The Smart Off-site Association is championing modular construction as a solution to Ireland’s housing crisis, highlighting that standardised designs, streamlined certification and consistent public frameworks are key to unlocking the sector’s full potential. ROBBIE COUSINS speaks with key figures involved in this work.
The Smart Off-site Association (SosA) is a constituent part of the Construction Industry Federation (CIF). It represents companies that specialise in off-site manufacturing. The organisation’s core mission is to champion its members’ interests and advance the use of off-site construction in the built environment.
SosA works to inform public policy and tendering practices by advocating on behalf of its members with public sector bodies. It strives to elevate the off-site construction industry, ensuring it meets or surpasses global standards, expands its market share, and embraces innovation. It also actively backs regional development and promotes sustainable construction methods.
Smart Off-Site Association
In the past year, SosA has focused on helping 3D volumetric modular construction manufacturers address challenges to play a role in solving Ireland’s housing shortage and to expand their position as an efficient solution for new healthcare facilities.
Currently, while timber frame construction is compliant with the IS 440 standard, other systems are required to have NSAI Agrément certification. This process is particularly cumbersome and expensive for 3D volumetric manufacturers because of the high number of components involved in a single unit.
Furthermore, a lack of scale and standardised housing unit designs is an impediment to future progress in the sector. To date, only the education sector has implemented a delivery framework that is well-suited for 3D modular construction. The success of its first four-year cycle has many SosA members anticipating the next framework. Despite these obstacles, new government-backed initiatives are emerging that could pave the way for 3D volumetric construction to become a significant part of Ireland’s housing solution in the coming years.
Denise Tuffy, Director, Specialist Contracting, Construction Industry Federation, says that Ireland has embraced 2D panelised systems, particularly for low-rise housing using predominantly timber frame, and it is set amongst European leaders in terms of how it has embraced offsite construction. However, 3D volumetric manufacturers need state support at this time to establish a sustainable foothold.
She explains, “Ireland has embraced offsite construction. It is amongst the leading European countries for its adoption of 2D panelised systems, particularly timber frame, especially for low-rise housing.
“This being said, the 3D volumetric market needs to be supported by the government in the short term through the development of frameworks for projects where offsite makes sense and adds the most value for the taxpayer.”
Denise Tuffy adds, “Two primary advantages of 3D volumetric are speed and minimum disturbance on site, which lends itself to many industries including education, housing and healthcare. For example, education sometimes requires construction to take part during holiday periods, and having a busy site close to a live hospital is less than ideal. In circumstances such as these, 3D volumetric makes the most practical sense for all parties involved and should be embraced.”
Vision Built
As the managing director of Vision Built and President of the SosA, Brian Kennedy stands at the forefront of Ireland’s modular construction movement. His dual leadership roles reflect a deep commitment to transforming how buildings are designed, manufactured, and delivered across the country.
Founded in 2012 and acquired by Sisk in 2019, Vision Built has evolved from a specialist in LGS systems into a market-leading offsite manufacturer. Today, the company delivers 3D volumetric modular and 2D panelised solutions across Ireland and the UK, serving sectors as diverse as residential, education, healthcare, commercial, and technology.
Under Sisk’s ownership, Vision Built has embraced a strong Environmental, Social, and Governance (ESG) ethos, working closely with clients to co-develop sustainable building solutions. The company’s growth has been marked by strategic investments in people, processes, and technology – positioning it as a key player in MMC.
Unlocking potential: The case for government action
Despite its success, Brian Kennedy is candid about the challenges facing Ireland’s offsite sector. He argues that for 3D volumetric manufacturing to support national construction needs, the government must step in with a structured long-term pipeline of projects, streamlined certification processes and infrastructure investment.
Drawing lessons from the UK, Kennedy advocates for frameworks that prioritise volumetric solutions in education, healthcare, and accommodation.
“Standardisation is key,” he says. “While finishes can be customised, the core structure must remain consistent to drive efficiency and savings across the supply chain.”
Certification and standardisation: Building trust
One of the biggest hurdles for off-site manufacturers is certification. Kennedy acknowledges the rigour of the NSAI Agrément process and sees it as essential for ensuring product reliability.
Several SosA members have this in place or are nearing completion of this certification, which he believes will unlock new housing delivery opportunities.
SosA is also collaborating with Construct Innovate on the ‘Standardize’ project— an initiative aimed at creating an Irish Standard for systems like LGS and 3D volumetric, akin to the IS-440 timber frame standard.
A Hawkins Brown study, commissioned by the Department of Housing with input from SosA, is another milestone, offering efficient housing layouts compatible with both volumetric and panelised systems.
Brian Kennedy hopes these efforts will encourage county councils to adopt standardised typologies, simplifying design, costing, and procurement.
Creating a new labour force
He adds: “Offsite construction doesn’t just change how buildings are made – it reshapes the workforce. Vision Built trains workers from other industries and school leavers, adding valuable capacity without competing with traditional trades. This inclusive approach is central to our company’s vision for the future.”
SosA’s strategic goals
As SosA president, Brian Kennedy outlines a straightforward and clear roadmap to sector success:
- Achieve NSAI Agrément certification for more manufacturers
- Encourage county councils to tender for volumetric modular projects
- Establish a collaborative framework for public housing and healthcare similar to UK models.
- Innovate façade design, moving beyond brick and block to maintainable, long-life alternatives.
Volumetric construction: A strategic solution
Kennedy is quick to clarify that volumetric construction isn’t a universal fix – but it’s a powerful tool. He cites the UK Department of Defence’s eight-year framework as proof that collaboration and long-term planning can make volumetric a cornerstone of national infrastructure.
