should be served by accessible footpaths and easy to get to by visitors. The development of these facilities outside of an existing settlement will only be considered where the site is located in close proximity to the settlement, would not comprise an isolated development, the design and scale of the facility is suitable for the location and there are existing or planned accessible pedestrian linkages to the settlement and its services. Planned pedestrian linkages must be delivered either as part of the proposal or prior to the first occupation of the housing facility. 

4.8.3 Housing for People with Disabilities

There needs to be a range of housing solutions available for people with disabilities. The National Housing Strategy for People with a Disability 2011-2016 was reaffirmed and extended to 2020 under Rebuilding Ireland. The strategy provides the framework for the delivery of housing for people with disabilities, and aims to ensure the delivery of this housing is afforded the priority it deserves. The strategy is framed around nine strategy aims, which inter alia, 

1. Supports people with a disability to live independently in their own homes and communities, where appropriate. 
2. For people with intellectual or physical disabilities there is focus on moving away from congregated settings in line with good practice, through the development of frameworks to facilitate housing in the community. 
3. For people with a mental health disability, there is a focus on facilitating housing in the community for people with low and medium support needs moving from mental health facilities, in line with good practice. 

The Council supports the strategic aims of the strategy and the delivery of independent living solutions for people with disabilities, where possible. The Council oversees the application of the housing adaptation grant which allows many people to remain in their homes and local community. The Council will continue to address particular identified needs through facilitating the provision of purpose-built, adaptable dwellings and standard social housing supports where applicable. The Council will also consider the development of housing in the community such as sheltered housing and will facilitate the provision of such facilities at appropriate locations (similar to housing for older people Section 4.8.2 Housing for Older People). 

4.8.4 Housing for Members of the Travelling Community

The Traveller Accommodation Programme 2019-2024, adopted on the 9th July 2019, identified the requirement to provide or assist in the provision of approximately 100 units across a full range of accommodation types over the period of the programme. Standard local authority accommodation remains the preferred accommodation option for households while four families expressed an interest in Traveller Group Housing in the Wexford Municipal District. The Council will continue to address the provision of accommodation appropriate to the particular needs of Travellers through the implementation of the programme which is subject to the necessary funding being available. 

Specific Housing Needs Objectives

It is the objective of the Council: 

4.9 Housing in the Open Countryside

4.9.1 Single (One-Off) Rural Housing Policy Context

The Council will continue to support sustainable rural settlement in accordance with the National Planning Framework, the RSES and the Sustainable Rural Housing-Guidelines for Planning Authorities (DEHLG, 2005) and any future updates of those guidelines.

NPF and RSES

The NPF and the RSES⁹ state that in areas under urban influence, that is, within the commuter catchment of cities and large towns and centres of employment or elsewhere, that the provision of single housing in the countryside be based on the core consideration of demonstrable economic or social need to live in a rural area and siting and design criteria for rural housing in statutory guidelines and plans. In rural areas elsewhere, the provision of single housing is to be based on the siting and design criteria for rural housing in statutory guidelines and plans.  

Sustainable Rural Housing Guidelines 

The Guidelines define three rural area types:

Rural Areas under Strong Urban Influence 

The Guidelines outline that these areas exhibit characteristics such as proximity to the immediate environs of or close commuting catchment of large cities and towns. There will be evidence of rapidly rising population and of considerable pressure for housing development due to proximity to the urban areas or to major transport corridors with ready access to the urban area. There may also be evidence of pressures on infrastructures such as the local road network. 

Stronger Rural Areas

According to the Guidelines in these areas population levels are generally stable within a well-developed town and village structure and in the wider rural areas around them. This stability is supported by a traditionally strong agricultural economic base and the level of individual housing development activity in these areas tends to be relatively low and confined to certain areas. 

Structurally Weak Areas

These areas exhibit characteristics such as persistent and significant population decline as well as a weaker economic structure based on indices of income, employment and economic growth. 

