Development plan · Cork County Council
Cork County Development Plan 2022–2028 – Volume One: Main Policy Material
The council's development plan written statement: its strategy, policies, objectives and development standards. Variations adopted since are not in this text.
Cork County Council · 2022–2028 · 564 pages
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- 411 19.2 Plan Evaluation and Reporting 19.2.1 The implementation and monitoring framework are intended to function as a formal feedback loop with the evaluation and reporting processes intended to comprise a key input into the formulation and refinement of future planning policy. In this manner, the framework is intended to serve as an important evidence-based input and integrate with the Review process of subsequent County Development Plans. In terms of its formal evaluation role, the framework is intended to assist the Planning Authority in meeting its statutory reporting requirements including: • The 2 Year Progress Report of the County Development Plan (as required under Section 15(2) of The Act). • Report to the Regional Assembly setting out progress made in supporting objectives of the RSES (as required under Section 25A(1) of The Act). 19.3 Environmental Monitoring 19.3.1 Article 10 of the SEA Directive requires monitoring of the significant environmental effects of the implementation of the County Development Plan in order to identify, at an early stage, unforeseen adverse effects and to enable appropriate remedial action to be undertaken. While the monitoring framework set out in Appendix J incorporates some monitoring of environment related objectives, the full and comprehensive monitoring and evaluation assessment, required to be undertaken under Article 10 of the SEA Directive, is set out in the Strategic Environmental Assessment that accompanies the County Development Plan. 19.4 Changing Delivery Context 19.4.1 As stated, the Planning System - including all actors, public and private - seeks to link current statutory policy with future implementation. Local development plan objectives give effect to national policies and the implementation of those objectives are informed by the delivery context. 19.4.2 As set out in this Plan, it is evident that the national/regional policy context has changed significantly under the National Planning Framework/Regional Spatial and Economic Strategy. However, the fiscal context and delivery mechanisms giving effect to the delivery of planned growth – particularly relating to housing growth - have also changed. 19.4.3 To a far greater extent than during previous population, economic and housing growth periods, alignment between all actors is required to deliver growth that meets both of the following key criteria: • fulfils national policy requirements; and • is viable (for housing, delivery costs must match affordability as set by macro-prudential lending policy) 19.5 Deliverability Actors 19.5.1 Commercial and housing growth delivery is the result of a complex sequence of direct and indirect interactions, informed by a wide range of informing and often competing factors/actors. Alignment of actors and actions is critical to achieve supply to meet demand/needs, and, efficiency to meet fiscal requirements/viability/competitiveness. 19.5.2 A mechanism for alignment at policy activation stage is required – and critically, a process that will: • allow for collective responsibility for delivering growth; • fulfil national policy requirements; • provide for viability/affordability/competitiveness; • at the settlements and site levels provide learnings that will inform implementation and future policy objectives 19.6 Critical Infrastructure 19.6.1 A constant challenge that remains from previous growth periods relates to the identification, provision and funding of infrastructure to serve communities and future growth – both private (on-site) and public (off-site) infrastructure. GO TO CONTENTS
- 412 19.6.2 Front loading of private investment to provide for on-site infrastructure is a challenge to economic and housing growth, complicated at strategic development sites where multiple landownerships exist. Regarding public (off-site) infrastructure provision, local authority’s development contribution schemes income cannot fully cover this cost and this construction industry contribution cannot be raised excessively - as for housing it will impact adversely on the ability to remain within the cost envelop requirements set by the Central Bank macro-prudential lending policy (i.e. costs cannot be passed onto the house purchaser), and, for economic/employment growth it will impact on overall viability and competitiveness. 19.6.3 Alignment of investment in public infrastructure – prioritisation, timing and allocation of costs – by all public infrastructure delivery agencies is key to ensuring the activation of development lands. In addition, only through a coordinated and targeted public infrastructure investment plan that provides for advance servicing of residential development lands will the full activation impacts of the Government’s Vacant Sites Levy be achieved. 