I m p rov i n g t h e Q u a l i t y o f

Housing Layouts

in Northern Ireland

Improving the Quality of Housing Layouts in

Northern Ireland
is sponsored by the Planning Service of the

The report is based on discussions,

Department of the Environment, the Roads

workshops and fieldwork with relevant

Service of the Department for Regional

professionals in Northern Ireland. It also

Development, the Northern Ireland Housing

draws on seminars and other work related

Executive, and the Construction Employers'

to `Housing Layouts - Lifting the Quality'

Federation of Northern Ireland. The

published by DETR in England in 1998.

recommendations in this report are

endorsed by all four sponsoring bodies.

Improving the Quality of Housing Layouts in Northern Ireland

Improving the Quality of Housing Layouts in Northern Ireland

A publication jointly by CEF, NIHE, Roads Service and Planning Service

Foreword
Since the introduction of the Quality Initiative to Northern Ireland, developers, urban designers, architects,
landscape architects, planners and road engineers have collectively made considerable progress towards
improving the quality of new residential environments. There is now common understanding that we need to
adopt a more holistic design-led approach.
It is a challenging task to create from scratch a residential environment that will mature into a place that is
distinctive, attractive, and safe. We have a good tradition of quality in the design and space provided within
the new houses we build in Northern Ireland. But can the same always be said of the streets and places we
create? How often have we heard people deplore the loss of woodland or other familiar features in the
landscape which it is felt could have been retained? How often do we hear calls for the return of tree-lined
avenues and play areas, and for some relief from the monotony of rows of same or similar houses?
To meet these criticisms, it is necessary from the very start of the process to have common purpose - the
creation of quality places. Only when all professionals involved in this process are prepared to combine their
various skills, in a spirit of co-operation and partnership, can we hope to create places future generations will
cherish.
The production of this document is heartening evidence of the will to work together and strive for the highest
possible standards in the external residential environments. We endorse fully its publication at what we
believe to be an important stage in the process - just as new guidance for design professionals on this topic
is being brought forward.
We are in a position to harness the imagination, vision, abilities and integrity of all involved in the
development process. As we enter a new century, let us work positively towards creating sustainable quality
environments that will contribute to a better life for all - now and in the future.

Improving the Quality of Housing Layouts in Northern Ireland

Preface

A few examples of the best in

Northern Irelands housing, at
Carnlough, Balmoral Avenue,
Belfast, and Hillsborough.

The Governments policy is to

quality of the scheme is as important

Developers and designers have

improve the quality of new housing

as zoning when assessing

endorsed the objectives of the

developments. Improving the quality

development proposals. The various

Quality Initiative.

needs the help and cooperation of

measures and advisory documents

everyone involved in creating new

produced since January 1996 are

It is their imagination and creativity

residential environments. For their

components of what has become

that can achieve significant

part, the Department of the

known as the Quality Initiative. The

improvements in the housing

Environment and the Department for

Quality Initiative is the basis of the

environment. Several of the

Regional Development are reviewing

standards expected of new housing

examples of housing in Northern

their advice and guidance to assist

schemes. It was made clear in

Ireland that are illustrated in this

developers and designers.

February 1999 that it applies to all

document show that they do have

housing throughout Northern Ireland

the ability to achieve better quality.

This process began with a ministerial

including proposals for land that is

announcement on 26 January 1996.

already zoned.

Everyone accepts the need for the

It is intended that this document

should stimulate everyone involved

proper planning of growth through

The Departments are pleased that

in the development process to give

the zoning of development land.

the Quality Initiative is supported by

greater attention to design issues.

However, the announcement

the Construction Employers

Together we can succeed in

established the principle that zoning

Federation and the Northern Ireland

improving the quality of the places

is only the first step and that the

Housing Executive.

where people will live.

Improving the Quality of Housing Layouts in Northern Ireland

Public open space in a new

development near Bishops Stortford,
England, by Countryside Properties.

Creating new homes in attractive

The responsibility for creating new

Good design comes from achieving a

surroundings is a most important

housing environments is shared

balanced response to all of the factors

design task. The quality of our

between development companies,

influencing a housing scheme. It is not

home environment shapes our

their designers and public agencies,

easy to design an attractive, varied

attitude to life. For example, it is the

especially the Planning Service and

and safe housing environment. Nor is

environment in which children spend

the Roads Service. At present, too

it easy to design in a way that takes

most of their free time. The home

many of the people involved in

account of the natural attributes and

and garden is the daily working

housing design concentrate on their

constraints of the site, that draws on

environment for around half of the

own priorities and their personal area

the distinctive characteristics of its

adult population.

of responsibility. This means that

landscape and townscape

housing layouts are often shaped by

surroundings, that appeals to

The visual quality of new housing

many separate technical decisions,

customers, and that makes profits

developments also has an impact on

without a clear vision of an overall

for developers and landowners at

existing communities. It is important

design concept. This does not

the same time. If it was easy, such

to try to respect and enhance the

encourage anyone to seek an

developments would be commonplace

environment for existing residents,

equitable shared solution.

rather than rare exceptions.

as well as new ones.

