Development plan · Clare County Council
Clare County Development Plan 2023–2029 (as varied)
The council's development plan written statement: its strategy, policies, objectives and development standards.
Clare County Council · 2023–2029 · 568 pages
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- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy Section 28 of the Planning and Development Act 2000 (as amended), relevant Government policy, and the undertaking of necessary environmental assessments. Policy and Objective 2: It is a policy and objective of these Guidelines that ‘additional provision’ of up to 50% over and above the housing growth requirement for each local authority set out in Appendix 1 is reflected within the relevant City or County Development Plan, subject to consistency with the policies and objectives of the National Planning Framework – First Revision (2025), relevant Ministerial Guidelines issued under Section 28 of the Planning and Development Act 2000 (as amended), relevant Government policy, and the undertaking of necessary environmental assessments. 3.3.4 Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (2024) The Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities set national planning policy and guidance in relation to the planning and development of urban and rural settlements, with a focus on sustainable residential development and the creation of compact settlements. The Guidelines replace the Sustainable Residential Developments in Urban Areas-Guidelines for Planning Authorities issued as Ministerial Guidelines under Section 28 of the Act in 2009 (now revoked). They build on and update previous guidance to take account of current Government policy and economic, social and environmental considerations. The Guidelines expand on higher-level policies of the National Planning Framework, setting policy and guidance in relation to the growth priorities for settlements, residential density, urban design and placemaking and introduce development standards for housing. The density ranges support the application of densities that respond to settlement size and to different place contexts, recognising in particular the differences between cities, large and medium sized towns and smaller towns and villages. The development standards for housing will allow for greater flexibility and innovation and support the delivery of a greater range of housing options. 3.3.5 Regional Spatial and Economic Strategy for the Southern Region (RSES) The Regional Spatial and Economic Strategy (RSES) provides a long-term, strategic development framework for the future physical, economic and social development of the Southern Region and includes Metropolitan Area Strategic Plans (MASPs) to guide the future development of the region’s three main cities and metropolitan areas – Cork, Limerick- Shannon and Waterford. The RSES primarily aims to support the delivery of the programme for change set out in Project Ireland 2040 - the National Planning Framework and the National Development Plan 2018-2027 (NDP). As the regional tier of the national planning process, it will ensure57
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy coordination between the city and county development plans and local enterprise and community plans (LECP) of the ten local authorities in the region. The RSES recognises the strategic role played by all areas, urban and rural, in achieving the set regional and national targets and objectives. Support for sustainable growth of all communities, urban and rural, are supported by the RSES. A strategy is pursued that builds on cities and metropolitan areas as engines of growth and seeks in parallel to reposition the region’s strong network of towns, villages and diverse rural areas in an economically resilient, imaginative and smart manner to create a sustainable competitive advantage for the region. Figure 3.1 RSES Strategy Map 3.3.6 Other Plans and Strategies taken into Consideration In addition to the strategic guidance set out in the NPF and the RSES a large number of national, regional and local level plans and strategies, including significant documents such as the Limerick-Shannon Metropolitan Transport Strategy, and the Mid-West Area Strategic Plan (MWASP) were taken into consideration in the preparation of this development plan. Regard has also been had to planning guidance documents issued in accordance with Section 28 of the Planning and Development Act 2000, as amended. A full list can be found in Appendix 7. 3.3.7 Development Plans – Guidelines for Planning Authorities 2007 Regard has also been had to ‘Development Plans – Guidelines for Planning Authorities 2007’.58