Having regard to the NPF requirements, and following a review of rural areas in the county and their relationship with the key and large towns and transport corridors in the county, three rural types have been identified and are shown on Map 1: 

• Areas Under Strong Urban Influence
• Stronger Rural Areas 
• Structurally Weak Areas

In summary; 

• Much of the county is designated as either ‘Areas under Strong Urban Influence’ or ‘Stronger Rural Areas’.  Some of these areas have experienced more rapid growth and are reaching their carrying capacity in terms of both ability to accommodate further effluent treatment systems, visual amenity and ability to accommodate traffic movement on narrow roads.
• Areas within close proximity to the coast demonstrated significant pressure for one-off rural housing/second home development and are sensitive to development and accordingly these areas are separately designated as the ‘Coastal Zone’ with stricter local need criteria than the other rural areas. 
• While some areas of the county have been designated as ‘Structurally Weak’, applicants must still comply with the requirements of Table 4-6 Criteria for One-Off Rural Housing.
• There are landscape and heritage areas within the county which need to be afforded a high level of protection. These include the Uplands, River Valleys,Coastal  and Distinctive Landscapes and designated ecological areas.  There are strict local need requirements in these areas. 
• There are also restrictions relating to one-off housing along national and regional roads.  

As outlined in Section 3.3 single rural housing will be considered in the open countryside in accordance with Table 4-6 Criteria for One-Off Rural Housing. Notwithstanding the demonstration of compliance with the relevant criteria, the planning application will be determined based on the proper planning and sustainable development of the area, in accordance with  all relevant development plan objectives and development management standards including traffic safety, public health, the protection of natural heritage and biodiversity, landscape and siting and design. The demonstration of a local rural housing need will not outweigh the need to comply with all other relevant planning and environmental criteria and standards. 

In order to be considered for a single dwelling in the open countryside, an applicant must meet one of the following categories:

A. A person who has a demonstrable social functional need to reside in a particular rural area (except for Structurally Weak Rural Areas)

Or

B. A person who has a demonstrable economic functional need to reside in a particular rural area (except for Structurally Weak Rural Areas)

The applicant must comply with the criteria for that category and the applicable rural area criteria as set out in Table 4.6 and the accompanying definition and notes. 

Table 4-6 Definition and Notes:

