Development plan · Kildare County Council
Kildare County Development Plan 2023–2029 — Chapter 8: Urban Centres and Retail
One part of the council's development plan written statement, which the council publishes in parts. Variations adopted since are not in this text.
Kildare County Council · 2023–2029 · 38 pages
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- Aim: To continue to promote and encourage town centres as our primary retail centres, at the heart of our communities so that they play a vital role in ensuring these areas remain attractive, universally accessible and liveable places and to make provision for additional retail, at appropriate locations and quantum’s where 8 Chapter 8 Urban Centres and Retail 8.1 Background Retail is the single biggest private sector employer in the country, with around 300,000 employed in every village, town and city across Ireland and generating around €7 billion in tax revenue for the state every year1. The economic activity generated in retail in turn supports local suppliers, producers and the wider economy. The Retail Planning Guidelines for Planning Authorities seek to ensure that the planning system continues to play a key role in supporting competitiveness in the retail sector for the benefit of the consumer by actively enabling good quality development proposals to come forward in suitable locations. The sector is facing many challenges including an increase in online shopping, impacts on distribution from Brexit and the ongoing consequences of the Covid-19 pandemic including an increase in vacancy levels in our towns and villages throughout the county. Retailing is a fundamental element of town and village centre activity and it is important that these centres maintain, reinstate and improve retailing as a core function which this chapter seeks to address. 8.2 Retail Policy Context 8.2.1 Project Ireland 2040 National Planning Framework (NPF) One of the main National Strategic Outcomes (NSO) in the NPF prioritises the concept of ‘Compact Growth’ and to avoid the further sprawl of urban development, which is a key is a top priority in this Plan. The regeneration of existing building stock and/or use of underutilised/brownfield sites within existing urban centres is framed as the best location for future growth. 8.2.2 EMRA Regional Spatial & Economic Strategy (RSES) 2019-2031 The RSES recognises that the retail sector is a significant employer and economic contributor in the Region and plays a key role in placemaking. The Strategy also acknowledges that as a significant attractor it enables the creation of strong mixeduse commercial cores and can play a key role in the regeneration of areas. The RSES outlines the retail hierarchy for the region. The RSES provides the basis for the integration of land use and transport planning in the Region. In conjunction with the NTA and other agencies the RSES identifies Guiding Principles for the Integration of Land Use and Transportation which promotes, in the first instance, the location of larger scale, trip intensive developments, including retail, into central urban locations. 1 Election 2020: Next government must address retail challenge by Retail Ireland252
- 8.2.3 Retail Strategy for the Greater Dublin Area (GDA) The Retail Strategy for the Greater Dublin Area (GDA) for the period from 2008 to 2016, which includes County Kildare, remains the most current strategy. The RSES recognises that certain thresholds set out in the Strategy were prepared in a different economic climate and in many cases have yet to be reached. In this regard, EMRA will support and drive the preparation of a new retail strategy for the Region under the requirements of the Retail Planning Guidelines for Planning Authorities 2012, or any subsequent update, in order to update this hierarchy and apply floorspace requirements for the Region’. In accordance with the Retail Planning Guidelines, it is sufficient to state the general retail function appropriate to each settlement along with a general statement of additional retail development requirements. In the absence of a new Retail Strategy for the GDA, this approach has been adopted for the Kildare County Development Plan. 8.2.4 Kildare 2025 Economic Development Strategy As outlined in detail in chapter 4 of the Plan, this strategy has identified eight key areas that are critical to the future economic success of our county, one of which is retail. It outlines that Kildare has many nationally recognised retail destinations such as Kildare Village and the Whitewater Shopping Centre. Like many counties, smaller towns and villages face persistent challenges of decreased footfall. As a County, Kildare must continue to sustain and improve its retail profile and competitiveness within the Greater Dublin Area’s retail economy and beyond, through harnessing the assets and potential of centres at all levels of the County Retail Hierarchy. Kildare also hosts a cluster of large distribution centres for the national retail sector which have been attracted by their ease of access and proximity to Dublin in particular. Despite some retail activities (e.g. grocery) remaining open in the Covid lockdown and experiencing an increase in demand, the retail sector as a whole has been