Improving the Quality of Housing Layouts in Northern Ireland

Introduction

The best new housing in Northern

Ireland achieves high design
standards, but the Quality Initiative
encourages all new housing to
match these excellent examples.
From top left, clockwise: high quality
design in Bushmills, Eglinton
and Newcastle.

In the past, dialogue between

have had a detrimental impact on

or adding expense. High quality

developers and public authorities has

their surroundings. There are only a

planting will be only a small item in a

concentrated on the scale of housing

few developments of outstanding

development budget but it has a

land allocation or attempts to resolve

quality. This cannot be the result of a

significant impact. A good designer

problems on specific sites. This has

conscious decision to reject good

may even produce more cost

led to the perception that developers

design. It is more likely that the

effective schemes.

and authorities are on opposing

question of quality has never been

sides, yet both are in agreement

fully considered in a process that has

Developers have put much effort into

about their desire to lift the quality of

concentrated on cost saving and

providing their customers with well

housing layouts. There are some

satisfying technical requirements.

built and efficient houses. Many are

now acknowledging that design

differences in perceptions, and in the

detail of how that improved quality

It remains a popular myth that good

improvements to their layouts can

might be delivered, but there is

design is inherently expensive, yet

make their projects more acceptable

fundamental agreement.

some aspects of good design can be

to the community and more

achieved with little or no additional

appealing to their customers. The

In Northern Ireland, as elsewhere,

costs. Varying the spaces in a layout

criticism of new housing layouts is

there are many examples of poor

to create interest and contrasts can

not just about taste and style.

design where new housing estates

be achieved without reducing density

Improving the Quality of Housing Layouts in Northern Ireland

Urban redevelopment that takes the form of a street of houses bringing appropriate scale, detailing and
quality to this visually important site in Londonderry.

It is that many developments have no

Where new housing is on reclaimed

Some new housing will be added

overall design concept, that they

urban sites it will face many physical

to villages and small country

are merely the cumulative effect of

and market constraints. In these

towns. Traditional building types,

meeting technical and functional

difficult situations, drawing design

materials and settlement forms are

needs at costs within the

ideas from local character will help

an important part of the special

developers budget.

to mould the new housing into its

character of Northern Irelands

setting and enhance local

rural areas. In Great Britain, there

Typical housing estates are

distinctiveness. Developers and

are growing numbers of new

criticised for their disregard of local

planners have a chance to

developments that respect their

identity, ignoring the character of

demonstrate that they can be

context and meet the need for rural

nearby buildings and their

sufficiently imaginative to make the

housing without undermining the

relationship with neighbouring

most of these important

local sense of place. All rural housing

development. They often neglect

opportunities. Successful new urban

schemes should seek to follow these

their impact on the wider landscape

places have been enthusiastically

good examples, sustaining traditions

and opportunities to make

received by house buyers. The best

rather than bringing inappropriate

environmental improvements are

examples offer an encouraging

suburban layouts and house types

often wasted.

model for future projects.

into rural locations.

Improving the Quality of Housing Layouts in Northern Ireland

Traditional spaces have variety, such as avenues

along main roads or a courtyard round a green.
Tree-lined streets can mature into a charming
suburban environment.

Many new housing layouts will be at

townscape setting. This involves the

culs-de-sac, but avenues, squares,

the suburban edge of settlements,

obvious, such as using natural

crescents, mews, courtyards, lanes,

often related to recent housing

features in public spaces, especially

alleys, greens, and all the other

schemes in order to make effective

trees and other established planting,

words that our language offers to

use of infrastructure investments.

and the less obvious such as using

describe the traditional variety

The surrounding development may

some local building traditions, public

of spaces.

be less significant for these designs,

art or ensuring that a view is

but there is still the site form and

retained. In some suburban cases,

The creativity of roads engineers is

landscape to consider and other

existing local style may be an

critical in achieving diverse spaces

design clues in the distinctive

important influence on the new

that meet technical and safety

features of the wider area. This

development. Sometimes, a bold

requirements without imposing

means that suburban housing in

design might be a welcome contrast.

stereotyped solutions.

Northern Ireland should look as if it

The most criticised designs are those

belongs here, and not appear to be a

that introduce housing which could

This search for variety should also

transplant from the edges of London

be in any suburb. A well-designed

extend to boundary treatments

or Birmingham.

housing layout, especially on

where walls, fences, railings and

suburban sites, should provide

hedges can be used to emphasise

Identity and distinctiveness are

variety and contrasts. The spaces

the shape of spaces and introduce

achieved by making the most of the

between the houses should not then

neighbourhood identity. New planting

site and its landscape and

be mere standard streets and

can strengthen these ideas, with

Improving the Quality of Housing Layouts in Northern Ireland

Variety in house types and boundaries, using existing trees, and

careful attention to the best characteristics of established
housing in the area creates a place of quality that will quickly
mature. (Castle Park, Omagh).

shrubs and trees helping to define

that the houses relate to each other.

and gates. Unrelieved use of a few

spaces and enclosure, and species

Standard house types are usually

standard house types cannot achieve

selection reinforcing local identity. All

designed to fit in straight rows on flat

the variety that is an essential aspect

of these measures help the legibility

sites. They do not easily turn corners,

of well designed housing. Developers

of the housing environment, making

enclose spaces or adapt to level

are cautious about the risks in using

my place special and different.