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy These guidelines aim to assist and promote consistent best practice among all planning authorities in the preparation of development plans. They also aim to improve the quality and consistency of plans, strengthen their strategic content, and improve consensus building in their preparation, implementation and review. The development plan was also prepared having cognisance to the Development Plan Guidelines for Planning Authorities, 2022. 3.3.8 Settlement Plans The Planning and Development Act 2000, as amended, introduced a tiered and plan-led system, setting out a framework to give a more detailed and localised effect to the policies and objectives of the county development plan. As indicated in Chapter 1, the Clare County Development Plan 2023-2029 will govern the overall land-use objectives for County Clare. Volume 3 of this development plan contains settlement plans for all of the settlements in the county with the exception of Shannon. 3.3.9 Adjoining Local Authorities’ Development Plans Pursuant to the requirements of Section 9(4) of the Planning and Development Act 2000, as amended, in making the Clare County Development Plan 2023-2029, regard was had to the development plans of the adjoining planning authorities of Galway County Council, Tipperary County Council, Limerick City and County Council and Kerry County Council. 3.4 Settlement Hierarchy The Settlement Hierarchy of this plan has been developed to take account of the role of each of the identified settlements in accordance and alignment with the identified settlement hierarchy in the RSES. A settlement hierarchy is a spatial expression of sustainable distribution of housing unit and population growth, settlement order or level and settlement role. It provides a strategic direction to the appropriate management of growth, investment and resources in accordance with the Core Strategy in a climate resilient manner. With the identification of projected population and housing growth for County Clare within the lifetime of this plan and the identification of the relevant tiers of the settlement hierarchy, housing land has been allocated to deliver new homes to meet a growing population in a sustainable manner. The distribution of future population and household growth in this plan is based on the key principles of the NPF and the RSES in delivering more compact growth, improving the alignment of population and employment growth, sustainable mobility and climate action. The range of locations in County Clare from the Limerick-Shannon Metropolitan Area, the Key Town of Ennis, the Metropolitan Town of Shannon, the Service Towns of Kilrush/Cappa, Scarriff/Tuamgraney and Ennistymon/Lahinch, to the Smaller Towns, Rural Villages, and Countryside are set out in the Settlement Hierarchy which is illustrated in Map 3A and set out in Table 3.1 below. The settlement hierarchy is based not only on population, but on a variety of strategic long-term planning and land use considerations including the capacity of individual areas to accommodate growth; jobs to resident workers ratio; availability of road,59
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy rail and air transport; availability of water and wastewater services; availability of education facilities; and the requirement to revitalise rural areas. In addition, the requirements of the Strategic Environmental Assessment (SEA) process have informed the preparation of the Settlement Hierarchy. Table 3.1 Settlement Hierarchy in County Clare Key Town Ennis Metropolitan Area (Key component of the Limerick-Shannon Metropolitan Area Strategic Plan) Shannon Sixmilebridge (Small Town) Athlunkard, Bunratty, Clonlara, Parteen, Ballycannon North (Meelick) (Large Villages) Ardnacrusha, Cratloe, O’Briensbridge (Small Villages) Service Towns Ennistymon/Lahinch, Kilrush/Cappa, Scarriff/Tuamgraney Small Towns Kilkee, Killaloe, Lisdoonvarna, Miltown Malbay, Newmarket-on-Fergus, Tulla Large Villages Tier 1 Ballyvaughan, Clarecastle, Corofin, Crusheen, Doonbeg, Feakle, Inagh, Kilkishen, Mountshannon, Mullagh, Quilty, Quin, Whitegate, Liscannor, Kilfenora and Killimer Tier 2 Killadysert, Kilmihil Small Villages Barefield, Bridgetown, Broadford, Carrigaholt, Cooraclare, Doora, Doolin, Kilmaley, Kilmurry, Labasheeda, Lissycasey, Ballinruan, Ballyea, Ballynacally, Bellharbour, Bodyke, Boston, Caher, Carron, Clooney, Connolly, Cranny, Creegh, Cross, Doonaha, Fanore, Flagmount, Inch, Kilbaha, Kilbane, Killanena, Kilmurry McMahon, Kilnaboy, Kilnamona, Kilshanny, Knock, Knockerra, Moy, Moyasta, O’Callaghans