Development plan · Laois County Council
Laois County Development Plan 2021–2027
The council's development plan written statement: its strategy, policies, objectives and development standards.
Laois County Council · 2021–2027 · 317 pages
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- Chapter 1 Introduction 9 | P a g e 1.5.5 LAOIS LOCAL ECONOMIC AND COMMUNITY PLAN (LECP) 2016 – 2021 The Local Government Reform Act 2014 sought to create a stronger and clearer role for local government in economic development and community development and introduced Local Economic and Community Plans. The LECP sets out, for a six-year period, the objectives and actions needed to promote and support the economic development and the local and community development of the county, both by the Council itself directly and in partnership with other economic and community development stakeholders. The Development Plan and the LECP effectively operate parallel to one another whereby the LECP provides a supporting framework for the economic development and local community development of Laois, the County Development Plan provides an overarching strategy and statutory policy support for the proper planning and sustainable development of the County at a spatial level. Consequently the policies and objectives of the County Development Plan must be complementary to and consistent with the high level goals and objectives of the LECP. 1.6 HOW TO USE PLAN The format, layout and content of the Plan have been guided by the Development Plans: Guidelines for Planning Authorities (DoEHLG, 2007), National Planning Framework and Regional Spatial and Economic Strategy. Every effort has been made to co‐ordinate and cross reference sections in order to provide a comprehensive and easy to read guide for the public, community groups and developers on particular types of development. 1.6.1 CONTENTS OF THE PLAN The Plan consists of a written document with supporting appendices and maps, as set out in the table of contents. There are 3 volumes contained in the Laois County Development Plan: Volume 1: The Written Statement which comprises of 14 Chapters, providing policy objectives for each Chapter. Volume 2: Written Statements and maps for the settlements within the County which have been categorized as Self Sustaining Growth towns, Self Sustaining towns, towns and villages and rural areas. Volume 3: Strategic Environmental Assessment (SEA), Appropriate Assessment (AA) and Strategic Flood Risk Assessment (SFRA). Appendices include the following strategies: Housing Strategy, Retail Strategy, Landscape Character Assessment, Wind Energy Strategy, Record of Protected Structures, Architectural Conservation Areas, Rural Housing Design Guidelines. A Glossary is provided at the end of Volume 1. In order to provide a holistic consideration of policies and objectives, each chapter provides specific policy objectives, followed by development management standards. Climate adaptation and mitigation policy objectives have also been interwoven into each chapter where appropriate.
- Chapter 1 Introduction 10 | P a g e 1.6.2 INTERPRETATION In interpreting this document in all cases should any conflict arise between the written word and accompanying maps, the written word shall take precedence. In all cases the following protocols apply: • The Council refers to Laois County Council. • The Plan refers to the Laois County Development Plan 2021 - 2027. • The County refers to County Laois. 1.6.3 POLICIES AND OBJECTIVES The Plan includes specific policy objectives in each chapter. These are specific approaches or actions that the Council will endeavour to realise to ensure that policies are implemented and that all development proposals are consistent with the proper planning and sustainable development of the county. In the interest of clarity, any reference to a policy objective in the text of this Plan shall be construed as an “objective” of this Plan for the purposes of the Planning and Development Act 2000 (as amended) and the Planning and Development Regulations 2001 (as amended). 1.6.4 EXISTING SUITE OF LOCAL AREA PLANS A Local Area Plan (LAP) is currently in place for the following settlement centres: Portlaoise, Graiguecullen, Portarlington and Mountmellick. Both Graiguecullen and Portarlington share a boundary with Carlow and Offaly respectively and as such have Joint LAPs in place. A land use zoning objectives map has been included in Volume 2 of this Plan to establish a framework to support economic development and to provide a basis for continued operation of the development management process pending the completion of the LAP’s for both Portlaoise and Mountmellick. Zoning objectives maps for Joint LAPs for Graiguecullen and Portarlington have been included in the LCDP. Developments within the development boundary in County Laois shown on Maps 12.1 and 12.2 shall comply with the written provisions of the Carlow-Graiguecullen Joint Urban Local Area Plan 2024-2030, while Developments within the development boundary in County Laois shown on Maps 1,2,3,4,5 shall comply with the written provisions of the Portarlington Joint Local Area Plan 2025-2031. It is intended to review all LAPs once the Laois County Development Plan 2021 - 2027 is in place. Zoning Maps contained in Volume 2 of this Plan will inform the LAPs for Portlaoise and Mountmellick. All current LAPs shall be read together with the Laois County Development Plan 2021 - 2027. Where a conflict arises between Plans, the County Development Plan 2021 – 2027 shall take precedent and the conflicting provision of the LAP shall cease to have effect.