1. In the event of two or more rural policy areas overlapping, the more restrictive policy will apply. 
2. A person with a social functional rural housing need is defined as a person who is an intrinsic member of a local rural community having lived for the specified period of time in their ‘local rural area’ and who has never owned a rural house. It includes persons who were reared in the local rural area but that local rural area is now within a settlement boundary/zoned land. It also includes a person who has links by virtue of being a long term rural landowner or the son or daughter or successor of such a person. A long term rural landowner is defined as a landholding owned by that person before the 30th April 2007. 
3. The ‘local rural area’ is defined as an area within the ‘specified distance’ in Table 4-6 above of where the applicant has lived or was living. Where the ‘specified distance’ for the Urban Influence and Stronger Rural area extends into the Coastal Zone or a Landscape and Heritage Area the lands within the Coastal Zone or Landscape and Heritage Area is excluded from being considered. However, where the specified distance for a person from the Coastal Zone or Landscape and Heritage Area extends into one of the other rural area types, this land will be considered.  The ‘local rural area’ includes the open countryside, Large Villages, Small Villages and Rural Nodes but excludes the Key Towns, the Large Towns and Level 3a and 3b settlements. In the context of the Coastal Zone the local rural area is defined as open countryside within the coastal zone.  
4. Under both Category A and B, the persons must not have previously owned a rural house. However the Planning Authority, may in exceptional circumstances, give consideration to such persons. These circumstances include: 
   (a)    The person is no longer in possession of that home having been disposed of following a legal separation/divorce/repossession/ the transfer of a home attached to a farm to a family member and that person can demonstrate that they have a social or economic functional need to live in the local rural area. 
   (b)    The person requires a new purpose built specially adapted house due to a verified medical condition. The person must demonstrate that their existing home cannot be structurally adapted to meet their particular needs.
   (c)    An immediate family member who needs to reside beside an older person or person who otherwise needs a carer(s) to provide security, support or care, or the older person or person who requires a carer (s) needs to reside beside an immediate family member. In either case, the person (either the older person or the immediate family member) whom it is proposed to reside beside must have lived full-time in that ‘local rural area’ for a minimum period of 10 years and the subject site must be directly adjacent to their home.  Similar consideration will be given to an immediate family member of an older person who has no children. An immediate family member is defined as a mother, father, son, daughter, brother, sister or guardian. In the case of an older person who has no children, an immediate family member is defined as a sister, brother, niece or nephew. 
   (d)    An older person(s), who for verified reasons, wishes to downsize their home but remain within their local rural area and local community. The new property must be single storey only, have a maximum floor area of 125m², two bedrooms (one en suite), a kitchen, living room and bathroom and shall be fully accessible. It will be a condition of the planning permission that the exemption provided by Class 1 of Schedule 2, Part 1, Exempted Development-General of the Planning and Development Regulations, 2001 (as amended) which relates to the erection of an extension to a dwelling house, will be removed. 
5. In determining whether an applicant has an overriding need to live at the particular location the Council will consider whether the applicant has a demonstrable economic need in accordance with the criteria set out in Table 4-1 for the Coastal Zone and the Landscape and Heritage Areas e.g. full-time farming. In determining whether the applicant has an overriding social need to reside at that particular location, the Council will consider long-term landownership and exceptional health circumstances as outlined in Point 6. In both cases (either overriding social or economic need), the applicant must demonstrate that the need for a dwelling cannot be accommodated elsewhere and the development must comply with Points 7 and 8 relating to access to national and regional roads.
6. The Planning Authority may give special consideration to cases of exceptional health circumstances supported by relevant documentation by a medical practitioner proving that a person needs to live in a particular environment or requires an immediate family member to live in close proximity to that person. 
7. In accordance with Objective TS66 in Chapter 8 Transportation Strategy and regardless of compliance with Category A or B, no individual rural housing proposing either (a) a new direct access to the national road network or (b) the generation of increased traffic from an existing access onto the national road network in a zone where the speed limit is greater than 60kph will be permitted-see Section 8.7.1 National Roads (Chapter 8 Transportation Strategy). 
8.  Planning applications for individual rural housing with access to a regional road within any of the rural area types or landscape and heritage area will be considered on a case-by-case basis in accordance with the criteria set out in Objective TS73 in Chapter 8 Transportation Strategy. 
9. All permissions for individual rural housing will include an occupancy condition and a permanent residence condition (see Objectives SH41 and SH42)

4.9.2 Unfinished single houses in the open countryside

An instance may arise where planning permission is granted for a single house in the open countryside and work commenced on the development. However, the original applicant may no longer be in a position to complete the house. The planning authority will consider a planning application for retention and completion of the house by a different applicant only where the new applicant complies with the rural housing policy pertaining to that particular rural area.   

4.9.3 Ribbon Development

Ribbon development (also known as linear development) is defined in the Sustainable Rural Housing Guidelines as development in rural areas “of almost continuous road frontage type development, for example, five or more houses existing on any one side of a given 250m of road frontage”. The Guidelines recommend against the creation of ribbon development for a variety of reasons including road safety, future demands for the provision of public infrastructure as well as visual impacts due to the piecemeal nature of this type of development. 

Ribbon development on the approach road to towns and villages creates problems as these settlements grow, in particular, it can impinge on the orderly and efficient development of newly developing areas on the edges of settlements, it can obstruct the delivery of future infrastructure and can give rise to demand for the inefficient servicing of this development at a high cost given the low density nature of the development. Ribbon development in the open countryside gives rise to suburban type development and contributes to the erosion of the rural character of an area. 

Accordingly, the Council will adopt a presumption against ribbon development and will not allow more than five houses on any one side of a given 250m of road frontage regardless of the number of infill sites.

