Development Plans: Guidelines for Planning Authorities

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   Development Plan Guidelines for Planning Authorities | 46 Core Strategy | 4 4.4 The Core Strategy and Zoning for Residential Use In order to give effect to projected population and housing supply targets for the development plan period, the plan core strategy must provide detailed and separate assessments of land already zoned and land proposed to be zoned for residential development. This must be set out in accordance with the settlement hierarchy identified in Section 4.5 below for each settlement with more than 1,500 persons at the last Census. This approach should also be applied to all rural settlements of less than 1,500 persons that include zoned residential or residential and mixed-use development land. Only rural settlements that do not include zoned residential development land should be aggregated with rural areas outside villages and towns for core strategy projected population and housing purposes. It is a policy and objective of these Guidelines that the development plan core strategy requirements set out in Section 10(2A)(c) and (d) of the Planning Act must be applied to each individual settlement where any land is zoned for residential purposes or a mixture of residential and other uses, including any applicable rural settlements with a population under 1,500 persons, and presented in clear, tabular format. This requires the provision of settlement and site-level information on housing and mixed-use development land, rather than broad, settlement-based targets for housing. Lands within the ownership of the local authority are to be considered as part of the overall analysis of zoning lands for residential use, requiring joint consultation and coordination between the planning and housing sections.

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   | Development Plan Guidelines for Planning Authorities | Core Strategy 47 44.4.1 Land/Sites Already Z oned The development plan review process is an opportunity to take stock of land already zoned for residential purposes or a mixture of residential and other uses. This must be set out in the plan core strategy. It is critical to note that Section 10(8) of the Planning Act makes it clear that there is no presumption in law that land zoned for any purpose in a development plan shall remain so zoned in any subsequent development plan. Extant Planning Permissions In undertaking an analysis of the area of land in hectares zoned for residential development in each settlement and the proposed number of housing units to be included in the area in accordance with Section 10(2A)(c), regard must be had to any extant planning permissions for residential development. The current and anticipated rate of housing delivery, both in relation to the site in question and the settlement as a whole also needs to be considered. Accordingly; • A site with a planning permission that has yet to commence may be regarded as having equivalent potential to any other zoned and serviced site for core strategy calculation purposes. • A site with a planning permission that has commenced, should not be wholly excluded from core strategy calculation purposes unless almost fully built-out. A reasonable estimate should be made of housing delivery from the permission that is likely to occur during the plan period. This should be informed by recent levels of housing output and local market absorption rates on a whole settlement basis, also allowing for a progressive increase in output. Land and sites already zoned for residential purposes may be regarded as providing a baseline, or starting point to meet projected population and housing targets, especially in cases where planning permission has already been granted, based on the presumption that land subject to planning permission is already serviced or serviceable. It is a policy and objective of these Guidelines that zoned housing land in an existing development plan, that is serviced and can be developed for housing within the life of the new development plan under preparation, should not be subject to de-zoning. Should it be the case that there is a surplus of well-located zoned and fully serviced land to meet population and housing supply targets already zoned for development in any local authority area when reviewing a development plan, it is recommended best practice that a phased approach be taken to prioritise the preferred sequence of development of such sites. However, phasing should be applied where there is a sound planning rationale for doing so, based on factors such as site location, the availability or proximity of, or capacity to provide, off-site services, facilities or infrastructure. This should also be viewed in the context of the urgent need to increase housing supply Phasing may not be necessary where the planning judgement is that unconstrained zoned and serviced housing sites are of broadly equivalent merit for development purposes in a particular settlement or area at the plan-making stage. In all cases, whether phasing is applied or not, development plans must build in sufficient flexibility to ensure that housing development not progressing on one or more sites cannot operate to prevent other suitable sites that may be developed within the life of the development plan, from coming forward. It is also best practice that in cases where land is zoned and has remained undeveloped and unserviced through one or more development plan cycles, with no prospect of being serviced within the six-year life of the development plan that is under preparation, alternative approaches must be considered:- (i) alternative zoning objectives or (ii) discontinuing the objective (See Appendix A). 4.4.2 Land/Sites Proposed to be Zoned Estimating requirements for land and sites to be zoned for residential or a mixture of residential and other uses must follow on from an assessment of whether the amount of land already zoned is adequate to meet the housing needs of the area. The rate of take-up and build-out of such land over a preceding period of at least 6-10 years is an important consideration in this regard. Such analysis must also consider trends and projections in respect of rural housing output and infill development/building refurbishment, as well as whether land already zoned may be serviced or serviceable within the six-year life of the plan. It is not the purpose of the planning system and the development plan process to facilitate the hoarding and speculation of serviced development land. However, it is recognised that there is a need for some degree of competition and choice in the residential development land market and to ensure a future pipeline of well-located serviced land. Accordingly, in considering whether to zone additional new land and sites for residential (or a mixture of residential and other uses) to meet housing need, planning authorities must ensure that the development plan core strategy makes adequate provision for zoned and serviced sites that will come forward during the six-year life of the development plan, while also considering and factoring in the proportion of projected housing need to be met on unzoned land in rural areas.

