Cork County Development Plan 2022–2028 – Volume One: Main Policy Material

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   141 CHAPTER 7 MARINE, COASTAL AND ISLANDS Aim of Chapter Through the application of the Marine Planning Framework and the planning principles set out in this document, to provide an integrated approach to the protection and management of our coastal areas including our Island Communities and to maintain their sustainable contribution to the economic, social and cultural life of the County.

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   143 CONTENTS Contents 7.1 Marine Spatial Planning 144 7.2 The County Cork Coastline 144 7.3 National and Regional Marine Planning Policy 146 7.4 Maritime Area Planning Act, 2021 148 7.5 Other Marine Related Strategy Documents 148 7.6 Coastal Management 148 7.7 Islands and Island Communities 152

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   144 7.1 Marine Spatial Planning 7.1.1 Marine spatial planning is a process that brings together all of the multiple users of the ocean to make the best decisions about how to use marine resources sustainably. Maritime planning will apply from the High Water Mark in Ireland’s coastal waters, territorial seas, and exclusive economic zone and in designated parts of the continental shelf. 7.1.2 Marine planning will contribute to the effective management of marine activities and more sustainable use of our marine resources. It will enable the Government to set a clear direction for managing our seas, to clarify objectives and priorities, and to direct decision makers, users and stakeholders towards more strategic and efficient use of marine resources. It will inform decisions about the current and future development of the marine area, aiming to integrate needs. 7.1.3 Some of the key issues facing the coastal zone of Cork are: • Lack of integration between regulatory bodies that control activities in the Coastal Zone; • Greater public awareness of and involvement in environmental issues; • Adaptation of the fishing industry to changes resulting from Brexit and the Common Fisheries Policy; • Pressures on coastal and marine habitats and species and on water quality; • Expansion of industries such as aquaculture which require an integrated response between land and sea; • Adaptation and mitigation of the impacts of climate change in particular sea level rises, flooding and coastal erosion; • Need to provide coastal protection for key social and economic assets; • Economic decline in peripheral areas; • Need for ongoing maintenance and upgrading of ports and facilities; • Increased pressure for development both in residential and employment uses; • Development of sustainable marine tourism opportunities; • The phasing out of the exploitation of natural energy resources (i.e. Gas); • Developing the potential of renewable energy resources in particular off shore wind and ocean energy; • Increased pressure for development of recreational / amenity uses in coastal and marine areas and enhanced recreational access to Cork Harbour; and • Impacts of flooding and coastal erosion on coastal communities. • Recognise that the Common Fisheries Policy supports sustainable fishing for a long-term stable food supply. 7.1.4 Given the macro nature of this subject area, it should be read in conjunction with the following chapters of this plan; Chapter 11 Water Management, Chapter 15 Biodiversity and Environment and Chapter 17 Climate Action. 7.2 The County Cork Coastline 7.2.1 The Cork coastline extends for some 1,100 km, which is approximately one fifth of the national coastline. It is home to approximately 65% of the County’s population who live on or adjacent to the coast, including seven inhabited West Cork islands. It contains areas of intense activity and some of our most important economic activities are located here. The Port of Cork, Whitegate Oil Refinery, Whiddy Island Oil Trans-shipment Terminal and Castletownbere fisheries port are of national importance. Fisheries 7.2.2 With fish landings of over €9 Million, Union Hall is listed as number 8 in the top 10 fishing ports in Ireland, and when combined with the value of landings for the ports of Ballycotton, Kinsale, Union Hall and Baltimore, it brings the total to over €18 Million (SFPA, 2019). These figures exclude smaller piers like Schull, Courtmacsherry, Youghal, and do not take into account ‘community harbours’ where other essential activities like net mending and repairs can be carried out. These figures also exclude goods outside of fisheries which are a significant part of these Port activities. Castletownbere is a good example of this, as in addition to the €106 million which is the value of fish landings, there is in excess of €90 million in Salmon and about €2 million in mussels totalling an excess of €198 million euros of total value. GO TO CONTENTS