badly affected, with over 60% of the retail workforce, ca.180,000 people availing of income support at the peak of the Covid-19 restrictions. The drop in footfall generally, has and will continue to threaten the viability of parts of the retail sector. Future-proofing our town centre retail sector is therefore a key priority of this Plan. Vacant premises that lie unoccupied for periods of time can create a negative perception of a place which can act as a deterrent for potential investors and retailers. It is therefore important to revitalise such vacant premises, particularly in central locations which contribute to compact growth and sustainable living2. This strategy outlines 5 Strategic Objectives for the Plan, which include: 1. Strengthen the resilience of our retail sector to rebuild stronger and greener. 2. Facilitate and support the retail offering’s expansion and sustainment in County Kildare. 3. Measures to revitalise town centres. 4. Explore new opportunities in the circular economy for our retail businesses. 5. Enable retailers to adopt online business models. Furthermore, this strategy outlines 9 actions to achieve the above objectives.3 2 Society of Chartered Surveyors 3 P45 of Chapter 7 – Retail of the Kildare 2025 Economic Development Strategy253
- 8.2.5 Retail Planning Guidelines (DoECLG, 2012) The Retail Planning Guidelines aim to ensure that the planning system continues to play a key role in supporting competitiveness and choice in the retail sector commensurate with promoting the vitality and viability of town centres. The Guidelines note the major role that shopping plays in attracting people to cities, towns and villages. These Guidelines identify five key policy objectives: • Ensuring that retail development is plan-led; • Promoting city/town centre vitality through a sequential approach to development; • Securing competitiveness in the retail sector by actively enabling good quality development proposals to come forward in suitable locations; • Facilitating a shift towards increased access to retailing by public transport, cycling and walking; • Delivering quality urban design outcomes. The objectives set out in this Plan have been prepared having regard to the guidance set out in these Guidelines. 8.2.6 Retail Design Manual (DoECLG, 2012) The Retail Design Manual notes that achieving a high quality of architecture and urban design in new retail development can be a key ingredient in delivering sustainable development in urban places: generating direct and indirect employment, stimulating investment and economic activity, enhancing social vibrancy and vitality, increasing consumer choice and value, reducing car dependency for everyday trips and stimulating spin-off development including service functions and housing. The manual sets out 10 key principles of urban design to inform new retail development and to promote a step-change in the quality of new retail development. 8.2.7 Town Centre First – A Policy Approach for Irish Towns The Government’s Town Centre First policy acknowledges the challenges that town centre retail activities continue to experience, which is primarily due to the changing habits of consumers and, in particular, the rise of online shopping. The effects of this can be seen in settlements across the county, with most designated core retail areas suffering from sustained levels of high retail vacancy. The Town Centre First policy seeks to respond to this issue by increasing the focus on the ‘retail-led experience’ which includes a blend of retail services (including food and drink), leisure, entertainment, and cultural uses. This approach fully aligns with the intentions of Kildare County Council to future proof town centres by making them more attractive visitor destinations, through the implementation of public realm improvement works, the promotion and support of ‘meanwhile use’ to provide for temporary uses to be accommodated in vacant units, and other bespoke regeneration initiatives. It is considered that the development of new and alternative uses and functions for town centres that maximise new recreational, tourist, cultural, employment and residential opportunities will help to secure the long-term viability of the existing retail offer in the county’s town centres.254
- Overarching Retail Policy It is the policy of the Council to: RET P1 Develop County Kildare’s retail economy in accordance with national, regional and local policy in order to sustain and expand the retail sector as a catalyst for social and economic vibrancy. Overarching Retail Objectives It is an objective of the Council to: RET O1 Ensure that the retail needs of the county’s residents are met as extensively as possible within Kildare, taking cognisance of the Regional and County Retail Hierarchies, to enable the reduction in the requirement to travel to meet these needs and in the interests of achieving greater social inclusion and universal accessibility to shopping and services across all sectors of the community. RET O2 Provide clear guidance on where major new retail floorspace would be acceptable throughout the county having regard to the County Retail Hierarchy as part of the preparation of the Local Area Plans. RET O3 Continue to address leakage of retail