“With Ireland’s housing crisis, adopting a framework-based approach isn’t just logical – it’s necessary,” he asserts.
CPAC Modular
Seán Murphy, Managing Director at CPAC Modular, says there are challenges but immense potential for Ireland’s modular construction sector.
With over 40 years of experience in off-site construction, CPAC Modular is a leader in designing and building multi-storey off-site modular accommodation. Murphy’s insights reveal a sector ready for significant growth. He highlights the Agrément certification process as a challenge, but also an essential process.
“While not required for education or healthcare projects, it’s a mandatory requirement for housing. Successfully navigating this process is a prerequisite to opening up the sector’s ability to plan, scale and play a role in delivering at-scale housing solutions.“Achieving scale will depend on either expediting the Agrément certification process or introducing an alternative route for demonstrating compliance with building regulations,” he states.
“A consistent pipeline of residential projects would unlock significant opportunities. In the meantime, CPAC Modular has built strong momentum in the education sector, recently completing Ireland’s first permanent modular school. While this work is framework-based and somewhat seasonal, it provides a strong platform to expand into residential at scale.”
Sean Murphy advocates for a framework system for healthcare and residential projects, such as the one successfully operated in education facility delivery, to provide the consistent workflow needed for production facilities to operate at full capacity.
Unlocking efficiency and reducing costs
Modular construction can be seen as more expensive than traditional builds.
Murphy argues that this is a misconception. He believes that the speed and efficiency of modular projects lead to lower overall costs and faster delivery. The key to making modular construction cost-effective is scale.
“The real value of offsite modular construction comes not with one-off houses, but when 300 to 500 standard units are delivered onsite, as this level of scale unlocks efficiencies and delivers value.”
SosA members survey A 2024
A 2024 SosA members survey revealed that the modular sector has 52% unused capacity, underscoring the urgent need for a steady pipeline.
Murphy adds, “There’s no doubt that the modular sector has the capacity and capability to do more. With over half of current capacity unused, there is a huge opportunity to harness MMC to deliver housing at the speed and scale required. CPAC Modular stands ready to contribute, but what’s needed is a consistent pipeline that allows the sector to mobilise fully and be part of the solution.”
The path forward: Standardisation as the solution
The solution, according to Sean Murphy, lies in standardisation. He notes that initiatives are underway to address this. “Architects Hawkins Brown are developing housing standard details for the government, with input from SosA members. Furthermore, Construct Innovate is working, also with input from SosA members, on its standard details document for relevant off-site residential methodologies, similar to the existing IS 440 standard for timber frame construction.”
He says, “Selecting 3D volumetric as the first system to go through this process could see work completed within a year. This would open the door to producing 3D volumetric housing in line with standard details and accelerating delivery at scale.”
This standardisation would allow the modular industry to demonstrate compliance with building regulations, paving the way for large-scale production and significant investment. “Modular construction is already easing pressures in education,” says Sean Murphy. “It has the same potential to transform housing and healthcare, and it’s time we seized that opportunity.”
Procon Modular
Eoin Daly, Managing Director, Procon Modular and SosA member, emphasises the critical role that modular building must play in addressing the country’s housing crisis. With over 30 years of experience, Procon Modular provides innovative, durable, and low-maintenance modular solutions. Eoin Daly believes that 3D volumetric buildings are a key part of the solution to Ireland’s housing deficit. He is confident that the hurdles currently hindering the adoption of modular construction will be removed soon.
He highlights that a significant obstacle for the off-site construction industry is the lack of a consistent project pipeline outside of the Department of Education framework. This framework has been a massive success, guaranteeing work and allowing companies like Procon to invest in new machinery, cranes, and delivery methods.
“The construction industry is under immense pressure to meet a current demand for 90,000 new houses a year. The modular sector, which includes around 50 manufacturers in Ireland, is perfectly positioned to complement the work of traditional contractors.
“Procon alone”, he continues, “could build 1,000 houses a year and scale up quickly if a stable pipeline were in place. Modular buildings are also significantly faster. A 50-unit housing development, for example, could be completed in about a year, with the units being 90% finished in the factory.”
Policy and certification challenges
Eoin Daly expresses frustration with the lack of consultation between the government and the modular industry in the past when developing policies like Housing for All. He believes that a more collaborative approach would have been a better starting point. He also believes that Construct Innovate programmes will demonstrate MMC unit compliance with building regulations, making it a sensible process and certification system for modular construction.
“It will simplify the process for architects and engineers. But we also need a training module on MMC to be included in college courses for architects and engineers, as many professionals currently lack experience in this area.
With the potential to grow into a €600m-a-year industry, Eoin Daly is confident that with the right policy support and a consistent project pipeline, the modular sector can not only be a part of Ireland’s future but can lead it.
In conclusion
The Smart Off-site Association and its members are actively working to position 3D volumetric construction as a key part of the solution. While the complexity of the Agrément certification process for 3D volumetric manufacturers and a lack of consistent, large-scale public frameworks persist, collaboration between the industry, government, and research bodies like Construct Innovate is paving the way for change.
Efforts to create an Irish Standard (IS) for off-site systems and promote standardised housing designs could streamline the process, encourage investment, and ultimately, enable the modular sector to reach its full potential.
The success of frameworks in the UK demonstrates that a similar approach for residential projects could unlock the unused capacity of Irish manufacturers, leading to a more efficient, sustainable, and rapid delivery of much-needed homes.
However, the last word goes to CIF Specialist Contracting Director Denise Tuffy, “Ireland has built a strong indigenous 3D volumetric market that needs to be supported. These companies generally operate on a regional basis, however, close to a motorway network. Supporting offsite construction means supporting local employment that allows workers s to remain in their communities,” Denis Tuffy concludes.