- 11 | P a g e CHAPTER 2 CORE AND SETTLEMENT STRATEGY Aim: Provide for the Growth Of County Laois In Line With The National Planning Framework / Regional Spatial And Economic Strategy (RSES) To Accommodate A Target Population Of Up To 94,700 By 2027 In The Settlements And Rural Areas Of County Laois. 2.1 INTRODUCTION Planning Authorities are required to prepare and incorporate a Core Strategy that shows the Development Plan is consistent with national and regional objectives under the National Planning Framework (NPF) and the relevant Regional Spatial and Economic Strategy (RSES). Under the Act, a Core Strategy focuses on: • Defining a settlement hierarchy for the County that is consistent with the NPF and RSES. • Transposing the prescribed NPF and RSES housing and population targets set at County level for the rural and urban centres identified within the settlement hierarchy. • Providing an evidence-based rationale for the land proposed to be zoned for residential and mixed-use development having regard to the capacity of existing zoned land and the phasing of development taking account of the location of public transport and services. • Demonstrating how the Planning Authority has had regard to the statutory Retail Planning Guidelines in setting out objectives for retail development. The Core Strategy sets out a vision for Laois and strategic aims required to deliver this vision. The development of this Core Strategy has been guided by the Department of Environment Heritage and Local Government ‘Guidance Note on Core Strategies’ (2010), taking into account relevant changes brought about through the publication of the NPF and RSES. The Core Strategy of this Development Plan provides relevant information to demonstrate consistency with both the NPF and RSES and sets out core aims that, in turn, define and shape the following: • preferred growth locations; • revised population targets and population distribution; and • land use zoning requirements . These are expressed in the Core Strategy Table 2.16 and related zoning maps in Volume 2, Settlement Plans. 2.2 STRATEGIC AIMS The strategic aims which relate to the advancement of this plan are set out hereunder. These aims are addressed fully in subsequent chapters within the plan. A series of specific Core Strategy policy objectives are included in Section 2.8. (i) To guide the future development of Laois in line with national and regional objectives set out in the NPF and RSES and other national guidelines and policies; (ii) To promote and facilitate the development of the County in accordance with the provisions of the Core Strategy, including directing development in line with the
- Chapter 2 Core and Settlement Strategy 12 | P a g e settlement hierarchy and promoting development at an appropriate scale that is reflective of the terms of the Core Strategy Table and zoning maps; (iii) To apply the Settlement Hierarchy to determine the scale, rate and location of proposed developments and apply appropriate development management measures to ensure compliance with the Settlement Hierarchy including the population targets for the County; (iv) To promote the delivery of at least 30% of all new homes that are targeted in settlements within their existing built-up footprints; (v) To ensure that development is promoted, supported or facilitated through the Laois County Development Plan that provides for climate action including the increased risk of flooding and the promotion of sustainable transport options and renewable energy where possible in order to achieve a successful transition to a low carbon economy; (vi) To support the achievement of more self-sustaining towns and villages through residential and employment opportunities together with supporting social and community facilities; (vii) To monitor and maintain a record of residential development permitted in settlements designated under the Settlement Hierarchy in order to ensure compliance with the population allocations defined by the Core Strategy and to adjust the approach to permitting development proposals in instances where Core Strategy objectives are not being met; (viii) To support the development of the tourism sector as an economic driver for the County, identify and develop key destinations, visitor attractions and activities for the prioritisation of investment and to encourage the increase of tourism product development. Underpinning the strategic aims above in relation to population growth, housing requirements and the future spatial development of our county are the following complimentary strategic aims which are integral in delivering the vision for the county during the period 2021-2027: a) To Build on the regional-level linkages between County Laois and other parts of the Eastern and Midlands Region and adjoining regions such as the South