changes. This makes it difficult for

many different house types but some

designers to make the best of a site.

have shown that attractive and cost

Developers will need to use the best

effective schemes can be achieved

urban design skills to ensure that

More imaginative house types could

by using variants on standard

they take every opportunity to create

introduce greater variety. For

designs. Indeed some volume house

variety, contrasts and identity in their

example, spaces could be fitted

builders in Great Britain are now

design concepts or master-plans and

together and enclosed with terraces

turning away from their standard

as detailed layouts are prepared.

or outbuildings. Some house types

pattern books.

could even be detached in generous

The aim is to create more diversity in

gardens while others could be more

Good detailing and materials are

the houses themselves. This can not

modest yet grouped together to

important, but they will not turn bad

be achieved through the superficial

make a lively street scene.

spaces into good ones. The way in

treatment of elevations, with applied

Additionally, certain houses could be

which the layout and massing of

decoration or random changes of

tall to create a landmark while some

development fits the site is the key

colour and materials, but in the ways

may be hidden away behind walls

to good quality development.

Improving the Quality of Housing Layouts in Northern Ireland

A well-mannered
street of houses shows
respect for tradition,
and the houses
achieve quality
without high costs or
superficial decoration.
This sympathetic
development is a
sensitive contribution
to Carnlough (Herbert
Street) although it
could have been
improved with better
detailing of boundaries
and retaining walls.

Achieving sustainable development

use of recycled materials. In cases

informal play, as well as creating

is also part of good design.

where development inevitably

wildlife corridors and contributing to

Sustainability is an holistic concept,

involves some habitat loss, this

habitat conservation.

in which the benefits to be gained

could be offset by providing greater

through development must be

habitat improvements nearby. There

Housing layouts in Northern Ireland

considered against potential

is no standard solution or checklist.

have not provided either the quantity

negative impacts.

Each site will present its own

or the quality of open space that is

opportunities.

commonly seen in Great Britain or the

Sustainability requires designers to

Republic of Ireland. New policy

identify opportunities for new

Public open space is one of the key

guidance will seek to remedy this

housing to bring with it some

elements of good housing layout.

shortfall, but the introduction of new

environmental benefits. These will

Well designed open spaces are the

standards is only the first step towards

certainly include incentives for

easiest way to create variety and

a significant improvement in the

people to walk and cycle or catch a

contrasts, and they provide a visual

setting of our new homes. Designers

bus rather than using their car. It

structure for the layout. With proper

and developers will need to respond

may encourage greater energy

maintenance arrangements, they can

with a more positive attitude to the

efficiency in house design,

also be a valuable resource for

environmmental and commercial

orientation for solar gain or more

passive recreation and childrens

benefits of better open space.

Improving the Quality of Housing Layouts in Northern Ireland

Landscaping

Existing trees are vulnerable in

private land. Mature trees were
felled at a site in Dunadry (above).
Better to incorporate them into
public space, as in the example at
Fort Green, Antrim (below).
We provide the highest quality planting
to attract industrialists (Antrim Business Park
above). Should we not expect the same quality
in our home environment?

There will be a general presumption

make way for inappropriate

of identity. Too often planting is only

that existing trees and hedgerows,

non-native species.

a token gesture, scattering a few

and other natural features, will be

trees in front gardens or adding

incorporated into the layout concept

New planting schemes should be

banks of ornamental planting to the

as part of the strategic open space

used to reinforce existing vegetation.

site entrance. This is superficial with

and planting that forms the structure

By selecting native plants, the

little thought given to how planting

of the design. Wherever possible,

landscaping in housing areas can

can reinforce the spatial structure of

these features should be in public

create a much richer and more

the layout or how it will be used and

ownership and related to footpaths,

diverse habitat than exists on

how it will be cared for. The Quality

cycleways and open space areas.

farmed land, encouraging a healthier

Initiative approach to housing design

Incorporating mature planting into

wildlife community.

means that developers and designers

public areas is the most effective

will need to use open space, hard

way of counteracting the inevitable

Designing open space as an integral

landscaping and planting ideas to

bareness of the early years of a

part of every housing scheme

shape their development concept.

housing development. When mature

contributes to creating a sustainable,

trees and hedgerows are left in

attractive and varied environment. It

private hands it is too easy for them

has both recreational and social

to be cut down and destroyed to

value, and helps to establish a sense

Improving the Quality of Housing Layouts in Northern Ireland

Well-designed planting and hard

landscaping forms a structure
which individual gardeners can
develop with their own ideas. In
our climate, the right plants can
quickly give new housing a sense
of mature quality.