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   145 Table 7.1 Overview of landings in CCC main ports by Weight – All Vessels Port Quantity Landed in Tonnes Value of fish landings Union Hall 2872 €11,527,558 Baltimore 1209 €2,130,187 Ballycotton 734 €3,297,527 Kinsale 1048 €2,848,468 Castletownbere 34613 €105,989,464 (Data Source: Dept of Agriculture Fisheries Harbour,2019) 7.2.3 There are a total of 478 inshore fishing vessels based in the South West (Cork and Kerry), the Cork Coastline is probably the busiest in Ireland in terms of under 12 metre vessels. Those vessels typically use the very dense network of smaller “community harbours” along the Cork Coast and are essential in providing jobs in rural areas. Ports and Harbours 7.2.4 The Port of Cork is identified in National Ports Policy (NPP) as a Port of National Significance (Tier 1) and is a Core Port within the TEN-T (European Union’s Trans European Network – Transport). Inclusion in the core network reflects its significant volumes of traffic and its high level of international connectivity. (See Chapter 12 Transport and Mobility) 7.2.5 There are two commercial ports operating within the County, at Youghal and Kinsale. The quantity of bulk goods received in Kinsale for 2018 was 47,000 tonnes and Youghal was 53,000 tonnes. (Data from the CSO, Statistics of Port Traffic 2018) While those two figures only represent approximately 0.5 % of all dry goods handled by Irish ports in 2018, they nonetheless play an important regional role as a facilitator of the regional economy. Their size, location and proximity to other sectors of the local economy enable them to play an important role in the development of “Short Sea Shipping” routes in the South and South West of Ireland. Aquaculture 7.2.6 It is important to acknowledge the essential role played by Roaringwater Bay, Dunmanus Bay and Bantry Bay in aquaculture activities. These areas are mostly involved in shellfish production with a small number of sites licensed for finfish farming. A recent survey of aquaculture sites carried out by the Harbour Masters’ section established that a number of Cork County Council piers in the Beara Peninsula were extensively used by fish farmers and provide opportunities for valuable local employment. Other areas like the Bandon River or Oysterhaven export high value products (oysters) to the European market. Aquaculture developments must take account of the ecological, social and scenic impacts of any such development and these factors will be taken into consideration during the assessment process. Tourism 7.2.7 The natural assets of the Coastline including its harbours and numerous beaches enable the County to offer tourism as an important economic activity. The Coast also contains some of our most stunning scenery and supports habitats and species of international importance. Cork Harbour is the most significant port in the state, outside Dublin, and has an important role in the continuing success of the marine – leisure, recreation and tourism sectors in the Southern Region. The Council recognises that areas of the Coastline are a valuable amenity resource with significant recreation potential. The detailed policies and objectives relating to sustainable tourism development are outlined in Chapter 10 Tourism. The coast also contains significant stretches which are undeveloped, remote and peaceful. A common characteristic of our entire coastline is its complexity. GO TO CONTENTS