19.6.4 The mechanisms for the delivery of infrastructure have changed significantly, as Government has re-organised infrastructure responsibilities in recent years. The primary national sources of infrastructure funding are transportation (National Transport Authority (NTA), and, Transport Infrastructure Ireland (TII)); water services (Irish Water); urban and rural development (Urban Regeneration and Development Fund – URDF, Rural Regeneration and Development Fund (RRDF), and, Town and Village Renewal). 19.6.5 During 2019, Cork County Council Members approved the borrowing of up to €130m from the European Investment Bank (EIB) and Council of Europe Development Bank (CEB) over the next decade which will allow Cork County Council to progress a broad range of projects across the County, supporting growth target. This funding is to supplement public funding by NTA, TII, URDF, RRDF, and Town/Village Renewal. 19.6.6 Cork County Council is focusing the EIB/CEB funding on an investment program to support communities, create conditions to enable effective regional development and drive economic performance across the entire county. This borrowing, together with funding provided by the National Urban and Rural Regeneration Funds (URDF/RRDF) and Development Funds will facilitate progress across all the Council’s eight Municipal Districts. 19.6.7 The Council has established a dedicated Capital Programme Implementation Unit to deliver its Social Sustainability Investment Programme. Projects which are set to benefit under this scheme include, town centre public realm upgrades, town inner relief roads, the development of parks and amenities, tourism related infrastructure, the protection of culture and heritage, energy efficiency projects and economic development. 19.6.8 These project types are critical to supporting growth across the County and specifically in creating the Key Attractors that will contribute to putting in place the necessary conditions to support growth as set out in the NPF. As a result, post- NPF the Council has undertaken a number of co-ordinated initiatives that will inform settlement specific interventions during the lifetime of this plan. These include: • On-going detailed analysis of the development land bank set out in this plan and the associated infrastructural needs. The findings of this analysis are dynamic and the work is on-going. • Urban Capacity Study in order to fully understand the specific needs and opportunities of County Town Centres and to identify interventions required to create Key Attractors to support existing communities and future commercial, retail and residential growth; • Analysis undertaken by Cork County Council relating to residential delivery of urban infill and edge of settlement residential growth; • To add to existing learnings arising from the Council’s Municipal District Offices’ operational activities, the Council’s Municipal District Offices are undertaking the design of Town Framework Plans to inform key interventions within County Main Settlements. These plans will provide a data-driven foundation for the identification of key interventions; • The Council’s Project ACT (Activating County Towns) involves a suite of measures to support Cork County towns generally and as they re-open for business post-Covid 19. The project works with local stakeholders in identifying priorities and actions to support town activation. The actions utilised vary considerably, including hard interventions (physical works/remediation, etc.) and soft interventions (supports/awareness-raising/promotion); and • Cork County Council has also prepared a number of Town Framework Plans which are area-based action plans based on a number of themes. Actions are derived from an analysis of a settlement’s asset base (e.g. heritage, amenity) together with targets to address issues such as vacancy, poor connectivity etc. The aim is to create a resilient, locally responsive, sustainable, vibrant and attractive town for current and future generations linked to short-medium term deliverable actions. A collaborative approach is advocated between Cork County Council and local stakeholders, who best understand local needs. To date, Town Framework Plans have been prepared in County Cork for Passage West and Kanturk and Chapter 3 Settlements and Placemaking sets out the main policies and objectives in this regard. 19.6.9 Cork County Council recognises that infrastructure requirements to support existing communities and planned for population / economic growth varies considerably and requires to be co-ordinated and targeted. 19.6.10 As it can take several years from project inception to completion, the loan funding secured by Council will allow Cork County Council to develop and agree a more strategic and medium term Capital Investment Program in tandem with targeted public investment by complementary infrastructure agencies and private sector investment. GO TO CONTENTS