Mills, Ogonelloe, Querrin, Ruan, Spanish Point, Toonagh, Tubber Clusters Ardkyle, Ballaghboy No.1, Ballaghboy No.2, Ballinooskey/Lisconner, Ballintlea South, Ballintlea South 2, Ballycar, Ballycorick, Ballyduff, Ballyea South, Ballyfaudeen, Ballyhannon North, Ballyhannon South No.1, Ballyhannon South No.2, Ballygireen, Ballymacahill, Ballymorris, Ballynagun West, Ballyveskil/Tiermaclane, Ballyvonnavaun/Deerpark, Ballyvrislaun, Barntick, Barloughra, Bartra, Bealaha, Bearnafunshin/Ballyogan, Beevrack, Behagh, Buncraggy, Caherea, Caherush, Cappa Sixmilebridge, Carrowmeer, Castlecrine, Castlequarter, Castlequarter Kilkeedy, Cloonadrum, Cloonanaha, Cloonoughter, Coogyulla Cross, Coolisteige, Cratloekeel, Crosses of Annagh, Deerpark/Corlack, Doonass, Drumandoora, Drumdrehid, Drumeen, Drumline 1, Drumline 2, Drummina, Drumquin, Finvarra, Garraun, Garraunboy, Gilloge, Kildorus, Killeenan, Killow/Knockanimana, Kilmaley Lower, Kilmore, Kineilty, Knockfin, Knockloskeraun, Leamaneigh More, Lisduff, Lisheen, Luogh South, Manusmore, Maurices Mills, Meelick, Monaskeha, Mooghaun North, Mortyclough, Mountrivers Cluster, Murrooghkilly, Murroughtoohy South, New Quay, Newtown Cloonlara, Portdrine, Poulawillin, Rockforest/Aughrim, Roo East, Sooreeny, South of Rossmanagher Bridge, Spancil Hill, Streamstown, The Wells, Tromra, Urlan More/Bellsfort, Williamstown, Woodpark Countryside The countryside are those parts of County Clare outside of recognised settlements60
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy 3.4.1 Compliance with National and Regional Population and Housing Targets Under Section 28 of the Planning & Development Act, 2000 (as amended), the ‘NPF Implementation: Housing Growth Requirements’ were issued on 29th July 2025. The Guidelines provide new housing growth requirements to planning authorities in order to facilitate the revision and update of development plans in accordance with the NPF. The housing growth requirements provided in the new Guidelines replace the Section 28 “Housing Supply Target Methodology for Development Planning” Guidelines issued in December 2020. The Guidelines provide for the following housing targets for County Clare: Table 3.2 NPF Implementation: Housing Growth Requirements, for Clare County Council. Local Authority Existing Annual 2020 Housing Requirement (Housing Supply Target) Adopted Development Plan - Annual Housing Requirement (Housing Supply Target) New Annual New Housing Growth Requirement to 2034 New Annual New Housing Growth Requirement 2035 to 2040 Clare County Council 550 960 985 687 In accordance with ‘NPF Implementation: Housing Growth Requirements’ (DHLGH July 2025), Table 3.3 below sets out the new minimum housing unit targets for County Clare for the duration of this County Development Plan up to Q1 2029, for a further period up to Q4 2034 (which is the medium term horizon of this plan) and the longer term up to 2040. Table 3.3 Minimum Housing Growth Requirements, for Clare County Council, Cumulative totals. Year Target Cumulative Total 2026 985 985 2027 985 1,970 2028 985 2,955 Q1 2029 246 3,201 The new minimum housing target for the period Q1 2026-Q1 2029 is 3,201 units. Q2+Q3+Q4 2029 739 3,940 2030 985 4,925 2031 985 5,910 2032 985 6,895 2033 985 7,880 2034 985 8,865 The new minimum housing target for the period Q1 2026 – Q4 2034 is 8,865 units. 2035 687 9,552 2036 687 10,239 2037 687 10,926 2038 687 11,613 2039 687 12,300 2040 687 12,987 The new minimum housing target for the period Q1 2026 – Q4 2040 is 12,987 units61
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy Project Ireland 2040 - Implementation Roadmap for the National Planning Framework provides transitional population projections at a county scale in order to inform the development plans for the period 2026 to 2031. The transitional population for County Clare and the Limerick-Shannon Metropolitan Area is listed in the table below. Table 3.4 Transitional Local Authority Population Projections to 2031 2016 2026 Uplift 2016 to 2026 2031 Uplift 2016 to 2031 County Clare 119,000 129,500- 131,500 10,500– 12,500 134,000- 137,000 15,000- 18,000 Source: NPF Implementation Roadmap – July 2018 – DoEHLG Table 3.5 specifies the target population projections for the Limerick-Shannon Metropolitan Area (LSMA) to 2026 and 2031. The RSES has targeted the Metropolitan Area to grow by 26,716 to 2026 and by a further 13,052 to 2031. For that part of County Clare within the LSMA this translates to a 3,553 increase to 2026 with an additional 1,592 increase to 2031, being a total of 5,145 increase from 2016 to 2031. Table 3.5 Projected Populations 