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   146 7.3 National and Regional Marine Planning Policy Marine Spatial Planning Directive (2014) 7.3.1 In 2014 the European Parliament and the Council of the European Union adopted Directive 2014/89/EU. This directive established a framework for Marine Spatial Planning and set in motion a number of legislative and policy requirements for each of the member states including Ireland. The first of these was the transposition of the Directive into national legislation by way of regulations made in 2016 (SI 352 of 2016). Since the regulations were made under the European Communities Act 1972, they were strictly limited to measures required to transpose the directive. However, in October 2018 these regulations were repealed and replaced by Part 5 of the Planning and Development (Amendment) Act 2018 . Part 5 re-transposes the Directive in primary legislation and contains a number of measures that are additional to those required by the directive, including: • Adoption of the National Marine Planning Framework (NMPF) by both Houses of the Oireachtas; • Review and replacement of the NMPF every 6 years; • Obligation for marine regulatory bodies to secure the objectives of the NMPF when making policies, plans, or granting consents; and • Enforcement powers for the Minister if the foregoing obligations are not being fulfilled. 7.3.2 This legislation will be repealed and replaced by the forthcoming Marine Planning and Development Management Bill (see section 7.4). National Marine Planning Framework Roadmap ‘Towards a Marine Spatial Plan for Ireland’ (2017) 7.3.3 The NMPF Roadmap ‘Towards a Marine Spatial Plan for Ireland’ – a roadmap for the development of Ireland’s first marine spatial plan was published in December 2017 and set out four broad stages in the development of the plan. • Stage 1 of which the Roadmap formed a central part, was the start-up or activation phase during which the Government’s proposed approach to developing MSP • Stage 2 the main development stage, involved the preparation and publishing for public consultation the Draft NMPF and associated environmental reports. • Stage 3 is the finalisation phase during which the final NMPF and associated environmental reports will be prepared for submission to Government and adoption by the Oireachtas before forwarding to the European Commission ahead of the March 2021 deadline set out under the Directive. • Stage 4 is implementation, monitoring, enforcement and review commencing on adoption of the NMPF. National Marine Planning Framework Baseline Report (2018) 7.3.4 The previous milestone in the process was the publication for consultation of a report setting out the context in which the NMPF is being developed and which would help to identify the key issues marine planning will need to address. The National Marine Planning Framework Baseline Report was published 18 September 2018 and sets out: • The policy, legislative and regulatory context for marine spatial planning and the development of Ireland’s first plan; • A description of the “as is” situation in terms of existing sectoral development and activities in Ireland’s maritime area, including an identification of the future opportunities and constraints for each; • An initial elaboration of potential high level objectives for Ireland’s first National Marine Planning Framework; and • A number of consultation questions or issues intended to prompt discussion and consideration amongst stakeholders. Marine Planning Policy Statement (2019) 7.3.5 The Marine Planning Policy Statement serves as a parallel to the 2015 Planning Policy Statement which underpins the operation of the entire land-planning system in Ireland. It applies to all facets of marine planning. It reflects the comprehensive updating and renewal now underway of Ireland’s marine planning system, setting out core principles to inform evolving marine planning and development management process. 7.3.6 The integration of environmental, economic and social considerations are highlighted in the MPPS as a key strategic principle for the marine planning system. The obligation to achieve or maintain good environmental status (GES) under the MSFD and obligations under other environmental laws such as the Water Framework Directive and the Birds and Habitats Directive can be supported through a well-functioning marine planning system. It will also be a key enabler of Ireland’s ability to deliver on our obligations under the Marine Strategy Framework Directive and OSPAR Convention, our GO TO CONTENTS

7. Page 147

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   147 climate change and renewable energy targets, and on future ports development. The Marine Planning Policy Statement sets out the following: • Describes the existing components of Ireland’s marine planning system; • Outlines a vision for the future development of our marine planning system; • Sets out the overarching policies and principles the Government expects marine planning bodies and other public bodies that engage with the marine planning system to observe (in terms, for example, of public engagement, transparency, governance, environmental assessment, climate action, social and economic benefit); • Sets out high-level priorities for the enhancement of the marine planning system in Ireland Figure 7.1: Diagram showing the relationship between Marine and Terrestrial Planning Policy at National and Regional Level (Draft NMPF) National Marine Planning Framework (2021) 7.3.7 On 30 June 2021, the government published the National Marine Planning Framework (the NMPF). It is the first maritime spatial plan for Ireland, prepared in accordance with the EU’s Maritime Spatial Planning Directive. The NMPF is the national plan for Ireland’s maritime area, and is the equivalent of the National Planning Framework onshore. The NMPF sits at the top of a hierarchy of plans and sectoral policies for the marine area. It comprises a single plan for the entire maritime area, with more detailed regional plans envisaged at a later date. It has been prepared with an ecosystem-based approach and informed by best available knowledge. As part of the preparation of the NMPF, a Strategic Environmental Assessment (SEA) and Appropriate Assessment (AA) have been carried out. The NMPF includes a number of “Overarching Marine Planning Policies” (OMPPs), which will apply to all marine activities or development. These OMPPs fall into three categories: Environmental, Economic and Social. Within these categories, the NMPF sets out more detailed policy imperatives including co existence, biodiversity, coastal and island communities and infrastructure. Additionally, the NMPF sets out activity-specific or “sectoral marine planning policies” (SMPPs), which apply to particular classes of activities. The NMPF arranges these policies into 16 general sectors, including energy, wastewater treatment and disposal, fisheries, ports, and aquaculture and tourism. 7.3.8 Cork County Council aims to be a first mover in terms of establishing the fundamental policies and implementing the objectives of the NMPF which will be of greatest benefit for our coastal and island communities. In this regard, Cork County Council is keen to both support the potential of the marine environment by nurturing opportunities for innovation in the Maritime economy but also to support and preserve the environmental and ecological conservation status of our natural marine resource. GO TO CONTENTS