New layouts will be expected to

as house types on corner plots that

Developers, planners, designers and

make greater use of planting,

need to have windows that overlook

roads engineers are broadly pursuing

especially in public areas, to create a

side gardens.

the same goal, so why is it so

network of visually and physically

difficult to achieve good design? In

connected spaces of varying scale,

Public areas should be maintained by

the past there have been three

enclosure and detailed character.

a local authority or an alternative

main obstacles:

Planting schemes, boundary

reliable management company.

the developers reliance on a

treatment and hard landscaping in

Councils can play a significant role in

limited range of house types laid

larger housing developments can all

encouraging better design by taking

out in repetitive rows;

be used to reinforce a sense of place

a positive view of the environmental

road layouts that are considered

by theming particular streets or

benefits of open space. Developers

separately from the rest of the

focal points within the layout.

will be expected to make suitable

design process and governed by a

effective management arrangements

rigid interpretation of road

Of course, landscaping needs to be

for all schemes. In some cases these

standards; and

maintained. Layouts need to ensure

will involve regular charges to house

that there are no awkward and

owners. These issues should be

relies on dimensional planning

useless spaces that will be

resolved before planning applications

standards without a clear overall

neglected. This affects details such

are approved.

design concept.

a planning appraisal process that

Improving the Quality of Housing Layouts in Northern Ireland

This development in East Kilbride,

Scotland, by volume builder
Redrow, uses house types adapted
to reflect local traditions and a
layout based on the linear greens
of nearby villages.

Developers are understandably

effective living spaces and comply

monitoring actual spending against

preoccupied with investment viability,

with the required construction

their budget for the project. It is

minimising financial risks and

standards. Changes to a developers

possible to encourage greater variety

maximising potential sales. Despite

range are usually evolutionary rather

of treatment within standard ranges

the popular belief that development

than radical. For example, a new

but it is unrealistic to expect bespoke

is an easy way to make big profits,

house type may be introduced or the

designs for each site. The standard

reality suggests that it is also easy to

elevations revised to create a new

types are designed to meet the

lose money. Financial issues

image but there is little change in the

purchasers space requirements

therefore dominate the brief to the

house shapes that form the layout.

within a building footprint which

designer. Planning and roads

minimises construction costs and

concerns are seen as technical

Economies of scale and the work

land take. They also maximise the

requirements that must be met

forces familiarity with the product

development value and therefore

within the financial parameters.

are factors in this standardisation but

the land value, an essential aspect

the most significant reason for using

of layout design in a competitive

House types are often seen as an

standard house types is their role in

land market.

important design issue. Most

helping to control the cost of

developers rely on a range of

development. Developers have no

standard designs which provide cost

effective alternative means of

10

Improving the Quality of Housing Layouts in Northern Ireland

House types

House types can respond to local

identity. To the left, house types
on the Redrow scheme in East
Kilbride. Below, a new design in
Omagh by Andrew Coulter.

11

Reflecting local identity will often be

similar properties occupied by people

detached and three bedroomed

easiest to achieve in the forms of the

similar to themselves. The majority of

semi-detached houses.

spaces, the boundary treatments and

sites are assessed as suitable for a

the choice of materials for a new

sector of the market rather than a

On some urban redevelopment sites,

development. Housing in Northern

wide mix. This approach is mainly a

developers have replaced their

Ireland is generally more spacious

response to the location. Market

suburban house types with higher

than in England where narrow

appeal is dominated by location and

density schemes that follow the

fronted houses with integral garages

price, with other factors having little

principles of good urban design

make it difficult to recreate the

influence on the decision to buy. The

which have found a ready market.

shapes of traditional building forms

target market will constrain the mix

There may be opportunities to

which have short spans and steep

of house types and styles in the brief

introduce some of these higher

roof pitches. Developers in Northern

to the designer and this poses

density elements into suburban

Ireland are beginning to show that

particular problems in seeking to

schemes in order to create focal

they can create new house types

re-create the complexity and variety

points. Over simple or prescriptive

that reflect traditional character,

of the traditional street scene or in

planning requirements that define

without resorting to pastiche.

promoting mixed use developments.

site capacity only in terms of

Market-led designs tend to

dwelling numbers will prevent

Developers confirm that most buyers

encourage uniformity and many are

developers from exploring these

prefer to be in a development of

dominated by four bedroomed

design opportunities.

Improving the Quality of Housing Layouts in Northern Ireland

Dominant road layouts and repetitive

house types, no matter how well they
are built, will not provide house buyers
with a choice of attractive homes in
well landscaped settings, such as the
example above from Hertfordshire.

Typical standard house type ranges

Evidence from recent schemes in

will not release all of the purchase

do not provide enough design

England suggests a strong positive

money without adoption and

flexibility to meet urban design

response from house buyers when

developers will suffer a financial

objectives. With its emphasis on

they are offered developments with a

penalty.

creating places and spaces, good

wide mix of plan forms and

urban design needs house types that

elevational treatments, arranged

Developers must meet the Roads

turn corners and define or enclose

around varied streets, squares and

Service requirements, and up to

spaces, and it needs the opportunity

greens. Consumers in Northern

now the approach has been to simply

to link buildings into terraces that

Ireland have not yet been offered

follow standard road types and

define a street form or a focal point

this choice.

dimensions. Road standards were

always intended to offer flexible

within the development. These are

basic elements that enable the

The application and interpretation

guidance but practice has tended

designer to provide contrasts and

of road standards has been, on

towards rigid conformity.

interest within the layout. It is

occasions, a difficult problem. It is

possible to produce variants of

a major factor in the developers

standard types that will assist good

approach to layout because of the

design, without the developer

importance of ensuring that the

losing the benefits of established

roads are adopted as public

house types.

highways. Mortgage companies

12

Improving the Quality of Housing Layouts in Northern Ireland

Road
Standards
Examples of 20 mph roads in
new estates in Holland. Reduced
speeds allow designers to
create much more intimate and
attractive places.