2026 and 2031 for the Limerick-Shannon Metropolitan Area Area Population 2016 Projected Population 2026 Projected Population 2031 Limerick City and Suburbs (in Limerick) 89,671 111,192 121,953 Limerick City and Suburbs (in Clare) 4,521 5,607 6,150 Subtotal 94,192 116,799 128,103 Remainder Metropolitan Area (in Limerick) 15,281 16,924 17,622 Remainder Metropolitan Area (in Clare) 22,947 25,414 26,463 Subtotal 38,228 42,337 44,085 Total Limerick Shannon Metropolitan Area 132,420 159,136 172,188 Source: Regional Spatial and Economic Strategy for the Southern Region This plan adopts an approach to population and housing growth that is linked to the implementation of the NPF, the Implementation Roadmap for the National Planning Framework (DHPLG, July 2018) and the RSES. In addition to the parameters set in the foregoing strategies, the methodology set out in the Housing Supply Target Methodology for Development Planning – Guidelines for Planning Authorities (DHLGH, December 2020) has been employed as part of the development of the Core Strategy. The Section 28 NPF Implementation: Housing Growth Requirements Guidelines (July 2025) replace the Section 2862
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy “Housing Supply Target Methodology for Development Planning” Guidelines issued in December 2020, and have informed the amended Core Strategy of the proposed Variation. 3.4.2 Core Strategy Statement The Core Strategy has taken the following into account: • Compliance with the NPF - First Revision, the NPF Implementation: Housing Growth Requirements’ (DHLGH July 2025) and RSES; • The settlement hierarchy for the county as detailed in Table 3.1, which prioritises population and economic growth to the Key Town of Ennis, the LSMA, Service Towns and Small Towns and promotes their continued growth; • Accommodating local growth at a scale appropriate to the settlement size and function in the Service Towns, Small Towns and Large Villages; • Facilitating residential development in serviced and unserviced settlements as an alternative to rural one-off housing; • Management of urban generated growth in rural areas under strong urban influence, by ensuring single houses in the open countryside are based on the core consideration of demonstrable economic or social need to live in the rural area in addition to compliance with statutory guidelines, plans and having regard to ensuring the viability of villages and towns; • Ensuring all lands identified for development are in accordance with the ‘Tiered Approach to Land Use Zoning’ as set out in the NPF - First Revision and identified in Appendix 1 of the Volume 3 Settlement Plans; • Climate change and sustainability; and • Department of Environment, Heritage and Local Government, Guidance Note on Core Strategies (2010) and in particular Section 4 in so far as it relates to an excess associated with Strategic Development Zones. The Core Strategy has also been prepared and informed by the Housing Strategy and the Housing Need and Demand Assessment (HNDA). In addition, the following local context has informed the approach: • The allocation of housing growth to the settlements on a sustainable tiered approach based on the settlement hierarchy, the infrastructure services, demand, past delivery, jobs to resident workers ratio and potential growth. This means that settlements will grow at an appropriate rate and at a more self-sufficient level, thereby reducing the need to commute; • In response to the NPF Implementation: Housing Growth Requirements Guidelines (2025) the release of Strategic Residential Reserve zoned land and the zoning of additional Residential land provides greater certainty in the accelerated delivery on housing targets in the short to medium term by providing an increase in development63
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy options at all tiers of the settlement hierarchy. The housing unit target applicable to each settlement in the settlement hierarchy includes 50% additional provision. • Long-Term Strategic and Sustainable Development Sites are identified to indicate the potential for future delivery of housing within the next development plan period and give a clear indication where future investment in the required infrastructure is necessary to facilitate long-term growth, especially in settlements identified for growth, including Ennis Key Town, Shannon Metropolitan Town, and Ennistymon/Lahinch, Kilrush/Cappa and Scarriff/Tuamgraney Service Towns. • In respect of the proposed Variation, the estimate of the number of units that each additional site can deliver is based on the minimum density