Banbridge Newry & Mourne Plan 2015

Strategic Plan Framework: Housing

Housing continues to represent the greatest pressure on the land resource throughout Northern Ireland and in the Banbridge and Newry and Mourne Districts. It is likely to continue to be the most widespread urban land-use change for many years to come. Need for additional housing land is created by the formation of new households through natural increase in the population, net inward migration and the trend to smaller household sizes. That need includes variety in dwelling size, type and tenure to meet the particular requirements of groups such as the elderly, people with limited incomes and people with disabilities.

Regional Policy Context

The RDS sets policy directions for the provision of housing that aim to deliver development in a more sustainable manner, and it provides a number of SPGs and measures for housing development throughout Northern Ireland that recognise the need to:

• manage housing growth in response to changing housing need (SPG-HOU 1);
• direct and manage future housing growth to achieve more sustainable patterns of residential development (SPG-HOU 2);
• set Housing Growth Indicators to guide the distribution of housing in the Region over the period to 2015, through the development plan process in accordance with the Spatial Development Strategy (SPG-HOU 3);
• promote a drive to provide more housing within existing urban areas (SPG-HOU 4);
• encourage an increase in the density of urban housing appropriate in scale and design to the cities and towns of Northern Ireland (SPG-HOU 5);
• encourage the development of balanced local communities (SPG- HOU 6);
• create and sustain a living countryside with a high quality of life for all its residents (SPG-RN1 2); and
• support the network of service centres based on main towns, small towns and villages in Rural Northern Ireland (SPG-RNI 3).

Within this context, the RDS emphasises that the development plan process should adopt a sequential approach to the allocation of land for housing in cities and towns. This involves using a search sequence that focuses firstly on the re-use of previously developed land and buildings informed by capacity studies, and consideration of previously undeveloped land within the existing urban area, before deciding the location and scale of settlement extensions.

In accordance with SPG - HOU 3, the RDS identifies a regional housing need for the period 31 December 1998 to 31 December 2015 and allocates this growth to the Belfast Metropolitan Area districts and to each of the 20 non metropolitan district council areas by means of Housing Growth Indicators (HGIs). The RDS Review of Housing Figures and the Response by DRD to the Report of the Independent Panel following the Public Examination uplifted the forecast regional housing need from 160,000 to 208,000. The RDS Review allocates 6,000 and 12,250 housing units as an adjusted HGI to Banbridge and Newry and Mourne Districts respectively.

SPG - HOU 1 sets down an evaluation framework which is intended as an aid for the Plan in the allocation of housing growth to the various settlements within each District in the Plan Area. The framework consists of a series of tests and an assessment against each of these is made in respect of each city, town and village.

Details of the housing allocation process, urban capacity studies and urban footprints are contained in the Population and Housing Technical Supplement.

In addition to the RDS, prevailing regional policy for housing development is currently contained in a number of relevant PPSs and in PSRNI.

PPS 12 - Housing in Settlements applies to all residential development proposals within cities, towns, villages and small settlements in Northern Ireland. The main purpose of this PPS is to define the processes and policies in relation to housing in settlements that will meet the key objectives of the RDS. This includes managing housing growth and distribution, supporting urban renaissance and achieving balanced communities.

PPS 7 - Quality Residential Environments applies to all new residential development proposals with the exception of single dwellings in the countryside. It sets out the Department's regional planning policies for achieving quality in the design and layout of new residential developments. It embodies the Government's commitment to sustainable development and the Quality Initiative.

Draft PPS 14 - Sustainable Development in the Countryside sets out regional planning policies for development in the countryside and embodies the Government's commitment to sustainable development.

Supplementary planning guidance for residential development is contained in 'Creating Places - Achieving Quality in Residential Development' (May, 2000). It is the principle guide for use by prospective developers in the design of all new housing areas.

In addition, DCAN 8: Housing in Existing Urban Areas, will be material to the determination of planning applications for small unit housing within existing urban areas.

Land for Housing

Sites in the city, towns and villages with a capacity of less than 10 dwelling units, and land within the small settlements, are not normally specifically zoned for housing. However, an exception is made where a social housing need has been identified. An unallocated residual allowance is also made for dwellings in the open countryside.

Full details of the housing allocation process are set out in the Population and Housing Technical Supplement.

