Ministerial guidelines
Development Plans: Guidelines for Planning Authorities
How a council prepares its development plan: the core strategy, mandatory objectives, consultation and monitoring.
Department of Housing, Local Government and Heritage · June 2022 · 136 pages
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- Development Plans Guidelines for Planning Authorities Prepared by the Department of Housing, Local Government and Heritage June 2022
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- Development Plans Guidelines for Planning Authorities
- Contents Minister’s Foreword 1 1. Purpose of the Development Plan 3 1.1 Introduction 3 1.2 The Purpose of the Development Plan in the Planning System 3 1.3 Balancing National Policy and Development Plan Formulation 4 1.4 The Legislative Basis for the Development Plan 5 1.5 The Development Plan and Investment 8 1.6 Planning from an Evidence Base and Monitoring the Outcomes 8 1.7 Guiding Principles for Quality in Plan-making 9 2. Plan Preparation 11 2.1 The Production of a Development Plan 11 2.2 The Development Plan Team 11 2.3 The Role of Elected Members 13 2.4 Purposeful Public Consultation 15 2.5 Stakeholder Engagement 18 2.6 Adjoining Planning Authorities 20 2.7 Plan Design and Presentation 21 3. Plan-Making Process 25 3.1 Stages in the Development Plan Review Process 25 3.2 Stage 1: Preliminary Stage 27 3.3 Stage 2: Pre-Draft - Commencing Review and Drafting the Plan 30 3.4 Stage 3 - The Draft Development Plan 34 3.5 Stage 4 - Material Alterations 37 3.6 Stage 5 - Adoption and Immediate Post-Adoption 38 3.7 Post-Adoption SEA and AA Requirements 39 3.8 Evaluation and Assessment Role of the Office of the Planning Regulator 40 3.9 Variation of the Development Plan 41 4. Core Strategy 43 4.1 Purpose of the Core Strategy 43 4.2 Statutory Requirements 43 4.3 The Core Strategy and National and Regional Policy 44 4.4 The Core Strategy and Zoning for Residential Use 46 4.5 Devising the Settlement Strategy 50 4.6 Other Core Strategy Requirements 55
- 5. Development Plan Objectives – Overview 59 5.1 Objectives of the Development Plan 59 5.2 Mandatory Objectives 60 5.3 Setting Measurable Objectives 61 5.4 Selecting Indicators 62 5.5 Non-Mandatory Objectives 65 5.6 Local Area Plan Preparation 65 6. Sustainable Development and Regeneration 67 6.1 Focusing on Sustainable Development 67 6.2 Mandatory Objective: Zoning 67 6.3 Mandatory Objective: Infrastructure 73 6.4 Mandatory objective: Regeneration 76 7. Mandatory Objectives: Communities and People 81 7.1 Integration of Development and Community 81 7.2 Mandatory Objective: Amenities (Development) 82 7.3 Mandatory Objective: Social, Community and Cultural Considerations. 84 7.4 Mandatory objective: Community Services 85 7.5 Mandatory objective: Traveller Accommodation 86 7.6 Mandatory objective: Gaeltacht Areas 87 8. Mandatory Objectives: Climate and Environment 89 8.1 Mandatory Objective: Climate Action 89 8.2 Mandatory Objective: Environment 98 8.3 Mandatory Objective: Major Accidents Directive 99 9. Mandatory Objectives: Heritage & Landscape 101 9.1 Related Mandatory Objectives 101 9.2 Mandatory Objective: Heritage 103 9.3 Mandatory Objective: Protection of Structures and Preservation of the Character of Architectural Conservation Areas 104 9.4 Mandatory Objective: Amenities (Natural Features) 106 9.5 Mandatory Objective: Landscape Character, Views and Prospects 107 9.6 Mandatory Objective: Rights of Way 108 9.7 Mandatory Objective: Landscape Protection and Management 109 10. Plan Implementation, Monitoring and Reporting 111 10.1 Delivering the Development Plan 111 10.2 Plan Implementation 112 10.3 Plan Monitoring 113 10.4 Reporting on the Development Plan 114 10.5 Measuring Spatial Development Patterns 115 Appendicies Appendix A - Core Strategy Worked Example 117 Appendix B - Recommended Standardised Zoning Objectives 127
- Minister’s Foreword I am delighted to publish the Development Plans, Guidelines for Planning Authorities under Section 28 of the Planning and Development Act 2000 (as amended) in their final format and am confident that they will prove an important tool for planning authorities in undertaking the production of their six-year development plan. I published a Draft for Consultation of the Guidelines last year in order to seek submissions from the many and varied parties that are interested in the development plan process undertaken by planning authorities. I am pleased to say that there was a positive reception of the Draft Guidelines generally, in particular to their incorporation of the many important changes that have been made to our development planning system since the previous 2007 version. All of the nearly 80 submissions made to the consultation process have been carefully considered and examined by my Department over several months. A number of important issues raised in the submissions received have been appropriately incorporated into these finalised set of Guidelines and I would like to thank all who took the time and effort to make a contribution to the consultation exercise. It has greatly assisted in the production of what I believe will be a significant step forward in the quality of plan making over the next number of years. The development plan process is a complex exercise with many important legislative and policy issues to be considered throughout what is a long and often exhausting procedure for all those involved. These Guidelines will hopefully act as an important reference manual to the overall process and will help those involved to effectively participate and produce a development plan that is consistent with strategic national policy but that also responds appropriately to the concerns of the local community. Planning and the development plan can be made much more effective if the process is understood through proper communication that is accessible to the maximum number of people. To this end, my Department has spent time to include many explanatory infographics and also relevant case studies of good practices from around the country in the document in order to enhance the understanding of the Guidelines and achieve their effective implementation by planning authorities. These Guidelines, together with the many other initiatives being undertaken to improve our planning system, will help support the creation of the quality places with vibrant communities that we all wish to live in. Thank you. Mr. Peter Burke T.D. Minister of State with responsibility for Local Government and Planning
