Sustainable Urban Housing: Design Standards for Apartments

Consultation Draft Guidelines for Planning Authorities

Department of the Environment, Heritage and Local Government January 2007

Chapter 1 - Introduction
1.1 Apartments are becoming an increasingly popular form of dwelling in urban areas. There are a number of reasons for this trend, including the impact of both the urban renewal measures promoted by this Department since 1986 and of the residential density guidelines issued in 1999, as well as smaller average household sizes. 1.2 The primary aim of these draft guidelines is to promote sustainable urban housing, by ensuring that the design and layout of new apartments will provide satisfactory accommodation for a variety of household types and sizes including families with children1 - over the medium to long term. 1.3 The draft guidelines are intended to replace the Guidelines on Residential Developments in Urban Renewal Designated Tax Incentive Areas published by the Department in 1995. Those guidelines were framed in the context of Section 47 of the Finance Act 1994 which required that a house or apartment in a designated urban renewal area would not qualify for residential tax incentives unless it complied with the minimum standards set out in the guidelines. In the absence of any guidelines with wider applicability, the 1995 standards were referred to in the 1999 residential density guidelines. There is no longer any valid reason why the scope of guidelines on apartment standards should be confined to urban renewal areas. Moreover, there has been a general trend towards larger average apartment sizes over the past decade. A number of urban development plans, together with Planning Schemes in Dublin Docklands and in Adamstown in South Dublin, now specify minimum floor areas for apartments which are significantly higher than those contained in the 1995 guidelines. 1.4 Accordingly, these guidelines provide recommended minimum standards for: floor areas for different types of apartments, storage spaces, sizes for apartment balconies / patios, and room dimensions for certain rooms. 1.5 The National Economic and Social Councils report Housing in Ireland: Performance and Policy (November 2004), acknowledged that in recent years there have been very important developments in the principles, strategies most notably the National Spatial Strategy and procedures that govern spatial development and residential settlement in Ireland. In particular, NESC commended the concept of sustainable, integrated neighbourhoods.
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A family in this context refers to a household of two or more persons, where at least one person is aged under 18.

Apartment design which prioritises a good quality of life for the occupants can make a significant contribution to achieving sustainable communities and a compact urban environment. These draft guidelines form part of a suite of guidance documents outlined in this Departments Housing Policy Framework: Building Sustainable Communities (December 2005). 1.6 The focus of this guidance is on the apartment building itself and on individual units within it. In this context, it is critically important that construction works comply with all relevant requirements of the Building Regulations. Given the higher densities involved, particular attention should be paid to meeting requirements in relation to Fire Safety (Part B), Sound Insulation (Part E) and Access for People with Disabilities (Part M). The Building Regulations and associated Technical Guidance Documents can be downloaded from the Department of Environment, Heritage and Local Government website www.environ.ie. 1.7 More generally, sustainable urban housing requires a wider housing/planning policy context which will be provided in a series of inter-related guidance documents currently being prepared by the Department, including: a revision of the 1999 Social Housing Design Guidelines; new draft planning guidelines, provisionally entitled Sustainable urban housing: Planning for new residential developments. It is envisaged that these new guidelines will incorporate material from a revision of the 1999 residential density guidelines; and a new best practice handbook on urban design and housing layouts, which will illustrate how the policies set out in the planning guidelines might be implemented, with examples drawn from current practice. 1.8 Having regard to the changed circumstances now prevailing in the urban housing market, and to evolving Government policy with regard to housing, the Department commissioned Mr. Toal O Muir, an architect with extensive experience in the design of new residential developments and a former President of the Royal Institute of Architects in Ireland, to undertake a research study which would provide the evidential base for new guidelines. His detailed report2 involved a review of relevant published material, meetings with a variety of groups and individuals in both the public and private sectors, and site visits to some recently completed apartment schemes. Most of the recommended standards which follow are derived from Mr. O Muirs research study. The Department is grateful to him and to all those who participated in the study. 1.9 These guidelines are being issued as a consultative draft by the Minister for the Environment, Heritage and Local Government under Section 28 of the
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Available on the Departments website www.environ.ie

Planning and Development Act 2000. Pending finalisation of the guidelines, planning authorities are requested to have regard to the recommended standards for new apartment schemes when preparing or varying development plans and local area plans, particularly when their current plans incorporate older standards.