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   4.4.3 Ensuring Sufficient Provision of Housing Lands/Sites In providing housing sites for development within settlements, it may be necessary to zone more serviced land and sites for residential (or a mixture of residential and other uses), than would equate to meeting precisely the projected housing demand for that settlement. 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 development through inactivity on a particular landholding or site. In making provision for housing within settlements in the core strategy of a development plan, in certain instances a planning authority may therefore provide zoned residential sites in addition to those required to meet the settlement housing supply target. This means that a planning authority, after identifying the site/land requirements to meet the housing supply target for that settlement, may also identify additional sites/lands to ensure sufficient choice for development potential is safeguarded. Where the planning authority considers it necessary to enable ‘Additional Provision’ of residential lands in a particular settlement, it must be clearly set out in the core strategy. In proposing the extent of any such additional landholdings, the planning authority must take into consideration the following: (a) There is no automatic presumption of Additional Provision land or sites to meet housing supply targets in any development plan. 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; (b) Housing supply and population targets for the relevant six-year development plan period, and the location and level of servicing of lands already zoned for development, in accordance with 4.4.1 and 4.4.2 above; (c) The need to target a minimum of 30% of all new residential development in settlements outside cities and 50% in cities and their suburbs, as brownfield or infill development within the boundary/built footprint of the existing built-up area15; (d) Any parts of strategic and sustainable development sites that will be phased and built out over a longer period than the six-year development plan (such as large-scale urban regeneration areas, transport-led development sites or SDZs), which may be included over and above as Additional Provision lands (per section 4.4.4 below); (e) Additional Provision must comprise land and sites that are serviced or serviceable within the six-year plan period; (f) The location of zoned lands and sites within the settlement must have regard to the position of the settlement in the settlement hierarchy, access to employment and public transport, be consistent with sequential development patterns, Town Centre First principles, proximity to services and facilities and the need to reduce carbon emissions; (g) Additional Provision of serviced lands where concentrated in a particular area or settlement, may be phased in a clear sequence of priority to facilitate development management decisions and development monitoring by the planning authority and An Bord Pleanála; (h) Additional Provision must be compatible with the core strategy regarding the proportion of projected housing demand to be met on unzoned land in rural areas Additional Provision Accordingly, on a settlement by settlement basis, the precise extent to which zoned lands and sites in excess of that required to match the agreed housing supply target are provided, may be determined by the planning authority. Such proposals will be assessed and evaluated by the Office of the Planning Regulator in accordance with these Guidelines. Development plans will be monitored and evaluated on the basis of their progress towards delivering their housing supply target, the location of new housing and the extent of development of any additional land and sites provision. Development Plan Guidelines for Planning Authorities | 48 Core Strategy | 4 15 Per NPO 3 of the NPF

