Chapter 2 Housing
2.1 Aim, Context, Strategy
2.2 Neighbourhood Concept
2.3 Neighbourhoods: Outer Suburbs
2.4 Neighbourhoods: Established Suburbs
2.5 Neighbourhoods: Inner Residential Areas
2.6 Neighbourhoods: City Centre Residential
2.7 Low Density Residential Areas
2.8 Traveller Accommodation
2.9 Specific Objectives
Aim
To provide for adequate housing for all sectors of the community in sustainable neighbourhoods that will be attractive places to live with easy access to a range of local services, amenities and community facilities. To ensure that these residential neighbourhoods will have a sense of identity and will foster sustainable living and movement patterns. To improve the quality and to protect the character of Galway’s older residential neighbourhoods and to regenerate the city centre’s residential neighbourhoods.
Context
In the last 15 years there has been a substantial increase of almost one third in the population of Galway City. There has also been a corresponding phenomenal increase in house building. These developments have been throughout the city with the majority of this development in the suburbs. Since the 1980’s residential development has been mainly concentrated in the suburban areas to the west of the city, however since the period of the last development plan there has been a more even distribution towards the east and north east of the city in Doughiska and Castlegar. Galway city has also experienced a growth in residential development within areas close to the city centre.
This has occurred through the redevelopment at higher densities of sites on both residential and institutional lands.
Within the city centre in the last ten years there has been significant growth of almost 200% in the residential population. This has come about through planning policies, which required all new development to have a residential content and through fiscal incentives under the urban renewal schemes.
This growth in population is set to continue and is likely to be accelerated by the designation of Galway as a ‘Gateway’. This continued population growth needs to be accommodated in a sustainable manner. In this regard the Council has adopted the recommended settlement strategy in the Galway Transportation and Land use Planning Study (GTPS).
In considering the settlement strategy for the city the Council have had regard to national policy on sustainable urban development. This is outlined in ‘Sustainable Development: A Strategy for Ireland’, 1997, DOEHLG, which encourages more sustainable urban development by the avoidance of excessive suburbanisation and the promotion of higher residential densities in co-ordination with improved transport systems. This is further supported by the ‘Residential Density – Guidelines for Planning Authorities’, 1999, DOEHLG. The recommended settlement strategy as proposed in the GTPS supports these principles.
One of the main elements of the GTPS recommendations is to direct development into a new, self-sufficient,public transport served corridor - the Ardaun Corridor. The Ardaun Corridor will connect Doughiska on the east side of the city with Oranmore in the county area. This was selected as an area likely to be attractive to residents, close to new jobs and capable of being laid out in a way which would encourage walking, cycling and the use of public transport. Detailed policies relating to the Ardaun Corridor are included in Chapter 9.
Strategy
• Implement the settlement strategy as recommended in the GTPS in the interest of sustainability and the integration of land-use and transportation.
• Encourage neighbourhoods of high quality residential development, which will contribute to a sense of identity and will provide a mix of housing types in an attractive setting.
• Protect, enhance and explore opportunities for environmental improvements to existing residential areas.
• Accommodate through land use zoning the requirements of the Housing Strategy.
• Facilitate accommodation for the Travelling Community within the city in accordance with existing and future Traveller Accommodation Programmes.
It is recognised that some of the newer residential areas in the city have developed in a piecemeal manner which has not encouraged the development of sustainable residential environments. An essential element of a sustainable city is the development of a compact city, which is characterized by the consolidation of existing neighbourhoods and the establishment of new neighbourhoods. Neighbourhoods are not just about the provision of high density housing, they involve the integration of economic, community and social needs with the physical planning of the neighbourhood. Sustainable neighbourhoods can contribute to fostering community spirit, to reducing traffic movements and to the provision of high quality residential environments. It is the policy of the Council to promote this neighbourhood concept in existing residential areas and in new developments. In order to do this the Council recognises the need to develop a framework of neighbourhoods for the city which will inform policy making. This framework of residential neighbourhoods in the city is detailed in Table 2.1 and Fig 2.1 (View Map).
Table 2.1 Indicative Neighbourhood Areas In Galway
In general the Council will protect and enhance the character of existing residential neighbourhoods through development standards and through the implementation of environmental improvements.