Chapter 2 - Recommended Internal Design Standards

2.1 The research study commissioned by the Department indicates a general need to increase the minimum floor areas as originally specified in the 1995 guidelines, particularly with a view to meeting the space and amenity needs of families who choose to live in apartments. Accordingly, the Appendix to this document outlines the recommended minimum space standards and dimensions for apartments. 2.2 However, even with these increased recommended space standards, it would not be in the interests of sustainable development if all apartments barely met those standards. Accordingly, both planning authorities and developers should take appropriate steps to ensure that some - if not all - apartments in a proposed scheme exceed the minimum standards. Development plan standards 2.3 There are different housing needs in different areas, as reflected in the housing strategies of development plans, and even within different parts of a large urban area. Planning authorities should therefore consider the feasibility of specifying, either in development plans and/or local area plans, target average floor areas to be achieved in apartment developments. This could take the form, for example, of requiring that a specified percentage of all apartment units in a proposed development of more than (say) 20 apartments should exceed 80 sq. metres. Thus, while some units might just meet the minimum size standards set out in the Appendix, other units would need to exceed those standards in order to achieve the specified average. Alternatively, smaller units might be acceptable in centrally-located developments, such as town or district centres, with larger units being sought in lower density locations. The use of target averages would allow developers and designers a certain flexibility in meeting market demand and site requirements, while providing the planning authority with a reasonable measure of control over unit sizes. The overarching aim in setting target averages is to ensure sustainable residential communities, having regard to local housing needs. 2.4 Where minimum overall apartment floor areas are recommended, the measurements should be internal wall-to-wall dimensions. The standards apply to units on one floor; duplexes should provide the additional floor area required to provide for stairways and landings in accordance with the Building Regulations (approximately 10 sq. metres). The minimum standards are intended to apply to new apartment developments; while it should be an objective to achieve such standards in refurbishment schemes, existing site/ structural configurations may require some flexibility of approach.

2.5 It is a matter for each planning authority to specify in a local area plan which mix of unit types and sizes would be appropriate in a particular development area. In doing so, it should have regard to: its development plan housing strategy3; the desirability of providing for a range of dwelling types / sizes within the development area or within a large site; the character of the area; and the capacity of existing services and facilities in the area. 2.6 However, it is recommended that not more than 10%-15% of units in any apartment scheme of (say) 20 or more units should be of the one-bedroom type (save in exceptional cases, such as student accommodation), because of their incapacity to cater for families.

Planning applications 2.7 In order that planning authorities can monitor compliance with the standards recommended in these guidelines, developers of proposed apartment schemes should be required to submit the following data regarding the number and size of apartment units (for each building) with planning applications: a) Total number of proposed apartments b) Floor/storage area data, in a format similar to the following table: Unit type (No. of bedrooms/ bed spaces) 1- bedroom / 2 persons 2-bedroom / 4 persons Proposed no. of units 5 20 Floor area of each unit 50 sq m 76 sq m Storage area provided with each unit4 3.5 sq m 8 sq m

Note: Figures shown are illustrative only

2.8 It would also be helpful if a 1:100 scale, dimensioned floor plan drawing were submitted for each apartment type (one-, two- or three-bedrooms, duplexes etc.), on which typical furniture layouts including radiators were indicated. For example, if an apartment is designed to accommodate 5 people, the layout of living/dining rooms should demonstrate that adequate seating including visitor seating - can be accommodated. Storage areas and private balconies should be indicated (but not included as part of room measurements); again, the storage areas should be capable of accommodating bulky items, such as a childs buggy.
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Section 94(3)(c) of the 2000 Planning and Development Act requires that a housing strategy shall take into account the need to ensure that a mixture of house types and sizes is developed to reasonably match the requirements of the different categories of households, as may be determined by the planning authority, and including the special requirements of elderly persons and persons with disabilities. 4 See chapter 3 for storage requirements and definitions.

2.9 Applicants should also document how other development plan quantitative standards such as the provision of communal open space and parking spaces are being complied with as part of the proposed development. 2.10 Where applications are submitted in respect of proposed changes to previously permitted apartment developments, applicants should demonstrate how such changes affect the overall scheme, e.g. how the target average size of unit is being complied with as a result of the revised layout.