The Council will consider the following exception to this policy. Where there are four or five existing houses in a row and there is an infill site between two of the houses, the Council will consider the development of an infill site for a dwelling house where it is to accommodate a specific housing need such as that of a son or daughter. The infill site must be adjacent to the family home or in very close proximity (250 m of the family home).  Only one infill site in that row will be permitted to be developed in order to limit the impact of ribbon development/suburban density in rural areas (regardless of the number of infill sites). 

New Individual Dwellings in the Open Countryside Objectives

It is the objective of the Council: 

4.9.4 Refurbishment and Replacement of Rural Dwellings/Non-Residential Rural Structures

The reuse of the county’s existing housing stock is a sustainable use of existing resources and its reuse will be encouraged by the Planning Authority. However the reuse is only sustainable if the amount of work to be done to the property is significantly less than a new dwelling (in terms of embedded energy and waste) or if it preserves our vernacular heritage.

Vernacular Houses

The county has a significant number of attractive vernacular houses in its rural areas. The Planning Authority will continue to protect this vernacular building stock and promote its sensitive restoration , including those which are derelict, as an alternative to the construction of new single rural houses elsewhere in the countryside. Table 4.7 sets out the guiding principles and criteria relating to vernacular houses. 

Non-Vernacular

The Planning Authority will apply a more relaxed approach to the refurbishment of non-vernacular housing stock in rural areas. 

Non-Residential Rural Structures

The Planning Authority will also consider the refurbishment and conversion of a non-residential structure to residential use e.g. a disused church or an old school building subject to complying with the criteria set out in Table 4.8. 

The following definitions apply:
‘Substantially intact’ for the purposes of this section means the four walls and roof are intact. 

‘Derelict’ for the purposes of this section means a structure which is not substantially intact. This includes where the roof if partially missing/damaged.  

Fire Damaged Houses

Rebuilding of rural dwellings that have been accidently destroyed by fire will be supported subject to the dwelling being of a similar size and footprint to the dwelling that has been destroyed.  Any significant variation to the original scale of the dwelling may result in additional assessments being required relating to site size and environmental criteria. 

Replacement and Refurbishment in the Open Countryside

It is the objective of the Council:

4.9.5 Self-contained residential units for a family member

The purpose of this unit is to provide semi-independent accommodation for an immediate family member who is dependent on the occupant(s) of the main dwelling or needs to live in close proximity to the occupant(s) of the main dwelling for care and/or security reasons. An immediate family member is defined as a mother, father, son, daughter, brother, sister or guardian. In the case of an older person who has no children, an immediate family member is defined as a sister, brother, niece or nephew. 

These units, which must be attached to the main dwelling house with provision made for an internal link, are not considered to be an independent dwelling unit and as such private open space and car parking standards are not independently assessed. The unit must be integrated back into the main dwelling when use by the immediate family member is no longer required. The Planning Authority will consider applications on a case-by-case basis and subject to compliance with the development management standards set out in Volume 2 and normal planning and environmental criteria. 

4.9.6 Modular Homes and Pre-fabricated Homes

Alternative forms of house construction are evolving, and in many cases, are resulting in more sustainable houses e.g., timber framed homes have a lower carbon footprint than concrete built homes. As these houses may be cheaper to develop, they also offer a more affordable housing option for many people. While the Council encourages the development of sustainable housing, there are concerns about the suitability of some building forms and associated external finishes, both in rural and urban settings.

In all cases, where permission is sought for these homes in the open countryside, the developments will be assessed as one-off rural housing for occupation as a permanent residence, and accordingly the applicant will be required to demonstrate compliance with the local need criteria for the rural area type that the subject site is located within. A permanent residence condition will also be attached to the planning permission. The dwelling will be deemed to have fulfilled the applicant’s rural housing need, and going forward, the applicant will therefore be considered to have previously owned a rural home. Notwithstanding, and in the case of a pre-fabricated timber dwelling only (e.g., log cabin type structure), the Council will consider the replacement of the structure with a house of more permanent construction by the same applicant on the same site subject to compliance with all normal planning and environmental criteria.