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   148 County Development Plan Objective MCI 7-1: National and Regional Marine Planning Policy (a) Work with the appointed Implementation Groups for the National Marine Planning Framework (NMPF) 2021. (b) Support the potential of the marine environment by nurturing opportunities for innovation in the Maritime economy while ensuring that its ecosystems are managed sustainably. 7.4 Maritime Area Planning Act, 2021 7.4.1 The Maritime Area Planning Act (the MAP Act), which is the new legislative framework for forward planning, development management and enforcement in Ireland’s offshore area was signed into law on the 23rd of December, 2021. This legislation puts in place a comprehensive and coherent planning system for the entire Maritime Area including: • A forward planning regime for the maritime area; • A new streamlined development management system for the maritime area incorporating consenting for the occupation of the maritime area (Maritime Area Consents and licencing) and a new planning consenting regime (to be implemented by coastal local authorities and An Bord Pleanála • The establishment of a new agency, the Maritime Area Regulatory Authority (MARA) to manage the occupation of the maritime area and to enforce the provisions of the new regime. It is intended in the Bill that MARA will grant Maritime Area Consents; licence specified maritime usages; ensure compliance and enforcement of MACs, licences and offshore development consents; assume responsibility for the management and enforcement of the existing foreshore portfolio of leases and licences currently administered by the Minister for Housing, Local Government and Heritage; and provide a platform for inter-agency cooperation and collaboration. 7.5 Other Marine Related Strategy Documents Harnessing Our Ocean Wealth 7.5.1 Harnessing Our Ocean Wealth – an Integrated Marine Plan for Ireland was published in July 2012. This document sets out the Government’s Vision, High-Level Goals and Key ‘Enabling’ Actions to put in place the appropriate policy, governance and business climate to enable our marine potential to be realised. Since the publication of HOOW there have been annual updates on progress towards implementation. These documents provide an update on key activities undertaken to the end of each given year. Harnessing Our Ocean Wealth (June 2019 Update) 7.5.2 The Marine Coordination Group (MCG) continues to review and report on progress in implementing Ireland’s Integrated Marine Plan - Harnessing Our Ocean Wealth. This is carried out on an ongoing basis through regular meetings of the MCG and other inter-departmental/agency forums, publishing an annual Review of Progress, and usually coincides with the annual Our Ocean Wealth Conference/SeaFest Events, 7.5.3 The most recent, of these Annual Review of Progress Reports (Sixth) was published in June 2019, and provides an overview of the main activities across a range of actions undertaken by Government Departments and their State bodies in 2018. The report also captures major deliverables for 2019. 7.6 Coastal Management 7.6.1 The Coastal Zone is a very special place with unique interactions between people and their environment. Historically, different parts of the coastal zone have been managed by a number of Government Departments and agencies. This has sometimes resulted in a lack of co-ordination, leading to difficulties for the people and environments of these areas. The inter-relations between people and their natural environment is not confined within administrative boundaries and so there is a clear need for regulatory bodies to work together to best manage the coastal zone. 7.6.2 The Council is the primary regulatory body on the landward side but its remit extends only as far as the High Water Mark. The foreshore, under Irish legislation, extends from the High Water Mark to a point of 23 kilometres from the Low Water Mark. The foreshore consents regime is currently under review with proposals under consideration to integrate the process within the existing consent system under the Planning Acts. The Environmental Protection Agency is responsible for licensing of waste discharges at sea. GO TO CONTENTS

