Better design will be vital as number of homes per acre grows

Higher residential densities could greatly increase the availability of housing, particularly in the Dublin area, according to the Bacon Report. However, it emphasises that this will require better design standards than the existing suburban norm.

Though the residential land bank is being eroded faster than anticipated, the report says existing zoned and serviced lands would meet demand for the next three to five years - and this outlook would improve with higher densities.

It points out that Irish residential densities - usually between six and 10 houses per acre - are low by European standards. Housing estates generally consist of detached or semi-detached houses with room for car parking in front and a lot of open space.

Higher densities, it says, make better use of existing infrastructure, provide a more economic operating framework for public transport, reduce energy needs and carbon monoxide emissions and provide the market demand to sustain shopping and services.

The report suggests that there is potential for increasing densities in the Dublin area if Dun Laoghaire-Rathdown and Fingal county councils adopted the 13 houses per acre density which is being applied in South Dublin to the lands rezoned in its new draft plan.

Under current density standards, it estimates that a total of 79,314 new houses could be built on residential zoned land in the three areas. But if densities were increased to 13 units per acre, the figure would rise to 91,225 - almost 12,000 additional units.

In moving towards increased densities, the report emphasises that design standards "higher than those required heretofore will be essential." It notes that Cork County Council takes "architectural expertise" into account in assessing major schemes.

It also stresses that ancillary facilities, such as schools and amenities, need to be upgraded.

"It should be recognised also that the traditional preference for semi-detached suburban estate living is being offset to a degree by a preference on the part of an increasing proportion of buyers for the social and economic convenience associated with city locations."

The report notes that the Department of the Environment's sustainable development strategy, published last April, said it would promote higher residential densities in redeveloping "brownfield" sites and areas close to town centres and public transport.

It recommends that the Minister should use his powers to issue a policy directive to planning authorities to adopt a more "proactive" approach towards higher densities, adding that this would assist An Bord Pleanala in its consideration of appeals.

The report concludes that, while no maximum density limits should be set, the criteria for assessing housing schemes - height, private open space, car parking, design quality, impact on existing houses - should be "clearly enunciated" by planning authorities.

The Minister for the Environment, Mr Dempsey, said he intended to issue new guidelines on residential densities to planning authorities. In the meantime, subject to safeguards, they would be advised to "promote increased densities in appropriate locations."