The same problem has been

preferred the comfort of layouts

design has posed a major obstacle

encountered with highway standards

which comply with published

in the way of more imaginative and

throughout Great Britain. Recent

standards, and the developers need

sensitive solutions.

advice on good practice in Places,

for a quick approval favoured

Streets and Movement (by Alan

uncontroversial proposals which

The responsibility for applying road

Baxter Associates for the DETR)

followed the standards. Imaginative

standards lies with the road

shows that some schemes have

road layouts must not be allowed to

engineers. Much of their training

achieved more sensitivity to site and

result in delay or increased costs for

relates to engineering principles

context and that standards have

the developer.

based on ensuring the safe,

free-flowing movement of traffic.

been applied with flexibility in

individual developments. But these

Layouts up to now have been

These principles are largely

result from the rare occasions when

dominated by a preoccupation with

mathematical and lead to absolute

both designer and roads engineer

the car rather than creating attractive

answers, rather than encouraging

have seen the benefit of a

spaces and road form considered

engineers to explore the potential of

co-operative approach.

before space. There is clearly a need

their judgement and creativity.

for housing areas to be safe places

13

In many cases throughout the UK

for children, pedestrians and cyclists

there has been no incentive for

but the application of a highways

imagination. Engineers have

engineering approach to layout

Improving the Quality of Housing Layouts in Northern Ireland

Effective traffic calming is an integral part of designing interesting and

varied spaces within a layout. If designers rely on one or two standard
calming devices they will emphasise the uniformity of suburban spaces.

Assessing the urban design qualities

layouts separately from other

The planning system has evolved

of a layout has not previously been

aspects of housing proposals.

some basic rules that are used to

the role of the engineer and often the

Roads and planning professionals

assess proposed layouts. These

roads adoption process has been

will jointly examine schemes and

planning standards generally relate

based on technical and dimensional

support each other in pursuing the

to space around the dwelling, such

requirements without a design

aims of the Quality Initiative. Through

as garden sizes and privacy

quality appraisal.

this joint approach they can exercise

distances. New standards in Northern

sound judgement, satisfying

Ireland will establish requirements

The quality objective is to make

reasonable tests of safety but also

for the provision of play spaces and

housing layout design a process in

considering innovative design

other forms of open space within

which road design is an integral part

features, including non-standard

private housing schemes, although

but not the over-riding consideration.

ideas that are central to the design

these have been commonplace in

To this end, the Department will no

concept and contribute to the quality

Great Britain and the Republic of

longer consider preliminary road

of the scheme.

Ireland for many years.

14

Improving the Quality of Housing Layouts in Northern Ireland

Planning Standards

may have moderated the worst designs, but have

not encouraged others to match the high quality
of The Steadings at Drumbeg.

15

Planning standards are usually

when combined with the constraints

Planning standards are vigorously

expressed as minimum requirements

of dimensional road standards. All

defended when the planning system

and most of them concentrate on

developers face competitive pressure

is focused on stopping schemes that

suburban estate developments.

to maximise development values.

are of such a poor standard they

There is always a risk that they will

When preparing schemes to assess

should be refused. They are less

become the basis of housing layouts.

project viability and land values, no

relevant when the emphasis of the

Designers anticipate the application

developer or designer can exceed

system is to approve only those

of planning standards and design to

minimum space standards without

proposals that provide quality and

them. Development controllers often

giving a commercial advantage to

sustainable housing environments

begin their assessment of proposals

competitors. Any attempt to drop

of which we can all be proud.

with this technical process rather

below minimum standards incurs a

than considering the merit of the

risk of delay or refusal, even if the

Although planning standards

overall concept. Even standards

variation is seeking valid design

might reasonably claim to have

that are intended to be flexible

objectives such as higher urban

prevented the worst excesses of

guidelines, allowing designers to

density or reflecting traditional rural

development, they have failed to

respond to the best solution for each

character. The developers need for

stimulate good design.

particular parcel of land, may

speed and certainty leads to

become unquestioned rules that

designs that are based on safe

pre-determine the layout, especially

standard solutions.

Improving the Quality of Housing Layouts in Northern Ireland

The designers of these apartments at

Eglinton achieved appropriate scale
and detailing to form a
robust edge to the street scene.
The simple proportions of the brick
houses at Fortwilliam, Belfast (below),
also respond to their setting.