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   | Development Plan Guidelines for Planning Authorities | Core Strategy 49 4 4.4.4 Long-Term Strategic and Sustainable Development Sites Strategic and Sustainable Development Sites are key development sites that may comprise lands and sites for urban regeneration and/or transport-led development. They may comprise either brownfield/infill or greenfield land and may also be subject to Strategic Development Zone (SDZ) status, or other relevant planning-related designation. The sites will generally be in cities, NPF Regional Centres or Key Growth Centre settlements designated in the RSES and should either be covered by an existing Local Area Plan or SDZ Planning Scheme or be the subject of a development plan objective to prepare a statutory plan for that area. Such sites are characterised by: • their potential for significant residential development to be delivered over a timescale greater than a single six-year development plan period; • their significant scale – generally several thousand new homes as a new urban extension to a City or many hundreds of homes in a NPF Regional Centre or RSES Key Growth Centre town; • A requirement to be aligned and supported by significant water services, transport and other infrastructural investment. The extended timescale needed to deliver such infrastructure will require certainty in terms of zoning status to ensure such long-term planning and investment. It is necessary for the development plan core strategy to clearly identify such lands and also the proportion of those lands that are likely to be developed within the six-year plan period and those that are not likely to be developed within the six-year plan period. While the portion of lands likely to be developed must be included in the plan core strategy, the portion that are ‘not likely’ to be developed within the plan period should be identified by a ‘Long-Term Strategic and Sustainable Development Site’ designation, reflecting that they will deliver housing within the subsequent development plan period (ie. more than 6 years). This is to ensure clarity in respect of scheduled housing development on the site in accordance with identified phasing and servicing constraints for the planning authority or An Bord Pleanála when considering any planning applications for housing development. The portion of any 'Long-Term Strategic and Sustainable Development Sites' that are not likely to be developed within the six-year plan period may be considered as further additional provision over and above the 20-25% threshold figure referred to above.

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   4.5 Devising the Settlement Strategy The targeted distribution of housing and population within the area of the development plan of a city or county council, is referred to in the Planning and Development Act 2000 (as amended) as the ‘settlement hierarchy’. To more fully reflect Section 10(2A) of the Planning Act with regard to development plan core strategy, and in particular the consideration of housing, land and population in relation to the settlement hierarchy, the term ‘settlement strategy’ is also used by planning authorities. For the purposes of these Guidelines, a settlement strategy comprises those elements of Section 10(2A) of the Planning Act that relate to housing, land, population and the settlement hierarchy. 4.5.1 Settlement Hierarchy The settlement hierarchy is the defining vision for how the county or city is likely to grow and develop over the lifetime of the development plan, with a clear set of spatial priorities identified. The settlement strategy of the plan is the means by which spatial choices are made and prioritised. The totality of the core strategy articulates the detail of this for the local authority area as a whole and for each settlement, in terms of targeted housing provision and land-use zoning proposals. The settlement hierarchy of the development plan sits within the national and regional planning hierarchy and must reflect this wider context. At the national level, the NPF sets out parameters for growth for the regions, cities, urban areas and rural areas. These parameters are further detailed in the three Regional Spatial and Economic Strategies (RSESs). Accordingly, the settlement strategy of the development plan should provide nationally and regionally consistent, as well as additional local direction, on the anticipated future development of all settlements, including in particular, mid-sized and smaller settlements and rural areas. Smaller settlements will be defined in the development plan and should use the equivalent settlement typology of settlements referenced in the relevant RSES and/or as follows:- Settlement Typology Defined in: Population (a) Cities and Metropolitan Areas National/Regional Policy NPF (b) Regional Growth Drivers NPF/RSES (c) Key Towns RSES (e) Large Towns Development Plan >8-10,000 (f) Medium Towns 4-5,000 - 8-10,000 (g) Small Towns 1,500 - 4-5,000 (h) Rural Areas (settlements) <1,500 (i) Rural Areas (rural housing) Dispersed housing Development Plan Guidelines for Planning Authorities | 50 Core Strategy | 4