expenditure from Kildare through securing the development of the appropriate quality and quantum of additional convenience, comparison and bulky goods floorspace at appropriate locations throughout the county. RET O4 Sustain and enhance the increase in comparison expenditure inflows to the county, at regional, national and international level, through delivering a quality and quantum of retail offer in accordance with the Retail Planning Guidelines 2012. RET O5 Reinforce the core of town and village centres as the priority location for new retail development, with quality of design and integration/linkage being fundamental prerequisites and bring forward zoning designations within the zoning matrix in Local Area Plans specifically for large convenience stores, where appropriate. RET O6 Align, as far as practicable, new retail development with existing and proposed public transport infrastructure and services and encourage access by foot and bicycle to reduce the dominance of access by private car. RET O7 Improve the universal accessibility of the town centre with particular emphasis on creating a high quality, safe and permeable environment that is easily accessible to pedestrians and cyclists. RET O8 Encourage and facilitate the preservation and enhancement of the retail and services role of both individual villages and village/ settlement clusters around the county. RET O9 Promote retail-led tourism in Kildare and to facilitate the provision of tourism infrastructure. RET O10 Encourage and facilitate innovation and diversification in the county’s retail profile and offer.255
- RET O11 Support existing retail facilities and to facilitate the provision of new facilities as appropriate where such proposals are in accordance with the Retail Planning Guidelines, the Regional Retail Strategy, the Core Strategy and Settlement Strategy and the proper planning and sustainable development of the area. RET O12 Support and encourage diversity in the retail offer, including the sustainability of the independent retail sector in the county. 8.3 Innovation in the County’s Retail Offer To ensure that the county sustains and enhances its attraction and competitiveness as a retail destination, it must be proactive and responsive in respect of innovation in retailing and new retail market trends. One such innovation includes experience-based shopping where the goods being offered as well as the setting, the interactions and product knowledge, together create a fully immersive experience. Buying local has become increasingly important, particularly during the Covid-19 pandemic. Objectives It is an objective of the Council to: RET O13 Encourage and facilitate innovation in the county’s retail offer and attraction and supporting and facilitating local businesses and trades to develop and market products locally, where possible. RET O14 Support innovativeness in the provision of sustainable retailing throughout the county which reduces food miles and encourages more sustainable forms of transport. 8.4 County Retail Hierarchy The County Retail Hierarchy provides the strategic policy framework for the spatial distribution of new retail development. The emphasis is on strategic guidance on the location and scale of retail developments with the hierarchy setting the framework for the spatial distribution of the quantum and nature of convenience and comparison floorspace. It is defined as follows: • Level 2 – Major Town Centres & County (Principal) Town Centres: major convenience and comparison. • Level 3 – Town and/or District Centres & Sub-County Town Centres (Key Service Centres): large scale convenience and middle order comparison, not excluding higher order comparison particularly related to the tourism economy. • Level 4 – Neighbourhood Centres, Local Centres-Small Towns and Villages: predominantly additional convenience not excluding tourism related comparison. The RSES outlines level 2 and Level 3 town centres while the county retail hierarchy identified in the Kildare County Development Plan outlines Level 4 small towns and village centres.256
- Policy It is the policy of the Council to: RET P2 Guide major retail development in accordance with the framework provided by the County Retail Hierarchy (Table 8.1) to enable an efficient, equitable and sustainable distribution of retail floorspace throughout the county. Level 2 Major Town Centres & County (Principal) Town Centres Naas, Newbridge, Maynooth Level 3 Town and/or District Centres & Sub-County Town Centres (Key Service Centres) Celbridge, Kilcock, Athy, Kildare, Monasterevin, Clane, Leixlip, Kilcullen Level 4 Neighbourhood Centres, Local Centres-Small Towns and Villages Small Town Centres Castledermot, Prosperous, Rathangan, Derrinturn, Kill and Sallins Village Centres Straffan, Allenwood, Ballitore, Ballymore-Eustace, Crookstown and Robertstown Level 5 Corner Shops/Small Villages Table 8.1 - Retail Hierarchy for County Kildare 8.5 Sequential Approach The Sequential Approach is incorporated in the strategic policy framework for guiding new retail development. It recognises the importance of sustaining the vitality and viability of town and village centres. Planning applications for retail development proposals, including extensions or a material