The Council will encourage the creation of new neighbourhoods by requiring proposed residential developments to incorporate the policies and principles contained in this chapter. In additional Local Area Plans, for Ardaun and Murroogh will provide for specific policies and objectives which will encourage high quality urban environments and sustainable neighbourhoods. The emphasis of the Murroogh Local Area Plan will be to provide for the provision of recreational facilities and coastal amenities. The plan will also provide for mix use development and for residential neighbourhoods.
In addition the Council will require planning applications for larger residential developments to include a design statement which describes the proposed development in terms of its context, the movement within the site and the relationship to adjoining developments. This will contribute further to the development of neighbourhoods.
Policy no. 2.2 Neighbourhoods
• Encourage the development of sustainable residential neighbourhoods, which will provide for high quality, safe, accessible living environments which accommodates local community needs.
• Encourage sustainable neighbourhoods, through appropriate guidelines and standards and through the implementation of Local Area Plans.
• Protect and enhance new/existing residential neighbourhoods through appropriate guidelines and standards.
2.3 Neighbourhoods: Outer Suburbs
Successful residential development is reliant on the creation of distinct residential neighbourhoods. Residential development in the outer suburbs will have to have regard to its surrounding context, provide for linkages with local facilities, mix of house types and a layout that will provide for a high quality living environment. These neighbourhoods will also include for local shopping, transport, leisure infrastructure and local employment opportunities.
Infill development in the outer suburbs will also have regard to the context of the area and will not adversely affect the character of an area. In this respect, infill development will have regard to the existing pattern of development, plots, blocks, streets and spaces.
The Council will require that all new developments take into consideration the following principles that contribute to the development of sustainable neighbourhoods.
Residential Densities: ‘Residential Density – Guidelines for Planning Authorities’ 1999, DOEHLG. The guidelines are designed to encourage more sustainable urban development through the avoidance of excessive suburbanisation and the promotion of higher residential densities in appropriate locations, especially in conjunction with improved public transport facilities.
The 1999 development plan included densities, which were in the order of that recommended in the guidelines. This plan further supports and encourages these densities. Where appropriate, lower density developments will be discouraged in the interest of sustainability. In line with national guidelines the Council will only consider high-density developments where adequate and high quality residential amenity is achieved.
Context for New Neighbourhoods: The successful integration of new housing development with its surrounding context is one of the most important elements in fostering sustainable neighbourhoods and sustainable patterns of movement within Galway City. Residential development has to have regard to the character of an area including adjoining development, landscape features, contours, archaeological features and local bio-diversity.
The extent to which new housing responds to its local context depends not only on the design of the houses themselves but also on the design of the open space, roads and footpaths and equally important, the linkages between new housing and:
• local facilities and community infrastructure;
• the public transport network;
• greenways, walking and cycling routes and parks.
Residential development needs to have regard to the layout of the adjoining developments. Open spaces, between developments should complement each other and rear gardens should generally not back onto adjoining open space and roads. These situations can provide opportunities for linkages between developments and complementary open spaces.
Streets and Movement: In the last twenty years the layout of residential developments in Ireland, have generally been designed around a system of roads and not of places. Strict adherence to road standards has led to inflexible residential layouts with roads dominating and open spaces becoming secondary. The layout of residential development needs to create spaces where the car becomes secondary and where the street becomes part of the development’s amenity area. The Council will encourage new development to be based on a network of spaces rather than a road based layout, a development in which roads play their part but are not dominant. In this regard the Council will also encourage the use of ‘home zones’ in new residential development.
‘Home zones’: These may consist of shared surfaces, indirect traffic routes, areas of planting and features to encourage the use of the street for amenity. These features allow for traffic calming and design features that are used to indicate to traffic, the entrance to a ‘home zone’. ‘Home zones’ allow streets to become play and amenity areas and therefore can contribute to Galway’s role as a ‘child friendly city’. The concept of ‘home zones’ is currently being used in the design of the Council’s residential development at Merlin Park.
Fig. No. 2.2 Proposed ‘Home zones’ at Merlin Park
Mix of House Types: The creation of successful residential neighbourhoods is about the provision of opportunities for homes which respond to people’s needs and which provide a framework where communities can become established and grow. Providing a mix of house types can create neighbourhoods for people of different ages and different lifestyles. This in turn can provide a number of important benefits. For example:
• more sustainable use of community services;
• provide opportunities for ‘lifetime communities’ where people can move house without leaving
• neighbourhood;
• increased social inclusion;
• more attractive residential development due to diversity of form.