In view of the amount of committed land, the level of allocation to the towns and the need to ensure choice and an equitable distribution of housing land, it is considered inappropriate to phase zoned housing land.

Houses built from 31 December 1998 to 1 August 2003

Housing units constructed throughout the Plan Area between 31 December 1998 and the Plan base date of 1 August 2003, are included in the overall figures for housing yield since this period falls within the full operational period of the provisions of the RDS. The Population and Housing Technical Supplement provides details of the units constructed within the designated settlements during this period.

Land with extant planning approval for housing

There is a significant amount of undeveloped land with extant planning approval for housing in the designated settlements which is considered as committed land. Land with extant planning approval contributes to the potential supply of housing land. Formal zonings in the city, towns and villages include sites where there is:

• an approved yield of 10 or more dwellings; or
• an unspecified yield, but with potential for 10 or more dwellings.

The Population and Housing Technical Supplement provides details of all land with extant planning approval within the designated settlements.

Windfall Sites

Windfall development is potential future housing development on land not designated for housing. It can arise, for example, as a result of plot subdivision or property conversion and can contribute to the housing land supply over the Plan period. Accordingly, past trends and broad-based survey techniques have been used to estimate the potential level of windfall development that might occur during the Plan period; this has been taken into account in the housing allocation process. The implications of densities and yields achieved in practice will be considered at the time of the mid term Plan review ². The Population and Housing Technical Supplement provides an estimate of windfall for each of the designated settlements.

Land within Urban Footprints

The RDS aims to provide an increased share of future residential development within the existing urban footprint, to reduce greenfield housing extensions and to encourage compact urban forms, in order to promote sustainable forms of development. The RDS states that targets for individual cities and towns will be set through the development plan process.

These targets were set for the city and each town in the Plan Area using a sequential approach informed by urban capacity studies and taking account of local circumstances. The estimated proportions of housing development likely to occur within the urban footprints of the city and towns in the Plan Area are detailed in Table 1 below.

Table 1: Estimated Proportion of Housing Development within the Urban Footprint

The Population and Housing Technical Supplement provides details of estimated yields for sites within the city, towns and villages. The higher anticipated yields in terms of units constructed on some sites within the urban footprint reflects the higher densities expected on these compared to greenfield sites.

Site Densities

Site densities are specified in the key site requirements in Volumes 2 and 3 of the Plan in line with prevailing regional policy and in response to specific site circumstances. A minimum site density is specified in the key site requirements for urban capacity sites and greenfield sites within the city, towns and villages. This is to ensure the optimum use of land and to accommodate the housing allocation identified for each settlement in the Plan.

A maximum site density is also stipulated for greenfield sites within the city and towns and on greenfield sites beyond village cores. This is to ensure that greenfield sites are not developed to excess at the expense of urban capacity lands or lands within the core areas of villages. It will also minimise the potential for significant divergence between the Plan housing allocation framework and the RDS strategic objectives. Development will be acceptable within the specified density range. A maximum density is not set for urban capacity sites or sites within the core areas of villages. The implications of densities and yields will be considered at the time of the mid term Plan review.

Housing Needs Assessment

In accordance with PPS 12 - Housing in Settlements, the Northern Ireland Housing Executive (NIHE) has prepared a Housing Needs Assessment (HNA) in relation to identified areas of the housing market within the Banbridge and Newry and Mourne District Council areas for the period up to 2012. These include social housing, affordable housing, supported housing, travellers accommodation, regeneration and second homes. The findings of the HNA have been taken into consideration in the preparation of the Plan.

The HNA is contained within the Population and Housing Technical Supplement.

Social Housing

The Plan makes provision to meet social housing need as it arises and as identified in the HNA. The Plan has taken account of social housing need when designating development limits and zoning land including the use of key site requirements for the provision of a minimum number of social housing units on some zoned development sites. Where an identified need has not been accommodated through the identification of specific land, it is envisaged that it will be met through the development control process.

The specific sites identified to meet social housing need have been agreed with NIHE. Some of the sites may be in NIHE ownership and some may already be committed for social housing. The methodology used to select the sites is set out in the Population and Housing Technical Supplement.