Region and Mid-West Region by supporting the implementation of regional spatial and economic strategies, collaborating on support for critical enabling infrastructure, such as inter-regional road and rail linkages, and co-operating on areas of mutual planning interest; b) To Target Foreign Direct Investment (FDI) and Irish Indigenous industries to appropriate zoned locations in the Key Towns of Portlaoise and Graiguecullen / Carlow and the Self Sustaining Growth Town of Portarlington and build on the economic strengths and tourism opportunities of County Laois in a balanced and sustainable manner focusing on the opportunities as outlined in the following sections; c) To Facilitate the provision of and improvements to community, social and recreational infrastructure and ensure universal access to all to such facilities throughout the county for all its residents; d) To Facilitate Job creation within the County to ensure that the county grows in a sustainable manner; e) To provide for sustainable transport infrastructure and connectivity including walking and cycling infrastructure and initiatives and optimise the return of investment on infrastructure while preserving the natural and built heritage; f) To achieve a sustainable, integrated and low carbon transport system for the county and to protect, improve and extend water services and other enabling infrastructure in line with national, regional and local population and economic growth for the count;
- Chapter 2 Core and Settlement Strategy 13 | P a g e g) To Protect, conserve and enhance the built, natural and cultural environment through promoting awareness, utilising relevant heritage legislation and promoting good quality urban and rural design; h) To Support the development of key infrastructure such as telecommunications, electricity, gas to enable economic development. 2.3 STRATEGIC DEVELOPMENT OF COUNTY LAOIS WITHIN A NATIONAL CONTEXT (NPF) The National Planning Framework (NPF) is a high-level strategy that will shape growth and development in Ireland out to the year 2040. The NPF draws upon lessons learned from the National Spatial Strategy 2002-2022 and provides a framework for the sustainable development of Ireland’s existing settlements. As a framework document it sets in train a process by which more detailed planning documents must follow, including the relevant RSES and County Development Plan. It sets out ten National Strategic Outcomes (NSO’s) which underpin the overarching vision for the country and serve as shared goals and contains a range of National Policy Objectives providing a wider context for targeting future growth across the country. With regards the Eastern and Midland Region, the NPF states that the region’s most significant place-making challenge will be to plan and deliver future development in a way that enhances and reinforces its urban and rural structure and moves more towards self-sustaining, rather than commuter driven activity. In turn, this allows its various city, metropolitan, town, village and rural components to play to their strengths, while above all, moving away from a sprawl-led development model. The NPF identifies an urban structure for the Region based on commuting patterns, with reference to the EU/OECD definition of ‘functional urban areas’ (FUAs) which is used to identify areas with different sub-regional interdependencies and influence in the region. Furthermore, the NPF includes specific targets related to securing compact and sustainable growth in Ireland’s towns and cities, recognising that the physical format of urban development in Ireland is one of our greatest national development challenges. As such it states that within the Eastern and Midlands Region, 30% of all housing outside of Dublin City and its suburb footprints are to be delivered within existing urban footprints. The NPF further states that projecting housing requirements more accurately into the future at a Regional Spatial and Economic Strategy and local authority development plan level (e.g. through Core Strategies) will be enabled by the provision of new statutory guidelines to ensure consistency of approach, implementation and monitoring. This is enshrined in National Policy Objective 36 (NPF; p95); • National Policy Objective 36: New statutory guidelines, supported by wider methodologies and data sources, will be put in place under Section 28 of the Planning and Development Act to improve the evidence base, effectiveness and consistency of the planning process for housing provision at regional, metropolitan and local authority levels. This will be supported by the provision of standardised requirements by regulation for the recording of planning and housing data by the local authorities in order to provide a consistent and robust evidence base for housing policy formulation.