- 413 19.6.11 Alignment between all actors and potential funding streams – public and private – will be critical to maximising the beneficial impact with Cork County and supporting the planned for residential and economic growth. The TII is responsible for investment in National Roads and the NTA is responsible for public transport promotion and licensing, as well as for the funding of certain sustainable transport investment programs in the County Metropolitan Area. Bus Éireann and Iarnród Éireann are the principal public transport operators in the County. Since 2014, Irish Water has taken over responsibility for all public water services infrastructure (water supply and wastewater). 19.6.12 Clearly, Cork County Council cannot deliver the vision for the County set out in this plan in isolation, as Public Transport, National Roads, Water Services and other funding mechanisms are all largely outside the control of local authorities. Therefore, the successful implementation of this plan is a combined effort, shared by a range of key stakeholders – and critically also including the support of existing and future communities. 19.6.13 Regarding infrastructure provision, this section of the plan seeks to align two key components as follows: • set out a clear vision of the infrastructure that must be delivered and indicate potential priorities for its delivery; and, • identify a collaborative and targeted process for infrastructure delivery that links infrastructure delivery and funding with a residential and employment growth programme. As set out previously in this section, to be effective this process must be flexible enough to respond to conditions and barriers at the settlement and site specific levels. 19.6.14 Appendix D provides an overview of the critical infrastructure needs of Cork County and also sets out the NPF Tier 1 or Tier 2 status of all residentially zoned lands, including the required infrastructure interventions to unlock these housing lands. Section 19.8 below sets out an Activation Mechanism identifying a collaborative and targeted process for infrastructure delivery. 19.7 Infrastructure Costs and Funding 19.7.1 As set out above, the alignment of actions by all actors in the provision of infrastructure to serve communities and future growth is critical. Creating the correct conditions to support growth has always been central to ensuring cost-effective and sustainable growth occurring, however post-economic crash fiscal constraints (in both public and private financing) and macro-prudential lending rules (for housing) has heightened the importance of achieving a high degree of efficiency in delivering development including infrastructure provision. 19.7.2 In terms of infrastructure costs to unlock residential development lands, there is a range of costs associated with sites and settlements. Furthermore, the estimation of costs cut across local, regional and nationally scaled infrastructure projects – especially within County Metropolitan Cork where significant infrastructure is needed to be provided to meet regional and national requirements in excess of the needs of local development lands. 19.7.3 Appendix D provides an overview of the critical infrastructure needs of Cork County and also sets out the NPF Tier 1 or Tier 2 status of all residentially zoned lands, including the required infrastructure interventions to unlock these housing lands. Work on the infrastructure costings at the site and settlement levels is ongoing, with an overview provided in the table below. 19.7.4 The delivery of key infrastructure projects will be monitored during the lifetime of the plan. Table 19.1 Key Infrastructure Costings Settlement Site Infrastructure Cost Range Settlement Infrastructure Cost Carrigaline €0 – c.€1.1m Carrigtwohill €0 – c.€15m (UEA Lands) c.€140m (includes national roads investments) Cobh €0 – c.€16m (UEA Lands) c.€105m (includes regional road investment) Little Island €TBD (Residential Reserve Lands) Midleton €0 – c.€22m (UEA Lands) c.€102m (Waste Water & Water Supply, and includes regional road investment) Passage West/ Glenbrook/Monkstown €0 – c.€493,000 c.€500,000 (Water Supply) GO TO CONTENTS
- 414 Bandon c.€500,000 (Water Supply) Fermoy €0 – c.€200,000 €TBD (Waste Water) Kinsale €0 – c.€200,000 c.€3.1m (Waste Water) Macroom c.€10.3m (Waste Water & Water Supply Mallow c.€20.1m (Waste Water & Water Supply) Youghal €TBD (Water Supply) Buttevant €TBD (Waste Water) Charleville €0 – c.€100,000 c.€11m (Waste Water & Water Supply) Kanturk €0 – c.€100,000 €TBD (Waste Water) Millstreet €0 – c.€150,000 Mitchelstown €0 – c.€75,000 c.€3.1m (Waste Water & Water Supply Newmarket €0 – c.€120,000 c.€1.5m (Waste Water & Water Supply) Bantry €0 – c.€1.706m €TBD (Waste Water & Water Supply) Castletownbere c.€100,000 – c.€120,000 Clonakilty c.€35,000 – c.€1.85m €TBD (Water Supply) Dunmanway €0 – c.€2.75m €TBD (Waste Water & Water Supply Schull €0 – c.€50,000 Skibbereen €0 – c.€2m Development Contributions and Public Infrastructure 19.7.5 The Planning and Development Acts provide that when granting planning permission, planning authorities may attach conditions to the permission requiring the payment of monetary contributions in respect of public infrastructure and facilities that benefiting development generally in the County. Details of the arrangements for the payment of these contributions are be set out in the County Council’s Development Contribution Scheme. The Department of the Environment, Community and Local Government have also published Development Contribution Guidelines (Jan 2013). 19.7.6 Additionally, planning authorities may, by further conditions attached to planning permissions, require the payment of a ‘special contribution’ in the case of a particular development where specific exceptional costs not covered by the Development Contribution Scheme are incurred in respect of public infrastructure and facilities which benefit the development. 19.7.7 The Central Bank macro-prudential lending policy, coupled with the challenge of financing construction projects, has introduced an additional discipline to the provision of public infrastructure also. GO TO CONTENTS