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   | Development Plan Guidelines for Planning Authorities | Core Strategy 51 4 4.5.2 Settlement Strategy – Key Considerations In formulating a sustainable settlement strategy for the county or city, a holistic, evidence-based analysis is required which examines a range of interrelated factors. These inputs are set out below:- Overall Population and Housing Supply Target Parameters The distribution of housing targets throughout the settlement hierarchy identified in the core strategy (including both the higher-order settlements identified in the RSES and generally smaller settlements identified at development plan stage), is the critical element of settlement strategy in the plan-making process. The existing (i.e. most up-to-date available) population in each settlement should be clearly set out, with the quantum of new housing targeted for each settlement type also outlined, together with an estimate of what this will mean in terms of additional population per section 4.3 above. NPF policy1613on settlement growth includes specific provisions which facilitate significant population growth in settlements in specified circumstances. This responds to situations where smaller settlements have grown rapidly as a result of extensive new zonings, in a manner that could not readily be supported by requisite infrastructure and services. Accordingly, proposals in development plans for extensive new growth targeted at smaller settlements should be made subject to the provisions of NPF NPO9. Any such proposals must include justification and address the provision of infrastructure and services required for any settlements that are to be targeted for growth of this scale. Existing Settlement Structure and Settlement Capacity Audit (SCA) The existing settlement structure of the county will form the broad basis of the settlement hierarchy and strategy. The upper tier settlements may be defined in the NPF/RSES, based on their role and scale in the national context. The development plan process requires the identification and classification of the lower tier settlements, based on the local context. In principle, the greatest proportion of targeted population and housing growth should generally align with the larger settlements, where social and community infrastructure is available at scale and there is also likely to be greater provision of employment and services. There may be other relevant factors, such as proximity to a high quality public transport corridor, which could provide justification for targeting a greater level of growth in one settlement over another. The distribution of population and housing targets to the various settlements in the settlement hierarchy, including rural areas, will require an evidence based assessment. A comprehensive capacity audit of the land and sites with potential for development at a settlement level, is a prerequisite to inform the drafting of the settlement strategy. The planning authority should analyse the capacity of each settlement to accommodate new development in terms of suitable lands and infrastructure within the plan period. This ‘Settlement Capacity Audit’ (SCA) exercise accords with Appendix 3 to the NPF, which distinguishes between lands that are ‘Serviced’ (Tier 1) and those that are ‘Serviceable’ (Tier 2). This is to ensure that an informed decision can be made as to whether or not to zone land or sites in particular settlements for residential development and to inform the core strategy considerations set out in Section 4.4 above. The SCA requires an infrastructural assessment of lands within and adjacent to settlements as a key research input to the settlement strategy formulation process. 16 National Policy Objective 9 At the most basic site level, this infrastructural assessment must include the following infrastructure categories: • Road access* • Footpath access* • Cycle access* • Foul sewerage drainage** • Water supply** • Surface water drainage** * Including public lighting provision ** In terms of capacity at a settlement level and access of sites to the network Input: Settlement Capacity Audit Core Strategy Formulation Output: Zoning Decisions for Residential Development

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   Proposals to facilitate housing development through zoning must be grounded in the knowledge that appropriate services are/will be available to enable development within the plan period in order for the core strategy to be realisable in practice. The SCA exercise must also include an examination of the capacity for new residential development within the builtup footprint of existing settlements in line with compact growth priorities of national planning policy1714 . Therefore the potential for brownfield/infill and mixed use development must also be identified and estimated. Broad assumptions regarding the residential yield to be delivered on substantial individual sites is required, together with estimates of smaller-scale infill housing growth, such that a robust estimate of overall development potential can be formulated. The SCA will provide data on development sites within settlements including service status, i.e. whether classified as ‘Tier 1 Serviced Lands’ or ‘Tier 2 Serviceable Lands’, as well as potential housing yield estimates. The Settlement Capacity Audit will therefore comprise of: (i) a table providing, for each settlement >1500 people, or where lands are zoned in settlements of <1,500, existing population, potential housing estimates for (a) Tier 1 Serviced Lands (b) Tier 2 Serviceable Lands (ii) accompanying maps that identify Tier 1 and Tier 2 lands or sites with potential for residential development in the individual settlements, with the existing built-up footprint (i.e. CSO Urban Settlement boundary) also indicated. The purpose of this is to ensure that the spatial priorities for development identified are based on evidence that development can occur. For example, in a settlement where significant long-term infrastructural constraints exist, any proposed development must either address or be proportionate to the constraint(s). This exercise requires consideration of existing zoned land in the first instance in accordance with development plan core strategy requirements set out in Section 10(2A)(c) of the Planning Act and may extend to lands that are not zoned in consideration of lands that may be proposed to be zoned in accordance with Section 10(2A)(d) of the Act. This evidence base will, inter alia, inform the core strategy and settlement strategy in targeting future housing growth on the basis of individual settlements and more broadly in rural areas. 17 National Planning Objectives 3a-c Development Plan Guidelines for Planning Authorities | 52 Core Strategy | 4