- Chapter 2 Core and Settlement Strategy 14 | P a g e 2.3.1 IMPLEMENTATION ROADMAP FOR THE NATIONAL PLANNING FRAMEWORK The Implementation Roadmap for the National Planning Framework (July 2018) highlights the Governments focus on achieving alignment between national, regional and local planning policy and practice. It addresses issues around the legal status of the NPF and provides transitional population projections for the period up to 2031. It also sets out mechanisms to ensure that Development Plans will broadly align with the NPF and RSES’s to address the six-year period up to 2026/2027. The Roadmap provides transitional population projections for these milestones at a regional and county scale, in order to inform Development Plans for the period 2026 and 2031. The transitional population projections for the Eastern and Midland Region are listed in the table below. Table 2.1: Transitional Regional and County Population Projections to 2031 for the Eastern and Midland Regional Assembly. Regions and Counties 2016 2026 2031 MIDLANDS Westmeath 89,000 96,500-98,500 100,000-102,500 Laois 84,500 92,500-94,000 95,500-97,500 Offaly 78,000 85,000-86,500 88,000-90,000 Longford 41,000 44,500-45,500 46,000-47,000 Subtotal 292,500 318,500-324,500 329,500-337,000 Source: Extract from NPF Implementation Roadmap, p13 2.3.2 HOUSING NEEDS DEMAND ASSESSMENT In order to ensure that the plan-making system is supported by a robust methodology to inform policies and funding initiatives around housing and associated land requirements, the NPF (NPO 37) states that a Housing Need Demand Assessment (HNDA) will be developed by each Local Authority to support the preparation of housing strategies and all related housing policy outputs, e.g. City and County development plans, local area plans, traveller accommodation plans etc. The purpose of the HNDA tool is to: • Assist local authorities to develop long-term strategic views of housing need across all tenures. • Provide a robust evidence base to support decisions about new housing supply, wider investment and housing related services that inform an overall national housing profile. • Inform policies about the proportion of social and affordable housing required, including the need for different types and sizes of provision. • Provide evidence to inform policies related to the provision of specialist housing and housing related services. The Core Strategy must give effect to the NPF and RSES hierarchy by setting population targets and associated requirements for housing. This must now be undertaken through the
- Chapter 2 Core and Settlement Strategy 15 | P a g e HDNA process. This Core Strategy Chapter sets out the population targets and housing requirements for Laois for the period 2021-2027. The HNDA process is elaborated and presented in greater detail in the Housing Strategy (see Appendix 3). 2.4 STRATEGIC DEVELOPMENT OF COUNTY LAOIS WITHIN A REGIONAL CONTEXT (EASTERN & MIDLANDS REGION) The Regional Spatial and Economic Strategy (RSES) for the Eastern and Midland region came into force in June 2019, superseding the Regional Planning Guidelines for the Midland Region. The RSES is a high-level plan that seeks to support the implementation of the NPF by providing a strategic planning and economic framework for the region’s sustainable growth and development. It echoes the NPF in emphasising sustainable development patterns and seeks to focus growth within the footprint of existing urban areas and in key regional growth settlements. The RSES seeks to determine at a regional scale how best to achieve the shared goals set out in the National Strategic Outcomes (NSOs) of the NPF. To this end, the Strategy sets out 16 Regional Strategic Outcomes (RSOs), which are aligned with international, EU and national policy and which in turn set the framework for City and County development plans. The RSES also sets out a settlement hierarchy for the Region and identifies key growth areas which will see significant development up to 2031 and beyond. There are three distinct areas across the Eastern and Midland Region comprising of the Dublin Metropolitan Area, the Core Region and the Gateway Region (of which Laois is located). 2.4.1 SETTLEMENT HIERARCHY FOR THE REGION Within the growth strategy for the region, the RSES has also determined a settlement hierarchy, depicted in Figure 2.1 and settlement hierarchy table below. Figure 2.1: Settlement Strategy for the Eastern and Midlands Region (Fig 4.2, RSES)
- Chapter 2 Core and Settlement Strategy 16 | P a g e Table 2.2: Settlement Hierarchy for the Region Dublin City and Suburbs International business core with a highly concentrated and diversified employment base and higher order of retail, arts, culture and leisure offer. Acts as a national transport hub with strong inter and intra-regional connections and an extensive commuter catchment Regional Growth Centres Regional Growth Centres are large towns with a high level of self-sustaining employment and services that act as regional economic drivers and play a significant role for a wide catchment area. Key Towns Large economically active service and/or county towns that provide employment for their surrounding areas and with highquality transport links and the capacity to act as growth drivers to complement the Regional Growth Centres Self-Sustaining Growth Towns Self-Sustaining Growth Towns with