- 415 19.7.8 The current system of planning conditions and development contribution schemes/fees in Ireland represent a type of betterment levy as they seek to capture part of the value that is added through public investment in infrastructure. A background paper in 2015 from the Department of Transport notes that the current development contribution mechanisms have enabled much essential public infrastructure to be funded since 2000. 19.7.9 However, no development contribution scheme can meet the full cost of public infrastructure without applying an increase in levies that would impact on delivery costs – and by extension on the viability and affordability of development projects – and particularly of housing schemes. For all local authority areas, funding in addition to funds generated by their development contribution schemes will be required to provide necessary infrastructure to support the achievement of national policies and to provide the required conditions for population, economic and housing growth 19.7.10 In some instance during the last accelerated phase of economic growth and associated construction, investors and housebuilders chose to directly fund some off-site infrastructure that benefited their development scheme in order to accelerate their project. This option of enhanced cost-sharing is highly unlikely going forward due, in housing delivery due to the housing delivery ‘delivery cost envelope’ resulting from macro-prudential lending rules and the general fiscal constraints that inform the investment in the development sector. 19.7.11 Similar to the site-specific variations that can occur with the provision of on-site infrastructure, not all development locations share the same needs/costs in terms of off-site public infrastructure and local authority wide contribution schemes seek to evenly balance shortfalls across their operational areas. On-going detailed analysis being undertaken by Cork County Council of its development land bank highlights the varying costs of public infrastructure across its network of Main Settlements. 19.7.12 In the absence of advance funding that allows all development lands to be served by public infrastructure, and to ensure an orderly release of those development lands, alignment of investment off-site between public infrastructure agencies and on-site with the housebuilder is critical. Only in this manner can sufficiently high efficiency be achieved in servicing development lands where overall private and public infrastructure funding capacity is limited. 19.7.13 Following the issuing of Development Contribution Guidelines by the Department of the Environment, Community and Local Government, Cork County Council undertook a detailed review and analysis of its existing development contribution schemes to inform the adoption of its future schemes. The adoption of the National Planning Framework (2018), the realignment of the Cork local authorities’ boundaries (2019) and the adoption of the Southern Region RSES (2020) required this work to be paused. It is intended to adopt a new development contribution scheme(s) following the adoption of this County Development Plan. Future Infrastructure Funding 19.7.14 Future infrastructure funding will be critical to ensuring that the correct conditions to support growth are in place. 19.7.15 The changed delivery context, the multiplicity of delivery actors, and the required fiscal discipline - all as set out above - requires that funding for future infrastructure provision is consistent, multi-annual and sufficient. In the absence of these funding requirements, advance infrastructure will be difficult to provide and will be limited. This will have a significant impact on Cork County Council’s ability to utilise its ALM activities – the Government’s Vacant Sites Levy – to activate development lands. 19.7.16 As has always been the case, the costs of public infrastructure provision will be met by a combination of public and private financing. To protect the public purse and to ensure that the benefits arising from public expenditure is maximised, settlement and site specific interventions need to be understood and aligned between all infrastructure agencies. This is also required to ensure that maximum efficiency is achieved by controlling infrastructure related development contributions by the private sector as much as is practicable in order to assist in controlling delivery costs. 19.7.17 Currently, public infrastructure funding is provided through a range of mechanisms, including: • Urban Regeneration Development Fund; • Rural Regeneration Development Fund; • National Transport Agency; • Transport Infrastructure Ireland; • Irish Water; • Town/Village Renewal; and • Development Contribution Schemes. 19.7.18 As stated, by creating a process of defined alignment in terms of funding, interventions and priorities (aligned also with landowner/investor engagement), expenditure on public infrastructure can be utilised to maximum effect in terms of development activation and cost efficiency. This overall alignment is critical in order to give full effect to the Council’s Active land Management activities. GO TO CONTENTS