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   | Development Plan Guidelines for Planning Authorities | Core StrategyDevelopment Density In preparing a core strategy it is necessary to examine the capacity of individual landholdings and sites to accommodate new housing development. Through estimating anticipated housing yield from a site, it is possible to assemble, in aggregate, the lands needed to achieve the delivery of the agreed housing supply target. In estimating the housing yield (ie. number of housing units) from sites identified and zoned for housing, planning authorities must make density assumptions consistent with the appropriate density parameters for different scales of settlement as set out in the ‘Sustainable Residential Development in Urban Areas, Guidelines for Planning Authorities’ (2009) or any successor document. Recent Pattern of Population and Housing Growth The recently experienced rate of growth in settlements will be an important consideration in formulating proposals for future growth designations and subsequent zoning. For example, if the output of housing in a settlement has been at a low rate over a sustained period of time, the reasons for this should be examined. The capacity for housing delivery and likely demand for housing should be carefully considered so that housing delivery targets are credible. If projected growth assumptions are proposed that deviate significantly from historic trends, there should be a clear rationale and justification for this. The extent of rural housing (if applicable) as a proportion of housing output in the relevant area over the medium-term and in comparison to the delivery of housing in settlements, must also be taken into account. Some settlements, particularly in the environs of cities and metropolitan areas, have experienced very high levels of growth in recent decades. The extent to which there are infrastructural deficits in such settlements, such as in relation to water services, transport, schools and community facilities, should be a key factor when considering additional population/housing growth. It may be appropriate to moderate growth targets in such cases. There may be an underlying context to the performance of certain settlements such as delays in the delivery of critical enabling infrastructure or a significant slow-down in the housing market. These factors should also be evaluated and in particular, their likelihood of being addressed within the six-year plan period considered. It may also be that case that the rate of growth in lower tier settlements or in rural areas may be significantly higher than that targeted, and any such trends must be clearly indicated. This type of analysis should have been provided in the Baseline Report (refer to Chapter 3) and will be presented in summary form in the development plan core strategy. 53 4

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   Development Plan Guidelines for Planning Authorities | 54 Core Strategy | 4 Local Context In addition to the above, there are a number of additional local context considerations that are likely to be of relevance and will need to be examined in formulating the settlement strategy. These include:- Rural/Urban Profile The rural/urban characteristics of the development plan area are a valid consideration. Outside the local authority areas which include significant parts of cities, the aggregate rural population ranges from around 30% to almost 90% of the total. The settlement strategy approach for counties will therefore differ, depending on the existing rural/urban population structure. Employment Profile Trends in employment (number of jobs, the ratio of jobs to resident workers and net commuting flows, etc.) should be analysed when considering the potential location for additional residential zonings and the settlement growth. In general, priority should be given to settlements that already have a significant quantum of employment and/or a realistic prospect of employment growth, so that housing and employment can be spatially aligned. Conversely, an uncoordinated approach in providing greenfield employment zonings in all settlements, irrespective of servicing, scale or strategy, on the basis that this may provide a more favourable jobs ratio, is discouraged. It is important to have regard to the National Policy Objectives of the NPF1815 , which require local authorities to identify and quantify locations for strategic employment development in suitable areas. Sustainable Transport Provision The existing commuting profile of settlements should be carefully examined, together with future planned transport infrastructure. It should be a priority to favour development that supports sustainable modes of transport, including public transport and active modes of travel (walking and cycling) to avoid locking-in unsustainable patterns of car-based commuting, when targeting significant population and housing growth. Enhanced (either existing or planned) public transport capacity serving a settlement should factor strongly in assessing its potential for growth relative to locations/ settlements that are not as well served. Environmental Designation Constraints Some settlements or areas may have a particularly sensitive receiving environment for development and the formulation of the settlement strategy must reflect any such constraints, including potential impact on designated European sites, and water quality. The Strategic Environmental Assessment (SEA) process and in particular, the consideration of alternatives as part of SEA, is central to this. 18 National Planning Objectives 10a & 10 b