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   149 7.6.3 The Government have initiated the first steps in developing an Integrated Marine Plan for Ireland through the publication of ‘Harnessing Our Ocean Wealth’ in 2012, which sets the policy context to ensure the right conditions exist to drive the potential of the marine economy, in a way that contributes both to environmental protection and to sustainable growth and development. The EU Marine Strategy Framework Directive (MSFD) requires Member States to prepare marine strategies for their marine waters and preliminary work on Ireland’s implementation of the MSFD is underway. County Development Plan Objective MCI 7-2: Development in Coastal Areas (a) Sustainably manage development within the coastal zone taking account of its environmental, ecological, heritage and landscape values (b) Encourage development generally to be located in accordance with the settlement policies of this Plan and in particular to recognise the limited capacity of many coastal areas for accommodating development on a large scale. (c) Reserve sufficient land in the various settlements to accommodate the particular requirements of coastal ports, harbour development, boat storage and other coastal industry and to improve access to and support the continued development of the ports in County Cork as marine related assets in accordance with the RSES. Also support the provision of infrastructure for the renewable energy sector. The identification of any such lands will need to be subject to environmental, nature conservation and other heritage considerations. EU Integrated Coastal Zone Management (ICZM) Projects 7.6.4 Cork County Council has taken a lead in this field through its participation in the EU Demonstration Programme on ICZM with the development of the Bantry Bay Coastal Zone Charter. This Charter was the first Integrated Coastal Management Plan in Ireland and was developed on the basis of consensus amongst all local stakeholders and regulatory bodies on how the coastal zone should be managed. The Charter pioneered innovative, ground-breaking techniques in public participation, stakeholder involvement and coastal zone management. The lessons learned and experienced gained from the Charter have helped to define the way ahead for coastal management in County Cork. 7.6.5 The Council was further involved in European Projects relating to ‘Integrated Coastal Zone Management’, namely the COREPOINT and IMCORE EU INTERREG Projects which used Cork Harbour as a case study area. 7.6.6 The primary aim of IMCORE Project which ran from 2008 to 2011 was to promote a transnational, innovative and sustainable approach to reducing the full range of climate change impacts on the coastal resources of the North West Europe region. Key to achieving this aim was a focus on building capacity within local authorities, in order to tackle the current and future impacts of climate change, and to meet these challenges through an adaptation-based response. Cork Harbour Study 7.6.7 The Cork Harbour Study, prepared by the Planning Authority reflected the broad aims of the COREPOINT Integrated Management Strategy for Cork Harbour (2008) and has since provided a sound evidence base informing planning policy formulation for the Harbour Area. The Study sought to promote a more integrated approach to development of the Harbour, using a coastal zone management (CZM) approach. It examined how various needs and demands for space close to the shoreline interact with each other, and with the inherited physical form of the Harbour. Some recurrent themes common to different parts of the Harbour were evident from surveys: a) Steep linear coastal settlements, e.g. Cobh, Passage West and Crosshaven, b) Major coastal transport corridors running along the (original) Harbour shoreline, c) Port related industrial areas on the seaward side of coastal transport corridors, d) Competition for space and access in narrow level waterfront areas, primarily due to (a) - (c). 7.6.8 The Study emphasised that harbour side land is a finite resource. Of the 72km2 within 0.5 km of the Harbour shoreline, 1/9th was developed in 1934 and 1/3rd in 2005. On a trend basis 2/3rds could be developed by 2055. The balance between developed and natural/recreational areas around the Harbour could easily be lost. Conventional suburban housing is the largest single user of harbour side land. Apart from loss of amenities, it could exhaust the limited supply of level harbour-side land. 7.6.9 Up till now, land beside the Harbour has been zoned – or not zoned - on much the same criteria as in other parts of County Cork. A more selective approach is needed, so as to: • Minimise development for uses without any particular need to be beside the Harbour, or substantial community benefit from being there (relative to an alternative location inland). • Maintain availability of land which is or could become a source of competitive advantage for sectors such as energy, marine transport, tourism and the pharmachem/biopharm cluster. GO TO CONTENTS