Open Space and Amenities: Open space in new developments can be one of a neighbourhood’s greatest assets. The best open spaces are those which not only provides for safe play, passive recreation and relaxation but also contributes to the development of a sense of identity and community. To give new developments a context and identity, new open space should use natural features such as rock outcrops, hedgerows and trees. Linking open spaces and recreational areas can contribute to extending the greenways network as mentioned in Chapter 4. The Council will require, where appropriate that open spaces be easily accessed by the majority of residents and be informally supervised.
In order to increase the amenity value of open spaces, the Council will require that suitably located recreational infrastructure is provided as an integral part of residential development containing more than 10 units, for example, seating, barbecue stands, play areas. The recreational facility provided should serve the needs and profile of the future residents and the scale and type of development. These facilities will also contribute to achieving Galway’s role as a ‘child friendly city’.
Provision of Services and Community Facilities: In order to create sustainable residential neighbourhoods and to reduce traffic movements, local community facilities are required to serve residential areas. The Council through zoning objectives will encourage the provision of community, commercial and local employment facilities of a scale appropriate to serve the local community. Local community facilities or commercial services can be provided at accessible points within a development for example, were access roads meet. In all instances these facilities should be within walking distance of local residents.
In order to comply with the Guidelines on Childcare Facilities, 2001, DOEHLG adequate childcare facilities within easy reach of most new housing will be required for housing developments of a certain size.
Redevelopment: In the interest of protecting the amenity of existing residential neighbourhoods in the outer suburbs demolition of existing dwellings for higher density apartment development will not be acceptable.
Exception to this policy will only be considered on newly zoned residential lands, undeveloped lands where no pattern of development has been established, on main distributor roads where mixed uses have already been developed and where the existing form of development is not predominantly conventional housing and where the development will not reduce the existing residential amenity.
Policy no. 2.3 Outer Suburbs
• Encourage higher residential densities at appropriate locations especially close to public transport routes.
• Ensure that high density residential development creates high quality residential environments.
• Ensure the layout of residential developments has regard to adjoining developments.
• Encourage a mix of housing types and sizes within residential developments.
• Encourage the use of ‘home zones’ within residential developments
• Require residential developments of over 10 units, to provide recreational facilities as an integral part of the proposed open space.
• Encourage the provision of adequate childcare facilities within and adjacent to residential developments.
• Ensure a balance between the reasonable protection of the residential amenities of the outer suburbs and the protection of the established character and the need to provide for sustainable residential development.
2.4 Neighbourhood: Established Suburbs
Galway has a variety of established suburbs, all of which contribute to the diversity and character of Galway City. The character of the Taylor’s Hill area is very different to that of Renmore, but each area has an important function in the provision of housing in Galway City.
It is recognised that these areas are dynamic and that potential still exists for some additional residential development which can avail of existing public transport routes social and physical infrastructure. It is the priority of the Council to ensure that new development will not adversely affect the character of the area. In this regard infill development should not be of such a scale that represents a major addition to or redevelopment of the existing urban fabric. In this respect, infill development will have regard to the existing pattern of development, plots, blocks, streets and spaces. Infill development will also have regard to the scale and proportion of existing buildings, building lines, massing and height of buildings in relation to the street.
Demolition of existing dwellings for higher density apartment development in the established suburbs will not be acceptable. Demolition of existing dwellings for replacement dwellings will not be acceptable in the established suburbs except in cases where it is demonstrated that the proposed development would make a positive contribution to the area’s urban design and where it does not represent a major intervention into or redevelopment of the urban fabric. This assessment will be balanced with the contribution that any proposed replacement would make to enhance the character of the area and will have regard to any sustainable benefits of such development.Where replacement is acceptable, new development will be required to comply with Council’s development standards.
Exception to this policy will only be considered on newly zoned residential lands, undeveloped lands where no pattern of development has been established, or on main distributor roads where mixed uses have already been developed, or where the existing form of development is not predominantly conventional housing and where the development will not reduce the existing residential amenity.