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- | Development Plan Guidelines for Planning Authorities | Purpose of the Development Plan311. Purpose of the Development Plan 1.1 Introduction The Development Plan Guidelines constitute Ministerial Guidelines under Section 28 of the Planning and Development Act 2000, as amended (the Planning Act), and set out national policies and objectives for the preparation, making, variation and implementation of development plans. Section 28 provides that planning authorities and An Bord Pleanála shall have regard to Ministerial Guidelines and shall comply with any specific planning policy requirements contained therein, in the performance of their functions. 1.2 The Purpose of the Development Plan in the Planning System Within the Irish planning system, the county or city development plan is the principal planning strategy document for the development of a local authority area over the statutory time period of the plan. The development plan gives spatial expression to the physical, economic, social and environmental needs of the community, in order to support and regulate new development, enhance valued assets and amenities and protect the environment. Section 10(1) of the Planning Act states that: “A development plan shall set out an overall strategy for the proper planning and sustainable development of the area of the development plan and shall consist of a written statement and a plan or plans indicating the development objectives for the area in question.” Further to this, the key role of the development plan can be summarised as: Development Plan VISION POLICY STRATEGY INVESTMENT DELIVERY Establishing an inclusive local vision for generating positive change in the future growth, renewal and protection of the plan area Adapting national and regional policy objectives to the local context and providing the policy framework within which planning decisions on individual development proposals can be made Balancing competing interests and different future development options in the common good, to deliver better quality planning and long-term sustainable development outcomes Enabling strategic consideration of all relevant factors, to ensure an equitable, balanced and transparent approach to decision-making on spatial planning and physical development issues Influencing strategic and local investment in infrastructure and services by both the public and private sectors, through formulating policies governing the nature, scale and location of future change and planned development
- Development Plan Guidelines for Planning Authorities |4Purpose of the Development Plan | 1 The plan-making function of a planning authority now operates in a changing policy, institutional and regulatory framework which reflects the continually evolving nature of public administration and governance, the planning system and society in Ireland. These changes continue to have an important impact on the preparation, adoption and implementation processes for the development plan. Since 2015, Ireland has been a signatory to the United Nations Sustainable Development Goals (SDGs), which frame national agenda and policies to 2030. There is significant alignment between the UN SDGs, the National Planning Framework’s National Strategic Outcomes (NSOs) and the Regional Strategic Outcomes (RSOs) of the Regional Spatial and Economic Strategies, and this alignment should also be reflected in local authority development plans. 1.3 Balancing National Policy and Development Plan Formulation A primary focus of the development plan is to ensure that the plan that is adopted has been informed by the relevant plans and strategies of the Government and statutory public agencies, but has also been influenced by an understanding and analysis of the local context of the area for which it has been prepared. In this way, the development plan can be described as a process that seeks to combine the wider national or ‘top-down’ priorities with the more locally generated ‘bottom-up’ approaches to policy development, in a structured manner. A fundamental task at the heart of the development plan process is to achieve a critical balance between national and local priorities in the common good, and to formulate agreed objectives in compliance with national and regional policy, that are supported by the elected members (councillors), three Regional Assemblies, and the wider community. The National Planning Framework (NPF) The National Planning Framework (NPF) is Ireland’s long-term national-level planning strategy. The NPF sets out the overarching policy and planning framework for the social, economic and cultural development of the Country to 2040. The NPF is based on projected national population, housing and employment growth. Balanced regional development, urban and rural growth, sustainable infrastructural investment, environmental resource management, decarbonisation and other key strategic policies are encapsulated by the 10 National Strategic Outcomes of the NPF. The NPF strategy incorporates National Strategic Objectives of: • Securing balanced regional development by Growing Ireland’s Three Regions - Achieving balanced growth between the three regions, with the majority of the growth to be outside of Dublin and its suburbs. • Supporting the Capital – in particular the future growth and success of Dublin as Ireland’s leading global city of scale through addressing infrastructural bottlenecks, improving citizen’s quality of life and increasing housing supply in the right locations. • A critical challenge to driving regional growth and development is Creating Cities of Scale - Targeting the ambitious growth of Cork, Limerick, Galway and Waterford to 2040 and realise their significant potential to become regional drivers. • The full extent of the NPF as a national strategy is to be achieved by Supporting Rural Growth - Reversing town/ village and rural population decline, by encouraging new roles and functions for buildings, streets and sites. Managing housing needs arising in rural areas and promoting new economic opportunities. • Irrespective of whether an urban or rural context, Securing Compact and Sustainable Growth - Tackling the damaging and inefficient pattern of urban sprawl through favouring compact forms of development that that focus on consolidating the footprint of our existing settlements with new development. The National Marine Planning Framework Coastal planning authorities must also consider the policies and objectives of the National Marine Planning Framework 2021 and seek to provide an integrated policy in the development plan at the important coastal interface between the terrestrial and marine planning systems. Regional Economic and Spatial Strategies (RSESs) As a core function of the three Regional Assemblies, each must prepare a RSES that provides a more detailed regional application of national policy and set development priorities in population, settlement, economic, transport and other terms for their Regional Assembly area. The subsequent preparation of county and city development plans must be aligned with the RSES and ensure that the policies and objectives are consistent.