Chapter 3 - Storage areas and communal facilities

General storage 3.1 In addition to the recommended minimum room floor areas as outlined in the Appendix, provision should also be made for general storage, particularly for bulky items not in daily use (e.g. suitcases, sports gear, winter clothing etc.). 3.2 General storage should be additional to minimum kitchen presses and bedroom furniture, but may be partly provided in these rooms. A store off a hallway or landing will facilitate access. As a rule, no individual storage room should exceed 3.5 sq metres. Some apartment schemes may provide storage for bulky items or for bicycles outside individual units (e.g. at basement level), and this may satisfy part of the general storage requirement. Refuse storage 3.3 Adequate provision needs to be made, either outside the apartment building or at basement level, for the storage and collection of waste materials, segregated in accordance with the requirements of the local authority. If located outside, appropriate screening should be provided. Shared circulation areas 3.4 Shared circulation areas should be well lit, preferably with some natural light and ventilation. The apartment building should be navigable by all users, including people with buggies. Internal corridors should be kept as short as possible, with good visibility along their length. Acoustic wall and ceiling treatments should be considered. Entrances to apartment buildings should be clearly identified and welcoming. Lifts 3.5 Lifts should be provided for all apartment blocks of three or more storeys. There is a need to provide two lifts where the apartment building has more than six storeys and serves more than 60 apartments, where it would be unreasonable to expect people to climb the stairs in the event of a lift breakdown. Lifts should provide access to basement car parks. Service ducts 3.6 Service ducts serving two or more apartments should as far as practicable be accessible from common circulation areas to facilitate maintenance. Running services overhead, particularly above the ceiling of a different unit, should be avoided.

Chapter 4 - Private open spaces and balconies

Introduction 4.1 The provision of adequate and well-designed private open space for each apartment is crucial in meeting the amenity needs of residents; in particular, usable outdoor space is a high priority for families. Private open space can be provided in the form of rear gardens or patios for ground floor units, and balconies at upper levels. It is important that in the latter case adequate semiprivate or communal open space, in the form of landscaped areas, should also be provided. Roof gardens offer only limited potential in this regard, due to climatic and safety factors, and should not form the major share of such space. 4.2 Private open space at ground floor level should receive some sunlight, but also needs some form of screening to ensure privacy. Balconies 4.3 Balconies (or glass-screened winter gardens) need to be of a certain minimum width to be useful from an amenity viewpoint, being able to accommodate chairs and a small table. A minimum width of 1.5 metres for one-bedroom units, and 1.8 metres for apartments with 2 or more bedrooms, is recommended, generally extending for the full length of the external living room wall. While wider balconies might be desirable in certain cases, this has to be balanced against the need to avoid overshadowing the living room. 4.4 Site conditions, such as elevations facing north or overlooking busy streets, or tall buildings, may diminish the amenity value of balconies. Balconies may not be appropriate in historic areas. In such cases, it will be the designers responsibility to provide some form of compensating amenity for the occupants. This might take the form, for instance, of above-average sized living rooms and generous landscaped communal open spaces. 4.5 Balustrading to balconies should be safe for children. Vertical privacy screens should generally be provided between adjoining balconies.

Chapter 5 Overall design issues

Introduction 5.1 While, as has already been stated5, proposed new planning guidelines will address the wider planning issues involved in new residential developments, there are a number of specific issues which need to be considered at the design stage of individual apartments. Facilities for children 5.2 As a general principle, all apartments with two or more bedrooms should be designed with the needs of children in mind. In the case of larger schemes, the 2001 planning guidelines on childcare facilities6 recommend the provision of one child-care facility (equivalent to a minimum of 20 child places) for every 75 dwelling units. However, the threshold for provision should be established having regard to the existing geographical distribution of childcare facilities and the emerging demographic profile of areas, in consultation with [any] local childcare committees. Where a lower level of provision of crche facilities is indicated, consideration might be given instead to the provision of indoor play facilities for young children in larger schemes. 5.3 The recreational needs of children need to be planned for from the outset. Experience in Ireland and elsewhere has shown that children will play everywhere; therefore, as far as possible, their safety needs to be taken into consideration and protected throughout the entire site, particularly in terms of safe access to larger communal or public open spaces7. Their play needs around the apartment building should be catered for: within the private open space associated with individual apartments (see chapter 4); within small play spaces (about 85 100 sq. metres) for the specific needs of toddlers and children up to the age of six, with suitable play equipment, seating for parents/guardians, and within sight of the apartment building, in a scheme of 25 or more units; and within play areas (200400 sq. metres) for older children and young teenagers, in a scheme of 150 or more apartments. The perimeter block with a central communal open space is particularly appropriate for childrens play, especially if access from the street is controlled. The landscaping and orientation of play areas can contribute significantly to their amenity value.
5 6 7