Affordable Housing

PPS 12 - Housing in Settlements states that the availability of affordable housing is one part of the drive to create mixed and inclusive communities. The planning system has a role to play in creating communities with a wider range of housing in terms of tenure, size, type and affordability.

NIHE carries out a regular assessment of low cost affordable housing and compiles an affordability index which identifies the level of affordability in Northern Ireland and in the Plan Area. It found that 2003, Banbridge District had a sufficient supply of affordable housing while 14% of the owner occupied stock was assessed as affordable in Newry and Mourne District, against a Northern Ireland average of 29%.

In the light of these findings, it is not considered appropriate at present to impose an arbitrary level of affordable housing to be delivered by the private market. Prevailing regional planning policies aimed at focusing development at higher densities in urban areas, promoting mixed housing developments to accommodate balanced communities and promoting improved infrastructure and communications, should be sufficent to make a positive contribution on affordability.

Supported Housing

The term supported housing relates to accommodation with complementary housing support to cater for people with a range of specific needs. The HNA has identified a need for 102 units.

The particular locational requirements for supported housing are dependent upon the occupier type. Sites where supported housing schemes have already been programmed by NIHE, have been zoned in Banbridge and Bessbrook as detailed in Volumes 2 and 3 of the Plan. To allow maximum flexibility, the additional identified need has not been accommodated through the identification of specific land and it is envisaged that it will be met through the development control process. Supported housing schemes may be acceptable on land zoned for housing, mixed use or as a development opportunity site.

Regeneration

NIHE plays a key role in identifying regeneration needs within the housing market. It has the power to introduce a series of measures to address a range of issues from unfit housing to neighbourhood renewal. Consideration will also be given to regeneration initiatives from other providers, such as the neighbourhood renewal strategy managed by the Department for Social Development (DSD). Such initiatives can impact and influence the wider affordable and social housing market.

There are no particular problems with hard to let estates or void dwellings in Banbridge District. Consequently, NIHE has no major plans in relation to changes in land use. NIHE will continue to work closely with Banbridge District Council through a multi agency forum to explore the deliverability of regeneration initiatives identified through action plans for Dromore, Gilford and Rathfriland town centres.

In Newry and Mourne District, a number of areas in Newry City identified as suffering from the most severe multiple deprivation have been chosen for priority treatment under the DSD "People and Place Strategy". These include large parts of the central and western area of the City such as Derrybeg, Carnagat, Daisy Hill and Mourneview Park estates which have been identified for funding under this strategy.

NIHE are also pursuing a redevelopment scheme in the Canal Street area on which work has commenced. It is also intended that the blocks of flats that are to be retained at North Street will be refurbished.

Travellers

Within the context of meeting local housing need and ensuring balanced communities, it is important to deal with the needs of the Travelling Community.

The HNA for the Banbridge and Newry and Mourne Districts has identified a need to provide a group housing scheme with additional facilities and amenities, specifically designed to accommodate the extended families of Travellers on a permanent basis. A site for this group housing scheme has been zoned in Bessbrook as detailed in Volume 3 of the Plan.

The HNA has also identified a need for one transit site where Travellers may park caravans on a temporary basis and where electricity, water and sewerage are provided. No site has been identified to meet this need and it is envisaged that it will be accommodated through the development control process.

Second Homes

Pressure from second home development was raised as an issue as part of the public participation process leading to the formulation of the Plan Proposals. The total number of second homes in the Plan Area as declared in the 2001 census is 45 in Banbridge district and 266 in Newry and Mourne.

Although the six Mourne coastal wards account for 187 of these second dwellings, this is relatively small compared to other council areas in Northern Ireland. However, the Report of the Panel on the Review of HGIs acknowledged the pressure for second homes in the Newry and Mourne District. The Panel suggested a redistribution and indicated that an adjustment be made to the HGI for the BMA to allocate part of its share of second homes to Newry and Mourne District. The revised HGIs have taken account of this.

Protected Housing Areas in City and Town Centres

The Department will resist the spread of commercial uses into areas which have a useful longer term residential life. They provide a valuable housing stock and are homes for established communities which contribute to the variety and vitality of life in the city / town centre.

Protected Housing Areas are designated in Dromore, Rathfriland and Newry City as identified in Volumes 2 and 3 of the Plan.

²It is expected that the mid term Plan review will take place in 2010.

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