As these developments are assessed as independent dwellings in the open countryside, it must have its own site edged red, comply with minimum site size requirements, be served by its own independent wastewater treatment system and water supply, provide a safe vehicular entrance that meets the minimum sightline requirements for the road on which the site is located, and comply with all other normal planning and environmental criteria and the relevant standards set out in Volume 2 Development Management Manual.

Modular Units

The use of modular units as permanent residences will be given consideration in rural and urban locations on a case-by-case basis. It must be demonstrated that the units will provide a high quality, sustainable construction with a lifetime similar to concrete construction (minimum 60 years). The external finishes of the units must be in keeping with the local vernacular finishes and in this regard the units must therefore have an external plaster finish and normal roof slates.  The units must comply with all other standards pertaining to residential developments.

Pre-fabricated Timber Homes (Log Cabins) in Rural Nodes and the Open Countryside

The Council will consider the development of pre-fabricated timber homes e.g., log cabin type structures on a case-by-case basis on sites in the open countryside, and will have regard to the following as part of that assessment:

• The siting of the unit must complement its rural setting, be sensitively sited to ensure that it blends in with its surroundings and landscape setting, is not visually prominent especially when viewed from approach roads to the four main towns, scenic routes (see Section 5 in Volume 7 Landscape Character Assessment) or detract from landscape character units which are assigned medium or high landscape sensitivity (see Section 5 in Volume 7 Landscape Character Assessment). The unit should be simple in form and design and not have the characteristics of alpine dwellings. The external materials will be considered on a case-by-case having regard to the characteristics of the site, its visual sensitivity and visibility of the unit. The use of a timber external finish may be appropriate on some rural sites where the site is well-screened and/or not visually prominent. Where a timber external finish is not considered appropriate, the Council will consider an alternative external finish e.g., render or an appropriate cladding.
• The site must be suitably landscaped, and details of the proposed landscaping must be submitted with the planning application. The planting should be specified by a suitably qualified person. Where a timber finish is proposed the tree planting must be at a density that will provide a woodland setting. The landscaping must be carried out before commencement of construction.
• The development must comply with all relevant Building Control Standards.

Pre-fabricated Timber Homes in Towns and Villages

In general, the Council will not consider the development of these units as an appropriate residential unit in the back garden of an existing dwelling house in a town or village setting. The Council may give consideration where it will be on its own self-contained site with independent vehicular access and private open space. The structure must be simple in form and design, must not detract from visual amenity and must be in keeping with the existing built form and character of the area. In general, they will not be considered on the main thoroughfares in the town or village or in visually prominent locations. Where a timber external finish is not considered appropriate, the Council will consider an alternative external finish e.g., render or an appropriate cladding. The applicant will submit a planting plan prepared by a suitable qualified person to provide appropriate screening for the unit. The development must all comply with all relevant Building Control Standards.

4.9.7 Individual Mobile Homes for use as a Permanent Residence

This type of structure is not considered suitable for use as a permanent residence. The Planning Authority may consider limited temporary use of a mobile home as living accommodation while a permitted dwelling house for the same applicant is being constructed on the same site. The mobile home must be served by suitable wastewater and water supply facilities.  

4.9.8 Single Holiday Homes

The land use planning approach is to concentrate future holiday homes, including single holiday homes, in existing settlements in the county. Single holiday homes will only be considered in the open countryside in line with Table 4-7 and 4-8. 

However, the development of holiday homes in rent pressure zones and areas of identified housing need for the purposes of the Urban Regeneration and Housing Supply Act 2015 will be strictly controlled to ensure existing houses and zoned land is retained, where needed, for the provision of permanent residential purposes.  Holiday home development is discussed in further detail in Chapter 7 Tourism Development and Chapter 12 Coastal Zone Management and Marine Spatial Planning.