They encourage the planning process

layouts which meet the minimum

Dimensional standards, however

to judge schemes in a mechanistic

requirements but which lack

we choose to set them, provide a

two dimensional way, rather than the

design concepts, and fail to achieve

bottom line below which a design

more difficult task of visualising

the complexity and diversity of

is unacceptable.

urban design qualities.

design solutions that are needed to

There is comfort and certainty in

respond to local character and site

Improving the quality of housing

specific conditions.

development requires that we

relying on minimum dimensions.

should devise a way of setting a

For planners, engineers and

It is unlikely that changes to

bold and ambitious target, aiming

politicians, just as much as

dimensional standards would

for a high level of achievement.

developers and their designers, they

improve the quality of layout design.

Even if designers are only partially

offer speed, simplicity and absolution

Different standards would result in

successful, the overall quality of

from responsibility. But these

different standard solutions but the

the housing layout will have

standards remove the incentive for

fundamental problem remains that it

climbed above the base level set

creativity and imagination. They

is not possible to quantify and

by conventional standards.

result in uniformity, which is the

measure design quality against such

planners main criticism of new

standard rules. Standards can not

housing layouts. They encourage

stimulate or promote good design.

16

Improving the Quality of Housing Layouts in Northern Ireland

Much effort has gone into building high quality

well-designed houses and spaces in this scheme at
Bushmills, but it misses opportunities to give residents
views over the River Bush and the open fields beyond.
Design concepts should always try to make the most
of every advantage that a site offers.

Planning standards have been useful

It is through the introduction of

a precedent for a similar approach

in helping to define the lowest level

concept statements that developers

elsewhere. The variables of site

of acceptability, but we need to

will be able to demonstrate depth of

conditions and design concept will

allow much greater freedom to

design thought and show how their

always demand individual solutions.

vary standards for such things as

proposals will meet quality

garden sizes and privacy distances,

objectives, and thus enable them

in the interests of creating more

to justify proposed variations on

complex, varied and attractive

normal standards.

spaces. With that freedom must

17

come responsibility. Developers must

Variations must always relate to the

demonstrate that they can use this

overall design concept. That in turn

opportunity to create more attractive

stems from the nature of the land, its

places to live, resisting the

natural features and existing planting

temptation to over-develop their

and the characteristics of the

land in order to increase values.

surrounding area. Therefore the

High quality designs will encourage

exercise of judgement and flexibility

a more flexible planning approach.

in one scheme can never be taken as

Improving the Quality of Housing Layouts in Northern Ireland

Land values

The Housing Executive has led

the way in demonstrating how
new housing can respect the
character of traditional rural
settlements. Simple, cost effective
designs and strategic planting
achieves qualities that are lacking
in some layouts.

Land owners expectations of value

When land is sold by competitive

widespread awareness of the

are normally based on recent

tender, the process demands that

elements of good housing design, and

transactions in the locality. They may

developers maximise the value of the

the general introduction of concept

be adjusted to take account of any

houses and minimise costs in order

statements will enable all developers to

known physical constraints, but they

to be able to bid the highest possible

make proper provision for meeting the

are likely to assume that the

residual land value. By this process

requirements of the Quality Initiative.

character and density of future

the landowner gains the maximum

development will be similar to past

benefit from the planning system but

Negotiations about the purchase

developments. Value expectations are

achieves it at the expense of design

price of development land allow for

usually established before quality

quality. Not all developers consider

abnormal costs to be discounted from

objectives have been discussed with

quality before buying land. Some

the notional land value. Abnormals

the Planning Service and therefore

choose to ignore quality objectives

usually cover the cost of infrastructure

may fail to allow for the costs of

and then argue that the high land

provision or the requirements of a

delivering higher quality layouts. Yet

price does not allow for good design.

planning agreement. In the past

it is land value that must resource

The planning system will have no

much of the design happened after

better quality, not the developers

sympathy with this line of argument.

the land value was fixed.

profits or the home buyers pocket.

The Planning Service is promoting

18

Improving the Quality of Housing Layouts in Northern Ireland

Low cost housing at Braithwaite,

near Keswick, shows how new
development can follow tradition
without resorting to pastiche.
Careful use of natural and
recycled materials helps the
scheme to fit into its Lakeland
surroundings.

Any aspect of quality with cost

reserved matters application. The

perception. As the Minister said in

implications introduced at that stage

introduction of a concept statement

the speech that introduced the

would have to be funded from the

provides a simple mechanism for

Quality Initiative the scheme is as

developers profits. Many people

defining quality objectives before the

important as the site. Good design

think that developers make easy

land value is established. Concept

will not make housing acceptable on

money, but the profit margin on a

statements can ensure that any cost

land that is fundamentally unsuitable,

house is often less than 10 percent.

implications are understood and

but equally, housing on zoned land

By contrast, granting outline planning

accepted by landowners.

will be acceptable only if it meets the

permission will commonly increase

19

objectives of the Quality Initiative.

the value of landowners asset by

Land zoning merely confirms that a

more than 10,000 percent. Outline

site is suitable for housing. It is often

Delays in the planning process add

planning permission may establish

thought of as a blanket land use

costs for both developers and the

land value expectations that are too

approval, in other words the land

Planning Service. Many of these

high and too rigid, and do not allow

satisfies technical requirements and

delays can be avoided if detailed

sufficient scope to achieve quality

any housing development will be

layout applications comply with a

and design objectives which emerge

acceptable in principle. The Quality

concept statement that has been

between outline permission and the

Initiative should have tempered that

agreed by the Planning Service.