- 416 19.7.19 Cork County Council has been proactive in seeking to unlock development sites and providing for public infrastructure / key attractors to support development – including, generating a complementary funding stream through engagement with EIB/CEB and assisting is providing solutions for on-site infrastructure funding. Housing Infrastructure Services Company 19.7.20 Housing Infrastructure Services Company (HISCo), is a joint venture between the Council and the Irish Strategic Investment Fund (ISIF), providing funding for necessary on-site infrastructure. This initiative addresses a key challenge in housing activation. 19.7.21 The objective of HISCo is to provide an infrastructure design-build-finance package on a commercial basis for landowners and housing providers that will overcome delivery barriers and enable a market return for investors. The initiative provides for on-site infrastructure which: • crosscuts multiple (and/or single) land ownerships; • alleviates working capital constraints, allowing capital to be allocated towards housing provision; and, • facilitates the delivery of construction opportunities at a scale attractive to the regions’ construction firms. 19.7.22 The relationship between HISCO and its customers is governed by an Infrastructure Agreement that will govern the infrastructure to be developed and infrastructure fees to be paid. Return on Investment 19.7.23 Critical to all investment is an understanding for the need and purpose of the investment, as well as the expected returns – financial and wider. In terms of a financial return on infrastructure investment within Cork County, Cork County Council has undertaken two studies that demonstrate a high return to the exchequer, as follows: Study conducted by Cork County Council – County Metropolitan Town, 2019 19.7.24 Based on a study of an edge of settlement residential development at a Cork County Metropolitan Main Town, the overall return to the exchequer for delivering a 3-bed semi-detached, 113 sqm residential unit is c.€81,000. This figure includes direct and indirect income arising from all activities associated with delivering this housing unit. Study conducted by Cork County Council – County Cork Harbour Economy, 2020 19.7.25 Based on a study of the existing County Cork Harbour Economy (CHE) and its growth potential, a c.€19.5bn infrastructure investment in the County Cork Harbour Area (and supported by complementary stakeholder alignments) would raise the CHE GDP from its current €4.5bn to potentially €12.4bn yielding c.€769m return at the development phase and c.€643m annual return to the exchequer. 19.7.26 In summary, exchequer funding provided to support the delivery of Cork County growth targets as set out under the NPF will generate a positive ROI to the State. 19.8 Activation Mechanism 19.8.1 Having regard to the changed delivery context for policy implementation (particularly regarding housing delivery), as well as the multiplicity of actors in the implementation process, an activation pathway is required to ensure delivery of national, regional and local policy objectives and that viability, affordability and competitiveness are maximised. 19.8.2 This activation pathway requires to have the following four characteristics: • alignment of actors; • adequate and advance funding; • provide for engagement at the site specific level; and, • have enough flexibility to overcome activation and viability barriers at the site specific level. 19.8.3 Recognising the critical challenges in delivering affordable housing, Government has introduced a range of measures to assist in this regard - including in 2015 the Urban Regeneration and Housing Act. This Act introduced a Vacant Sites Levy applicable to residential development lands that are capable of development (i.e. serviced lands). The purpose of this Levy is to incentivise the activation of serviced residential development lands through the application of an annual 7% of market value levy. GO TO CONTENTS
- 417 19.8.4 In Cork County there is currently advance infrastructure in place for c.7,000 residential units to be constructed. Based on NPF residential targets, this capacity will be absorbed within the early delivery period of this County Development Plan. Additional public infrastructure capacity will be required to be created in order to facilitate housing delivery generally, but critically the provision of this new infrastructure capacity will be required to: • have regard to lead-in times for infrastructure provision (usually a minimum of two years for significant works); and, • be targeted at specific locations that reflect housing needs. 19.8.5 Only when sufficient and targeted public infrastructure capacity is available will the full impact of the Vacant Site Levy be achieved. 