change of use of existing developments (as introduced in the Retail Planning Guidelines 2012), must comply with the criteria of suitability of use, size, scale and accessibility and the following key principles of the Sequential Approach: i. In the first instance, the priority is to locate retail development in town centres or village centres; ii. Where town/village centre locations are not readily available within a reasonable and realistic timescale and where this has been demonstrated to the satisfaction of the Council then edge of centre sites may be considered. The Retail Planning Guidelines define such sites as being within 300 – 400 metres of the Core Retail Area of a centre; and iii. Only after the options for town centre (or village centre) and edge of centre sites are exhausted should out of centre locations and sites be considered. The detail of the requirements for retail applications and the assessment of these by the Council under the tests of the Sequential Approach are set out in the 2012 Retail Planning Guidelines.257
- Objectives It is an objective of the Council to: RET O15 Guide retail development to town and village centres in the first instance where practical and viable in accordance with the Sequential Approach as set out in Section 8.5 above, in order to ensure that the vitality and viability of existing town and village centres is sustained and strengthened. 8.6 Core Retail Areas The Core Retail Area is that part of a town centre which is primarily devoted to shopping, as distinct from the wider Town Centre Zoning Objective. It is normally defined as the area including, and immediate to, the ‘prime pitch’. This is the area that achieves the highest rentals, best yields, is highest in demand from retailers, developers and investors and the area in which pedestrian flows are greatest. The designation of Core Retail Areas generally is only applicable to the main towns in the County Retail Hierarchy whereas in smaller centres retail floorspace is on the whole more dispersed. The designated Core Retail Areas of medium to large urban centres in the county are shown in Maps V1 - 8.1 to 8.11 and relate to the settlements of Athy, Celbridge, Clane, Kilcock, Kilcullen, Kildare, Leixlip, Maynooth, Monasterevin, Naas and Newbridge. Core retail areas contain the primary retail streets of a centre where the main concentration of retail activity takes places and are normally characterised by a mix of factors including prime retail units, low vacancies, a predominance of multiples and well-established family run stores, few non retail uses and high pedestrian foot flow. New retail development will be preferred and encouraged within the core retail areas; however, it is recognised that such core areas may expand to the immediately adjacent areas over the life time of this Plan and subsequent Local Area Plans. Objectives It is an objective of the Council to: RET O16 Ensure that Core Retail Areas, as defined in this County Development Plan, are carried through to Local Area Plans and other land use plans to clarify the extent of the core area for primacy of the retail function and to guide the application of the sequential approach to retail development. RET O17 Ensure that Town Centre zoning is applied in Local Area Plans and, where appropriate, designate further Town Centre Expansion Areas subject to the tests of the Sequential Approach to enable the retail vision for these centres to be achieved and to provide appropriate guidance to applicants. RET O18 Encourage and facilitate the re-use and regeneration of derelict/underutilised brownfield land, vacant sites and buildings for retail and other town centre uses, having regard to the Sequential Approach outlined in the Retail Planning Guidelines and as set out in Section 8.5 above.258
- RET O19 Protect and enhance the retail primacy and character of the town/village centre by particularly supporting development that consolidates the existing urban core and responds positively to its established built form, scale and character.259
- 200m100m0.0 Date: Scale: N.T.S. Map Ref.: V1 - 8.1 This drawing is to be read in conjunction with the written statement Ordnance Survey Ireland data reproduced under OSi Licence number 2021/CCMA/KildareCountyCouncil. Unauthorised reproduction infringes Ordnance Survey Ireland and Government of Ireland copyright. Checked by: L Crawford Drawn by: K Doyle Approved by: C O'Donnell DescriptionDateStage Kildare County Council Planning & Strategic Development Department Áras Chill Dara, Devoy Park, Naas, Co Kildare. h c ae n s i Msu g a a m n a e M County Development Plan 2023 - 2029 Athy Core Retail Area Drawing No.: 200/22/1329 Ordnance Survey Ireland data reproduced under OSi Licence number CYAL50250173 © Ordnance Survey Ireland/Government of Ireland/Kildare County Council Date: 28/01/2023Date: 28/01/2023 January 2023 Date: 28/01/2023 28/01/2023 County Development Plan Date the Plan comes into effect 09/12/2022 County Development Plan Plan Adopted by Elected Members CDP 2023 2029 OUR KILDARE OUR PLAN Existing Area Expansion Area260
Source Kildare County Council: Kildare County Development Plan 2023–2029 — Chapter 8: Urban Centres and Retail (2023–2029) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.