Improving the Quality of Housing Layouts in Northern Ireland

The Design Process

Imaginative private housing at

Strangford and Portaferry uses a
mixture of house types and
apartments to create an attractive
new edge to the waterfront.

In the past, land allocation has rarely

sales details that take account of

There are no mechanisms established

specified the appropriate quality of

quality objectives. It is acknowledged

as yet for developers, planners and

the development, and planning

that good development briefs are

road engineers to work together on

policies have lacked the site specific

the most comprehensive way of

brief production. Nevertheless, the

clarity needed to impact on land

establishing design objectives before

ingredients of good design need to be

value calculations.

land values are fixed. To help achieve

agreed between all participants. The

quality objectives, briefs should

detail and complexity of the brief will

Master-plans, design or development

emphasise creative opportunities

vary with the size and context of the

briefs, stronger design policies in

and options and seek to liberate

site, but the underlying approach

plans, and design guides can all help

imaginative design skills.

should be consistent. Briefs and

to address the land value problem by

Landowners, or developers who have

master-plans are only appropriate or

establishing early design parameters

an interest in the land, may choose

necessary for larger developments (the

for identified housing land and

to fund the process and appoint

definition of larger depends on the

potential development sites.

suitable designers to prepare a brief.

particular local context). Where large

The Planning and Roads Services will

sites are to be subdivided between

Ideally, people who are selling

offer advice and participate in their

developers there is particular need for

development land should provide

preparation where possible.

an agreed overall design.

20

Improving the Quality of Housing Layouts in Northern Ireland

Site Appraisal

For most sites, a concept statement

design process should also draw on

with a proper site appraisal, not with

will be the starting point of the

landscape skills to make the best

an emphasis on the collection of

design process, setting out quality

use of existing planting and to

technical data. Rather it should

objectives for the development. It can

contribute ideas to the overall spatial

contain an analysis of the

establish a more cooperative

form. Developers will need to appoint

opportunities to bring special

approach to design, more effective

skilful designers who can work with

elements of quality into the design,

dialogue at the beginning of the

planners and roads engineers

to use views, slopes and planting, to

design process, and ensure that all

towards shared solutions. The

build on local identity or to respond

design considerations are included in

mutual understanding gained by this

to the surrounding context.

the developers site evaluation.

cooperation will result in proposals

The preparation of concept

that can be processed and approved

The concept statement should be

more quickly.

concise, limited perhaps to one side

of an A3 sheet with diagrams and

statements depend on designers

21

capable of visualising spaces in three

A typical concept statement will be a

bullet points. It should be

dimensions and who can combine

diagrammatic illustration of the

imaginative, positive, ambitious and

good conceptual skills with a

potential to make the most of a site

practical, to open up design

practical understanding of housing

and its surroundings. It is therefore

opportunities. A concept statement

layouts. This early stage of the

essential that the process begins

should definitely not be a list of

Improving the Quality of Housing Layouts in Northern Ireland

RETAIN EXISTING HEDGES AND TREES WITH SUITABLE

THINNING AND ADDITIONAL PLANTING
INDIVIDUAL LANDMARK BUILDING SIGNS ENTRANCE,
THREE OR FOUR STOREY, MAIN WINDOWS OVERLOOK
LOUGH
ACCESS AVENUE DIVERTS THROUGH SQUARE AT
FOOTPATH CROSSING - LANDMARK BUILDING CLOSES
VIEW, SYMMETRICAL ELEVATION ON AXIS OF AVENUE
AREAS A AND B HAVE SINGLE STOREY OR SPLIT
LEVEL HOUSES SET INTO LANDFORM, SLATE ROOFS
& WHITE RENDER - LOW KEY ACCESS LANES
RELATED TO CONTOURS -NO FRONT BOUNDARY
FENCE DIVISIONS
CENTRAL FOCUS ROUND GREEN WITH FEATURE
PUBLIC ART OR PLANTING - SPACE DEFINED WITH
TERRACED COTTAGES AND GATE LODGES - AVOID
DOMINANT PARKING AND GARAGE
DOORS - THEME DETAILS
HOUSES FRONTING STEEPLE ROAD SET BACK
IN LANDSCAPED GARDENS WITHOUT
FENCED DIVISIONS

Concept Statement
dimensional standards. Any

designer will find new opportunities

discussing how their sketch

references to planning policies

to add to the quality of the layout. In

proposals have developed from the

should show how good design

other instances, constraints will be

concept, before drawing up a final

principles and quality objectives

discovered which mean that the

scheme. Quality cannot be achieved

should be interpreted for the specific

original concept must be adapted to

by preparing a detailed scheme and

site. The concept statement suggests

take account of them. The system

then trying to draw up a concept

the overall form of the housing layout

must be flexible enough to

statement to justify it.

and proposes elements that will

accommodate reasonable changes

provide a clear spatial structure

but robust enough to prevent other

Developers will be able to show how

leading to strong identity and

development pressures from eroding

they have responded to the concept

legibility in the new housing.

the quality.