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    | Development Plan Guidelines for Planning Authorities | Core Strategy 55 44.6 O ther C ore Strategy R equirements 4.6.1 Core Strategy Diagrammatic Map Section 10(2B) of the Planning Act requires the principal elements of the core strategy to be represented on a diagrammatic map or other such visual representation. This must include the settlement hierarchy of the county and/or city area, relevant roads, including national roads and inter-urban and commuter rail routes, and may be in schematic form. For development plans that include all or part of a city area, the diagrammatic map must also identify the city centre, areas designated for significant development, public transport and the location of retail centres. This requirement is intended to give a clear representation of the spatial relationship/interaction between settlement, development, and transportation. 4.6.2 Economic Strategy The development plan should include an economic strategy chapter. The Regional Spatial Economic Strategies (RSESs) have an economic policy role, with which the Local Economic and Community Plan (LECP) plan-making process must be aligned. The economic policy set out in the relevant RSES is therefore a framework for the development of the economic strategy of the development plan. There must be a close interaction and synergy between the development plan and the Local Economic and Community Plan (LECP). The purpose of the LECP, as provided for in the Local Government Reform Act 2014, is to set out (for a sixyear period) the objectives and actions needed to promote and support the economic development and the local and community development of the relevant local authority area. Accordingly, together with the RSES, the LECP should provide some very useful baseline information for the development plan about the nature of the local economy, in terms of broad economic activity trends and local specialisations. Many local authorities have provided very detailed socio-economic baseline studies as part of the LECP process and some of these include a spatial element which has particular relevance to the development plan making process. The economic strategy of the development plan should expand on this, with a specific focus on the spatial components of economic activity. The LECP analysis on sectoral trends should therefore be augmented with a spatial analysis of economic activity, which may, in turn, inform employment and enterprise land-use zoning proposals. The development plan is primarily focused on physical planning issues such as the location of development, the provision of infrastructure and the appropriate use of land. However, this is situated within the context of economic, social and cultural objectives of the wider community, which are now recognised as fundamental to the attraction of enterprise and talent, to foster and drive economic activity. If the development plan process is to be effective and responsive to the wider objectives of society, account must be taken of the relevant drivers of change. The inputs of specialist agencies and representative bodies working in the economic development sector are therefore relevant. The development plan must be informed by the policies, objectives and relevant strategies developed by agencies such as IDA Ireland, Enterprise Ireland and Údarás Na Gaeltachta, as well as local Chambers and business representative groups. Examples of synergies between the activities of development agencies and land-use policies might include: • ensuring the requirements of specific sectors are being addressed in land-use terms, i.e. both local start-up businesses and foreign direct investment; • new, emerging technologies/industries and any specific land-use planning implications that may arise; • co-ordination of employment and industrial land provision with other specific infrastructure requirements such as roads and public transport, water services, energy and/or communications; • planning schemes for Strategic Development Zones designated by Government under Section 166 of the Act. NPF policy on planning for employment growth recommends particular spatial areas of focus for planning authorities to consider in drafting a county or city scale economic strategy. The critical links between the quality of urban place-making and business investment/ job creation are also reinforced in the NPF. The Economic Strategy of the development plan should highlight the relationship between place-making and economic success and the fact that sustainable enterprise thrives in supportive business environments that enhance competitiveness and productivity with good supporting infrastructure.

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