for the respective settlement type that is stated in the Sustainable Residential Development and Compact Settlements - Guidelines for Planning Authorities (2024), and based on the development of 80% of the site area, which reflects the provisions of Section 3.2.1 of those Guidelines. • The consolidation of settlements and the distribution of many land use types within settlement boundaries including a mix of uses in the centre of settlements will facilitate reduced travel demand and also increase usage of sustainable modes of transport; • The density approach is reflective of the higher order settlements i.e. LSMA, Key Towns, Service Towns, Small Towns and Villages and the existing built environment; • The quantum, location and distribution of new development has had regard to the capacity of existing and planned wastewater services infrastructure; • The capacity of settlements to grow in the absence of necessary infrastructure, i.e. the Limerick Northern Distributor Road (LNDR) and geographical constraints such as the River Shannon, the Ardnacrusha Headrace, Parteen Bridge and flood zones in the Limerick suburbs; • Ennis 2040 An Economic and Spatial Strategy; and, • Environmental considerations have been taken into account in the preparation of the Core Strategy. The focus of the Core Strategy is on developing and strengthening the role of the Key Town of Ennis, the Metropolitan Town of Shannon, the Limerick-Shannon Metropolitan Area, the Service Towns, Small Towns and villages and the sustainable development of our rural areas. The focus is on achieving compact growth of our urban settlements thereby decreasing the distance that people must travel from their home to work and highlighting the importance of integrating land use and transportation planning. The plan seeks to develop the Town Centre First approach and the concept of a 10 minute town, which will make our towns and neighbourhoods better places to live, work and visit, improving the alignment of population and employment growth, sustainable mobility and climate action. Chapter 4 sets out in detail the Urban and Rural Spatial Strategy for the future development of the county. While the purpose of the Core Strategy is to identify locations across the county where future development is likely to take place it is not intended that an overly rigid approach to development would be employed by consenting authorities. The growth projections are to be viewed as targets rather than caps or limitations to growth within those individual settlements. Where there is scope within settlements and appropriately zoned land available,64
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy positive planning decisions which may include growth over and above the stated target, for the short-term, i.e. the remaining plan period, as set out in the Core Strategy will be considered proactively. Accelerated Housing Targets and Revised Core Strategy Table The sections below on ‘Additional Provision’ and ‘Unmet Need’ provide an explanation of those factors as they related to the quantum of zoned land contained in the adopted County Development Plan. Subsequently, the NPF Implementation: Housing Growth Requirements Guidelines (July 2025) provided Planning Authorities with accelerated housing unit growth targets, which are stated to be inclusive of the concept of unmet need but exclusive of additional provision. The Guidelines enable the concept of additional provision to be utilised by planning authorities in their implementation of the guidelines. The accelerated housing unit growth figure for the remainder of the plan period consists of the annual Housing Unit Target set out in the Guidelines (July, 2025), which is 3,201 units, with the full 50% additional provision included, giving a total of 4,805 units. Demand for c. 4,805 units can be accommodated on lands that are currently zoned for residential development, inclusive of the Strategic Residential Reserve sites in the plan, even when disregarding those lands that are already developed, under construction or have permission on them. However, in many settlements there are factors which are slowing the release of zoned land for development which can be attributed to such factors as servicing constraints and inactivity in releasing zoned land for development. The approach taken to address these challenges in the short term is to include additional zoned sites across the tiers of the settlement hierarchy and to release all Strategic Residential Reserve zoned land for activation. To give greater certainty in achieving the accelerated delivery of housing units to meet housing growth