19.8.6 An activation pathway for scheme housing and commercial investment will ensure that the County Development Plan identified residential development land bank is activated, housing delivery meets the locational, typology and market price needs of County Cork residents, and that complementary commercial / employment facilities are delivered. This activation pathway features: • a local authority led process of targeted public infrastructure investment/priorities by multi agencies at agreed development locations/timing; • committed multi-annual funding for public infrastructure; • landowner and investor positive and structured engagement; • targeted use of the Vacant Site Levy process to give effect to national policy and local housing / employment needs; and • monitoring of development activation and use learnings to inform investment decisions, prioritisations, and, identification of future development land banks. 19.8.7 In relation to the preparation of Local Area Plans the Local Authority will prepare such Plans where their preparation will act as a key implementation mechanism, especially to promote regeneration and the delivery of significant housing and/ or employment growth. Where Local Area Plans are prepared, they will be accompanied by Local Transport Plan where appropriate. Such Local Transport Plans will be prepared in consultation with the NTA and TII. 19.9 Monitoring the Implementation of this Plan 19.9.1 The Planning Directorate of Cork County Council is primarily responsible for monitoring and implementing the Development Plan, mainly through the development management function. However, it is important to note that this Plan co-ordinates the work and objectives of other key departments within the local authority, such as Economic Development, Roads, Environment, Housing and Community Development. In some cases, the body responsible for the implementation of certain plan objectives may be external, such as the National Roads Authority, the National Transport Authority or Irish Water etc. 19.9.2 Reflecting the dynamic process within which this County Development Plan is delivered within the overall framework of the NPF and RSES, as plan implantation is monitored appropriate actions will be taken to adjust the plan - supported by an evidence based approach. Adjustments may include changes to Policy Objectives or the zoning regime in order to take account of changing circumstances. 19.9.3 The implementation and monitoring framework for the Plan is set out in Appendix G. 19.9.4 The Planning Authority will improve on reporting by establishing a strong, frequent and ongoing monitoring system for the Plan as a permanent function in line with the Draft Development Plan Guidelines for Planning Authorities issued by the Department of Housing, Local Government and Heritage August 2021. The Planning Authority will place particular focus on biodiversity monitoring during the lifetime of the Plan which will be predominately delivered through the Strategic Environmental Assessment (SEA) monitoring process (see Paragraph 19.3.1). In light of this, the biodiversity monitoring targets and indicators in Volume 6 of the Draft Plan have been reviewed and revised with a focus on more tangible measurements and accounting methodologies (see addendum to SEA). Local Economic and Community Plans 19.9.5 The preparation of a Local Economic and Community Plan (LECP) by all local authorities is provided for in the statutory Local Government Reform Act 2014. This Act requires that a six-year plan be adopted by Cork County Council, setting out high level goals, objectives and actions required to promote and support local economic and community development within the County. The LECP must include two elements: • a local economic element, and • a community development element GO TO CONTENTS
- 418 19.9.6 Cork County Council adopted its first LECP in 2016. 19.9.7 The guiding legislation requires that the LECP will be consistent with its informing strategies, set at a European, National and Regional level, while also being consistent and integrated with complementary plans at its own level. In particular, the LECP must be consistent with the Core Strategy and objectives of this Plan and of the Regional Spatial and Economic Strategy (RSES). 19.9.8 The LECP is required to be underpinned by a number of guiding principles, reflective of the development focus of the European Commission to create a smart, inclusive and sustainable region. These guiding principles are: • Promotion and Main Streaming of Equality • Sustainability • Maximising Returns • Participative Planning • Community Consultation and Engagement • Community Development Principles • Accessibility and Ownership 19.9.9 Importantly, the LECP is not presented as a stand-alone document but rather is informed by, and contributes to, the wider suite of national, regional and local strategies including the County Development Plan. The LECP provides a conduit for the identification, delivery and monitoring of local actions that give full effect to national, regional and local strategies including the strategies of the County Development Plan. As such, the LECP and its supporting process should be viewed as part of this Plan’s implementation strategy and monitoring. GO TO CONTENTS
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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.