It is recognised that the housing needs of people change. This need may generate a demand for additional space. Where extensions are required these should have regard to development plan standards.
It is acknowledged that established suburbs may require additional community and local services. The Council will encourage such additional services along main roads and in existing mixed-use areas or where it is demonstrated that the proposed development will not adversely affect the character of the area.
Fig 2.3 Ballybaan (top,below)
Fig 2.4 Ballinfoile (middle, below)
There are neighbourhoods in the established suburbs which have extensive tracts of communal open space lands. Some of these are located in Ballybaan and Ballinfoile. The scale and layout of the communal open space in these areas has created pockets of open space lands which are under-utilised and which do not contribute to the urban structure. This can consequently lead to these areas becoming derelict and attracting uses that have no community value. Opportunities exist in these areas to improve this situation through enhancement in the urban design. Through a high standard of infill development great improvements in the environmental quality can be brought about. This infill could be in the form of community facilities and / or residential development. This development can contribute to the quality of the neighbourhood and can enhance the built environment by providing effective linkages between residential areas, better informal supervision of open spaces and introduce a mix in size and type of housing units. It is the objective of the Council to investigate the potential for infill in such areas in Ballybaan and Ballinfoile. (see Fig.2.3 and 2.4). In all cases the recreational requirements and residential amenity of the existing neighbourhoods will not be prejudiced and extensive public consultation will be part of the planning process.
Fig 2.5 Mervue Residential Area (bottom, below)
To address traffic and parking pressures the Council will examine, in conjunction with local residents, the potential for environmental improvements for the Mervue area. The aim will be to implement changes that increase the residential amenity of the area, reduce traffic and reorganise car parking.
Policy no. 2.4 Established Suburbs
• Ensure a balance between the reasonable protection of the residential amenities and the established character and the need to provide for sustainable residential development.
• Encourage additional community and local services and residential infill development in the established suburbs at appropriate locations.
• Enhance established suburbs, such as the Mervue residential area, through the implementation of environmental improvement schemes and the protection of all open spaces including existing green spaces.
2.5 Neighbourhoods: Inner Residential Areas
Galway has a variety of house types in the inner residential area, with a mix of private and public housing. The larger residential areas were originally public housing areas. These areas, such as Claddagh, Shantalla and areas of Bohermore provide valuable housing in strong sustainable communities close to the city centre. These areas are under pressure for housing extensions and for limited infill development. They have also experienced considerable pressure from traffic and car parking which has reduced their residential amenity.
It is recognised that these areas are dynamic and that potential still exists for some additional residential development which can avail of existing public transport routes and social and physical infrastructure. It is the priority of the Council to ensure that new development will not adversely affect the character of the area. In this regard infill development and housing extensions should not be of such a scale that represents a major addition to or redevelopment of the existing urban fabric. In this respect, infill development will have regard to the existing pattern of development, plots, blocks, streets and spaces. Infill development will also have regard to the scale and proportion of existing buildings, building lines, massing and height of buildings in relation to the street.
Demolition of existing dwellings for higher density development will not be acceptable in the inner residential areas except in cases where it is demonstrated that the proposed development would make a positive contribution to the area’s urban design and where it does not represent a major intervention into or redevelopment of the urban fabric. This assessment will be balanced with the contribution that any proposed replacement would make to enhancing the character of the area and will have regard to any sustainable benefits of such development. Where replacement is acceptable, new development will be required to comply with Council’s development standards. Notwithstanding the above demolition of existing dwellings for higher density apartment development in the areas of Claddagh, Shantalla and St. Finbarr’s Terrace, as defined in Figs. 2.6, 2.7 and 2.8, will not be acceptable.
Fig 2.6 Claddagh (left) and Fig 2.7 Shantalla (right)
To address traffic and parking pressures the Council will examine, in conjunction with local residents, the potential for environmental improvements for the areas of Claddagh, Shantalla, and the St. Finbarr’s area, Bohermore. The aim will be to implement changes that increase the residential amenity of the areas, reduce traffic and reorganize resident car parking.
Fig 2.8 St. Finbarr’s, Bohermore
Policy no. 2.5 Inner Residential Areas
• Protect the quality of inner residential areas by ensuring that new development does not adversely affect their character and has regard to the prevailing pattern, form and density of these areas.