targets in the short term, providing an increase in development options at all tiers of the settlement hierarchy is a mechanism to facilitate this. Note the short-term unit growth is apportioned across the serviced settlements of the county, broadly in alignment with the proportions evident in the adopted Core Strategy. Furthermore, in accordance with the ‘NPF Implementation: Housing Growth Requirements’, it is necessary to plan for the accelerated housing unit targets for the county not only for the duration of this County Development Plan up to Q1 2029, but also for a further period up to Q4 2034 (which is the medium term horizon of this plan) and the longer term up to 2040. When the Housing Unit Target for the period up to the end of Q1 2029 and the further period up to Q4 2034 are added, there is a resultant target of c. 13,300 units. Taking the capacity of all sites that are to be zoned Residential or identified as Long-Term Strategic and Sustainable Development Sites (i.e. those proposed in Variation No. 1), allied to the remaining capacity of the lands zoned for residential use in the adopted County Development Plan, there is potential to deliver c. 13,100 units. These comparative figures are evident in the Core Strategy table and demonstrate that the proposed Variation will enable a balance to be struck between65
- __________________________________________________________________________________ Clare County Development Plan 2023-2029 3 | Core Strategy the identification of residential development land and the delivery of housing unit targets at the county level over the period of this plan and the years subsequent to it. Additional Provision The Core Strategy includes ‘Additional Provision’ as per Section 4.4.3 of the Development Plan Guidelines, 2022. This approach recognises that a degree of choice in development sites to be provided locally is desirable to avoid restricting the supply of new housing through inactivity on a particular landholding or site. Therefore, the use of the additional provision mechanism increases the probability of achieving the housing supply targets in the first instance. The Development Plan Guidelines do not restrict the settlement tiers to which additional provision can be applied, stating “The extent of any Additional Provision must be identified, quantified and explained in the Core Strategy and should not exceed 20-25% of the required quantum of zoned land and sites in settlements in any planning authority area as a whole, for any six-year plan period;” Additional Provision has been applied across the county and the exact locations are identified in the Core Strategy Table. It is primarily used in Ennis and the Metropolitan Area and in areas where housing demand is highest and where adequate services are available to support it. It has also been used in some smaller scale settlements where the quantum of land zoned is small and the additional provision increases the probability of achieving the housing supply targets should this limited supply of land be too restrictive. By continuing to take Additional Provision into account, through the proposed Variation of the plan, the Council is in alignment with the NPF Implementation: Housing Growth Requirements Guidelines (2025) which has incorporated the concept of considering Additional Provision in the setting of Housing Unit Targets at local authority level. Unmet Need Due to the NPF Implementation: Housing Growth Requirements Guidelines (2025) providing for Unmet Demand and Unmet Need in the calculation of the Housing Unit Target for Co. Clare (up to 2034), the revised Core Strategy table does not include the additionality of Unmet Need. The population target for the county arising from the NPF (2018) is 7,231 people with a housing supply target of 4,500 provided by the Housing Supply Target Methodology. In addition, the Core Strategy provides for an additional 2,000 persons/1,260 units distributed across the county to meet the housing unmet needs of the additional population arising from the humanitarian response to persons arriving in Ireland fleeing the conflict in Ukraine, which is not represented in the NPF population projections. This is justified for the following reasons: 1. Data shows 3,500 displaced people from Ukraine currently residing in County Clare, as of November 2022. This is anticipated to continue to increase in the near term. This population is not accounted for in the NPF Implementation Roadmap population66
Source Clare County Council: Clare County Development Plan 2023–2029 (as varied) (2023–2029) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.