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    150 7.6.10 The Study puts forward a variety of ideas and options which involve synergy between different uses in constrained coastal areas, so development within them can meet a wider range of needs in a mutually compatible way. This does not imply that projects involving a high level of synergy in such areas are always preferable to alternatives involving lower levels, but does imply they should be considered. The non-statutory nature of the Study allows it to reinforce the broad CZM perspective through more specific practical suggestions and options, without giving them mandatory status. Its long-term horizon (to 2050) allows inclusion of suggestions which are not realisable within the time period of a statutory plan, but may become so in the longer term, or due to changed circumstances. 7.6.11 The balance between development and agricultural/forestry/amenity uses is one of the attractions of Cork Harbour, but realistically, it will only be maintained if the public supports it because they benefit from its recreational amenities. The Study proposes a number of ways of increasing public access to amenities such as coastal fortifications, shoreline cycle and pedestrian routes, marinas and other forms of access to water. There has been significant progress in all these areas in the last few years, but much remains to be done. 7.6.12 There has been a significant level of development to facilitate the marine leisure sector, to defend land, and to develop other marine activities within Cork Harbour. Some of this increases human activity within or close to intertidal habitats, and reduces the area of undeveloped intertidal habitat which is available for species of birds for which the Special Protection Area (SPA) has been designated. There is a concern that any further development which increases the level of access to estuarine habitats, or reduces the area of intertidal habitat available to birds within the SPA, may be unsustainable, having regard to the potential for such development to give rise to impacts on birds. The assessment of future proposals for development which could cause increases in human activity on shoreline habitats within the Great Island Channel SAC and Cork Harbour SPA or which could reduce the area of intertidal habitat available to birds, must take account of the overall capacity of the SPA to absorb such development, and that future development of coastal recreation facilities in the harbour should only be permitted where it is found that they can be accommodated without causing significant disturbance to sensitive species or significant damage to habitats or conservation value. 7.6.13 More recently, Cork County Council has completed an analysis of the future potential of the Cork Harbour Economy – see Chapter 8 Economic Development. County Development Plan Objective MCI 7-3: Integrated Coastal Zone Management (a) Support the development of an integrated approach to coastal zone management in Ireland generally and in particular to foster the application of this concept in appropriate coastal zones throughout the County including Cork Harbour. (b) Where the sensible identification of coastal zone units involves crossing local administration boundaries, to co-operate with adjoining local / planning authorities in promoting integrated coastal zone management in a particular area. (c) Continue to work with the relevant Government Departments and other relevant stakeholders in the promotion of integrated coastal zone management and following the adoption of the NMPF to identify those coastal areas that may have particular coastal zone management requirements and, where appropriate set out any requirement that may exist for special coastal management plans. Coastal Protection 7.6.14 The coast is an ever-changing dynamic environment, subject to the continuous natural processes of erosion and deposition. While erosion is a normal occurrence in coastal areas, rates of erosion may be accelerated due to storm action, inappropriate development or the presence of man-made protection works. In addition, the impacts of predicted sea level rise due to climate change need to be considered. The predicted increase in the frequency of storm surges and high tides will increase the extent, severity and recurrence of coastal flooding and may also lead to increased rates of coastal erosion. 7.6.15 New coastal protection schemes will be necessary in the future to protect coastal areas which are vulnerable to erosion. There are two approaches to coastal protection; ‘Soft’ engineering which uses ecological principles / practices which support the natural processes and ‘Hard’ engineering which is defined as controlled disruption of natural processes by using manmade structures. The cost of hard engineering structures and maintenance is high and therefore is generally only used to protect high value assets. Therefore, the role that retaining and enhancing coastal habitats such as beaches, sand dunes and wetlands can play as a sustainable and cost effective alternative, needs to be recognised as a key component of coastal protection and flood management. Measures for coastal protection should be carefully assessed to ensure they are economically and environmentally justified. GO TO CONTENTS

Source Cork County Council: Cork County Development Plan 2022–2028 – Volume One: Main Policy Material (2022–2028) · 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.