Para. 1.6 above Available on www.environ.ie The issue of public open space will be addressed as part of the proposed review of the 1999 residential density guidelines.

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5.4 Higher density housing, particularly apartment schemes, require attention at the design and construction stages to prevent undue noise transmission between units, as this can be a common source of nuisance. While this is primarily a matter for the Building Regulations, childrens requirements for study space also need to be considered at the design stage. If the second bedroom in a two-bedroom unit is not large enough to be also used for study purposes, a dining room separate from the living room may be required as a quiet area. Daylight and sunlight 5.5 The amount of sunlight reaching an apartment significantly affects the amenity of the occupants. Dual-aspect apartments are likely to maximise the availability of sunlight, but this solution may not always be possible (e.g. with corner units). Single-aspect apartments should allow the main living rooms to face south or west; north-facing units should be excluded. Particular care is needed where windows are located on lower floors which may be overshadowed by adjoining buildings. The orientation of buildings within the site should maximise energy efficiency. Access for people with disabilities 5.6 The aim of ensuring effective access for all should be addressed by planning authorities in dealing with planning applications for residential development, particularly in relation to the approach to apartment buildings. Access for people with disabilities is governed by Part M of the Building Regulations. However, a survey by the National Disability Authority8 showed that in practice difficulties are frequently caused for wheelchair users because of stepped thresholds at entrances and a lack of dished pavements. Planning authorities should therefore remind designers about such issues at the pre-application stage. Ease of access can benefit the elderly and households with young children, as well as those with physical disabilities.

A review of the effectiveness of Part M of the Building Regulations (2005)

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Appendix Recommended Minimum Floor Areas and Standards Minimum overall apartment floor areas
One bedroom Two bedroom / 3 persons Two bedroom / 4 persons Three bedrooms / 5 persons
* Figures in brackets refer to 1995 guidelines

45 sq m 63 sq m 73 sq m 86 sq m

(38 sq m)* (55 sq m)* (not given)* (70 sq m)*

Minimum aggregate floor areas for living/dining/kitchen rooms, and minimum widths for the main living/dining rooms
Apartment type One bedroom Two bed / 3 persons Two bed / 4 persons Three bedrooms Width of living/dining room 3.3 m 3.6 m 3.6 m 3.8 m Aggregate floor area of living / dining / kitchen area* 23 sq m 28 sq m

30 sq m 34 sq m

* Note: An enclosed (separate) kitchen should have a minimum floor area of 6.5 sq. metres. In most cases, the kitchen should have an external window.

Minimum bedroom floor areas/widths

Type Single bedroom Double bedroom Twin bedroom Minimum width 2.1 m 2.8 m 2.8 m Minimum floor area 7.1 sq m 11.4 sq m 13 sq m

* Note: Minimum floor areas exclude built-in storage presses.

Minimum aggregate bedroom floor areas

One bedroom Two bedroom / 3 persons Two bedroom / 4 persons Three bedrooms / 5 persons 11.4 sq m 11.4 + 7.1 sq m = 18.5 sq m 11.4 + 13 sq m = 24.4 sq m 11.4 + 13 + 7.1 sq m = 31.5 sq m

Minimum storage space requirements

One bedroom Two bedrooms / 3 persons Two bedrooms / 4 persons Three or more bedrooms 3 sq m 5 sq m 7 sq m 9 sq m

Minimum floor areas for main apartment balconies

One bedroom Two bedroom Three bedroom 5 sq m 7 sq m 9 sq m

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