• Enhance Inner Residential Areas such as Claddagh, Shantalla and St. Finbarr’s Terrace, Bohermore residential areas, through the implementation of environmental improvement schemes and the protection of all open spaces including existing green spaces.
2.6 Neighbourhoods: City Centre Residential
In the city centre there are areas which have retained their residential character. In addition new residential communities have developed through the encouragement of development plan policies. It is recognised that certain residential areas in the city have experienced a reduction in residential amenity due to the impacts of adjacent city centre development and traffic pressures. In this regard the Council will endeavour to address some of the negative impacts on amenity.
Fig. 2.9 Henry Street /William Street West Residential Area
Within a one year period of the adopting of this plan the Council will complete a further study, if necessary, in conjunction with local residents, of the residential area between Henry Street and William Street West. This scheme will be implemented within a two-year period of the adopting of this plan, funds permitting. The aim of this study is to supplement the work already carried out by local residents and to implement improvements in residential amenity by improved traffic management, improved accessibility for all, the upgrading of open areas and the possible creation of ‘home zones’. These improvements would complement the car parking management in the area, the civic improvements proposed for the Small Crane and would further enhance the adjacent Architectural Conservation Areas of Lower Dominick Street and The Crescent/Sea Road. In addition, improvements are also scheduled for the residential areas of Bowling Green and Woodquay (city centre regeneration schemes) and St. Nicholas’ Street (Architectural Conservation Area).
There is also limited potential for infill development in the city centre residential area, these will only be permitted when they do not adversely affect the character of the areas. Demolition of existing dwellings for higher density apartment development in the residential area between Henry Street and William Street West area as defined in Fig. 2.9, will not be acceptable. To safeguard residential content, commercial development will be discouraged in city centre areas zoned residential.
New residential development in particular has contributed to the vibrancy of the city centre. The Council will continue to encourage residential development by requiring a residential content of at least 20% of all new developments in the city centre. On certain key sites in the city centre a residential content of 30% will be required.
Policy no. 2.6 City Centre Residential Areas
• Protect and enhance established residential areas by discouraging encroachment from commercial development and unacceptable infill developments.
• Enhance inner city residential areas through implementation of environmental improvements schemes including, where appropriate home zones and recreational facilities in conjunction with local residents.
• Encourage the expansion of the city centre residential community by requiring a residential content in all new development.
2.7 Low Density Residential Areas
Lower Density Residential Areas (LDR) are areas, which have been zoned for residential development at a lower density than other lands zoned residential. The prescribed residential densities in these areas are considered appropriate due to the established residential pattern, deficiency in service provision and/or significance of landscape. Such areas require specific development objectives, which are outlined in chapter 11.
Policy no. 2.7 Low Density Residential Areas
• Protect the character of these areas by ensuring new development has regard to the prevailing pattern, form and density of these areas.
• Protect the characteristics of these areas through development standards and guidelines.
The Planning and Development Act 2000 introduced a requirement for development plans to include objectives for the provision of accommodation for Travellers, and for the use of particular areas for that purpose. In accordance with the provisions of the Housing (Traveller Accommodation) Act 1998 the Council established a Local Traveller Accommodation Committee comprising elected representatives of the Council, Travellers, Traveller Organisations and officials of the Council. As part of the requirements of the Act the Council prepared the Traveller Accommodation Programme 2000-2005 currently being updated. This plan specifically deals with the accommodation needs of the Travelling Community. One of the policies as contained in this plan, which has a specific land use dimension, is to seek to provide, where appropriate, Traveller specific accommodation which has regard to Traveller culture.
The development plan can support and provide the land-use dimension, which will help achieve some of recommendations contained in the Traveller Accommodation Programme 2000-2005 and subsequently adopted recommendations.
Policy no. 2.8 Traveller Accommodation
• Encourage the provision of accommodation for Travellers having regard to the Traveller Accommodation Programme 2000-2005 and subsequent plans.
• Facilitate the specific accommodation needs of Travellers through land use zoning objectives.
• Prepare an environmental improvement scheme for the Mervue residential area.
• Prepare environmental improvement schemes for Claddagh, Shantalla and St. Finbarr’s Terrace Bohermore residential area.
• Prepare an environmental improvement scheme for the Henry Street/William Street West residential area.