- | Development Plan Guidelines for Planning Authorities | Purpose of the Development Plan51 The development plan provides the opportunity for national and regional planning policy objectives to be considered in greater detail and applied at a local city or county level. It is the task of the development plan process to ensure that local context, circumstances and spatial variation are properly accommodated in the plan. For instance, utilising local knowledge and analysis to identify opportunities for town regeneration, employment growth and development of amenities are significant policy areas for ‘bottom up’ inputs to be captured in the plan process. Climate Action Ireland is committed to the key strategic challenge of addressing harmful greenhouse gas emissions. The National Climate Action Plan and local authority climate action plans provide the framework for climate action, setting out how Ireland intends to transition to a low-carbon society and are important statutory considerations in the preparation of development plans. The development plan has a key role in climate action through its capacity to promote sustainable settlement and transport-led development strategies in urban and rural areas, in particular in relation to the location, layout and design of development1. A focus on sustainable growth through compact urban and rural settlements, supported by accessibility to transport, jobs, services and amenities is key to reducing greenhouse emissions, inefficient land and natural resource consumption and environmental degradation. Targets for housing growth within existing settlements will support this shift in the pattern of development. The compact growth agenda is a key task for development plan preparation. Transition to a low carbon economy also requires a shift from predominantly fossil fuels to renewable energy sources. Accordingly, there is a need to address the spatial development of technologies such as wind, solar, hydro, ocean and bio energy projects, to make use of available resources and generate electricity in appropriate locations. Supporting the role of sustainable transport modes is key to ensuring the enhanced provision of high quality infrastructure for walking and cycling. Similarly, adaptation measures to deal the expected impacts of climate change, including flood risk management and coastal erosion are also critical considerations for the development plan. 1.4 The Legislative Basis for the Development Plan The legislative basis for the preparation, making, variation and implementation of a development plan is set out in Part II, Chapter I (sections 9-17) of the Planning Act. These provisions address content requirements and mandatory objectives, as well as procedural requirements and responsibilities, including timelines and public consultation procedures. The legislative context for the development plan includes a number of distinct roles and critical considerations, that together have greater effect in setting out an overall strategy for proper planning and sustainable development than the sum of their individual parts, especially when those parts are viewed reductively, as individual, legal process requirements. The key challenge is to ensure that all are applied in concert to achieve a coherent and integrated outcome to the plan-making process for the whole planning authority area. There is also scope for co-ordination across adjoining local authority boundaries to ensure such coherence, especially where the policies of one planning authority may impact those of another, thereby affecting the proper planning and sustainable development of a wider area. Role of the Council Executive It is the role of the Chief Executive of the planning authority, together with the relevant council staff, to assist and advise the elected members in preparing the development plan. This includes the fulfilment of statutory obligations, the content of the plan, the various consultation exercises, reports in relation to submissions made and addressing the inputs of elected members. The council executive is ultimately responsible for the overall production and delivery of the development plan. Elected Members as Decision-Makers The adoption, or ‘making’ of the development plan is the responsibility of the elected members of the planning authority (county or city councillors) and is a reserved function under Section 12 of the Planning and Development Act. The mechanisms and timelines for elected members to engage formally in the plan preparation process are also set out in the Act, including opportunities to propose and shape emerging plan policies. The decision-making role of the elected members and the stages of the process are addressed in detail in Chapters 2 and 3 of these Guidelines. In issuing strategic directions and making the development plan, the Planning Act restricts the elected members of the planning authority to considering the proper planning and sustainable development of the area to which the plan relates, the statutory obligations of any local authority in the area and any relevant policies or objectives for the time being of the Government or any Minister of the Government. 1 OPR Case Study Paper CSP05 ‘Climate Action and the Local Authority Development Plan’ provides useful advice in this regard
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