in a written statement supporting

The concept statement is not the

their planning application. Schemes

design solution. It is up to the

The design process follows a logical

that meet the Quality Initiative

designer to interpret and refine the

sequence, from the site appraisal to

objectives should then proceed

concept, within the spirit of the

the concept and then into the sketch

quickly to a planning permission.

overall quality objectives.

design. It will be important for

Sometimes, in the process of

designers to maintain dialogue with

preparing a detailed scheme, the

the Planning and Roads Services by

22

Improving the Quality of Housing Layouts in Northern Ireland

Sketch Plan

23

To provide the best quality housing

own concerns and have been

appraisal has been used to fix the

environment, it is necessary to

satisfied with schemes that meet

market sector but rarely to shape

understand each others roles and

their own ends, without going

the development itself. Developers

responsibilities. Housing layouts

beyond that to seek a shared

must now take a broader view of

must balance everyones objectives

solution. Developers have

their activities and of potential

and cannot succeed through a

concentrated on the value of the land

demand for more variety in the new

biased partial response. In the past,

and the commercial viability of their

house products that are offered to

we have not communicated

investment. The importance of this

their customers.

effectively, shared our experiences

aspect of development cannot be

or tried to accommodate each others

ignored. It is largely through the

Planners and urban designers have

needs. Good design comes from

significant investment risks of

looked at the role of the development

achieving a balanced response to

development companies that plans

in its context. They consider how it

all of the factors influencing a

are realised. However commercial

can be integrated with the wider built

housing scheme, but we have

considerations, that should run in

environment and with footpaths,

looked at development only from

parallel with quality and sustainability

cycleways and the public transport

our own perspective.

objectives, have been allowed to

network. They identify the

dominate the developers thinking,

appropriate response to local

Developers, planners and engineers

often to the exclusion of other

distinctiveness and character, often

have up until now focused on their

matters. The developers site

drawing on traditional building forms,

Improving the Quality of Housing Layouts in Northern Ireland

Even in new housing it is possible

to recreate the diverse and
interesting spaces of a traditional
housing environment.
(Illustrative design by Arcus).

materials, colours and textures to

Road engineers have in the past

one example of the new approach to

guide new development. Sometimes

approached development thinking of

delivering quality.

an ideal response which sustains the

road safety and road maintenance

local sense of place will need to be

liabilities. This is understandable as it

Over the last twenty years we have

adapted to suit modern living, for

is the road engineer who has the

gained much knowledge of how to

example, in providing for the car or

experience of statutory liabilities,

introduce effective traffic calming

using readily available materials.

residents complaints and the

into housing road layouts. Slow

Planners are more likely to value site

growing tendency to use litigation.

traffic is safer traffic. Within housing

characteristics, seeking to retain

This could lead to a feeling of being

areas, road design that restricts

existing features and planting, which

outside the creative process. Yet

drivers to speeds of 20 mph or less

so often seem to be in the most

imaginative road design has a key

should be a primary consideration.

awkward position from the

role in creating the quality of housing

We now understand that traffic

developers viewpoint. However,

that we seek. It is important for road

calming does not need to rely on

planners need to understand enough

engineers and planners to review

unsightly physical devices that are

about development finance to

layouts together as a team and the

visually dominant.

ensure that their ideas are

Departments have now introduced

commercially realistic.

this as standard procedure. This is

24

Improving the Quality of Housing Layouts in Northern Ireland

Traditional images for family houses in Eglinton and Edenderry, or a modern interpretation of tradition in
housing for older people in Newcastle. Either design approach can meet Quality Initiative objectives.

25

Safety will always be the first

planners and road engineers to

necessarily be appropriate in

consideration, but giving undue

exercise greater flexibility and

another. Developers cannot pick and

weight to measures to facilitate

professonal judgement in supporting

choose ideas at random, but

vehicle movement can encourage

high quality housing layouts. That

planners and roads engineers will

faster driving and may therefore be

judgement will be based on an

rely on developers and their

incompatible with the objective of

overall view of the layout, the design

designers to use the new flexibility to

creating a safe environment for

concept and its execution in detail,

push forward the boundaries of good

pedestrians and cyclists.

and its response to the particular

design and grasp this opportunity to

circumstances of each individual

create more attractive, imaginative

The introduction of Creating Places

site. No two pieces of land are

and safe housing environments.

with revised standards for residential

identical and therefore an acceptable

roads offers an opportunity for

innovation on one layout may not

Improving the Quality of Housing Layouts in Northern Ireland

The report was prepared by

Ian Davison of The Planning
Cooperative Ltd with the assistance
of Alan Patterson of Alan Patterson
Design, Iain Stewart of Arcus and
Peter Westbury of Mouncey Westbury.

All photographs are copyright of

the DOE except
p2 Countryside Properties
p8 and p9 Redrow (Scotland) Ltd
p24 Arcus
p12 (main), p13, p14 (bottom),
p19 Ian Davison
Drawing on cover is copyright of
Site Express

26

Improving the Quality of Housing Layouts in Northern Ireland

Notes

27

27

Designed by the Northern Ireland Housing Executive

Housing

Executive

Construction
Employers Federation