a moderate level of jobs and services – includes sub-county market towns and commuter towns with good transport links and capacity for continued commensurate growth to more self-sustaining. Self-Sustaining Towns Self-Sustaining Towns with high levels of population growth and a weak employment base which are reliant on other areas for employment and/or services and which require targeted catch up’ investment to become more self-sustaining Towns and villages Towns and villages with local service and employment functions Rural Villages and the wider rural region Within the top three tiers of the hierarchy, settlements are clearly defined by the RSES. Settlements within the other four tiers are to be further defined in each County’s Development Plans. The Regional Growth Centres consist of Athlone, Drogheda and Dundalk which will be supported by Key Towns. Co Laois is located in the Midland Region Strategy Planning Area of the Eastern and Midland Regional Assembly. To achieve effective regional development, Dublin and the regional growth centre of Athlone will be supported by the complementary development and regeneration of a small number of selected key towns such as Portlaoise and Graiguecullen/Carlow. The RSES 2019, indicates the functional areas comprising of the Dublin Metropolitan Area, Core Region and the Gateway Region. Co Laois is part located within the Core region and the Gateway region. The Core region includes the peri-urban hinterlands in the commuter catchment around Dublin, whilst the gateway region acts as an inter regional gateway to the rest of the island.
- Chapter 2 Core and Settlement Strategy 17 | P a g e Map 2.1: Core and Gateway Region within Laois Region Growth Enablers Core Region To promote continued growth at a more sustainable rate , whilst providing for increased employment and improved local economies , services and functions to allow towns become more self sustaining and to create the quality of life to attract investment. Catch up investment to promote consolidation and improvement in the sustainability of those areas that have experienced significant population growth but have a weak level of services and employment for residents. Portarlington is located within the regional functional area. Gateway Region Portlaoise Key Town plays a regional role in providing key employment and services for their own extensive hinterland Graiguecullen Key Town also has an important function as a town that straddles the regional boundary with the southern region and acts as a Gateway in this respect. It too, will play a regional role in providing key employment and services for its own extensive hinterland. Regeneration of small towns and villages, with a focus on the identification of the rural town and village and rural regeneration priorities to bring vibrancy to these areas.
- Chapter 2 Core and Settlement Strategy 18 | P a g e In relation to Co Laois, the Settlement Strategy for the region designates Portlaoise and Graiguecullen as Key Towns, recognising that the towns provide a function at a much higher level than its resident population and provides key employment and services for its extensive hinterlands. Within the higher order settlements of Portlaoise and Graiguecullen2, the RSES asserts that core strategies should apply higher densities in these towns. However, the RSES further states there should be a graded reduction in residential densities for Self-Sustaining Growth Towns, Self-Sustaining Towns, towns and villages that are commensurate to the existing built environment. In developing this settlement hierarchy, the RSES recognises that population and employment size are not the sole determinant of a settlement’s functional role or in the consideration of its strategic regional significance. The strategy states that; ‘Some towns with a large population base located within the catchment of Dublin have emerged mainly as commuting towns, with a level of function significantly lower than their population base. Conversely, other towns have a level of function higher than their population base and play a key regional role’ (EMRA RSES, P46). A number of key criteria were considered in the development of the asset base, which can be summarised as follows from Table 3.1 of the RSES. This approach has been utilised to guide the development of Laois’s Settlement Hierarchy, as elaborated in Section 2.6. Table 2.3: Asset Based Approach to choosing the settlement hierarchy for Co Laois DATA INDICATOR DESCRIPTION RATIONALE SCALE The scale of population, growth rates and local ambition for sustainable compact growth Settlements of Critical mass of population to drive county and add to regional development. The growth rates were applied to identify the capacity for future growth. Balancing high growth rates with investment in job creation, social and physical infrastructure has guided the settlement hierarchy for Co Laois. The NPF designations of Portlaoise and Graiguecullen as Key towns within the Region, both of which have the critical mass and ability to drive regional growth for the Midlands and the Southern region in combination with Carlow. Portlaoise is identified as a KEY town with a population of 22,050 and has a jobs to resident worker ratio of 0.997. Griaguecullen is identified as a KEY town with a population of 4,692 (together with Carlow Town, the population is 24,272which is also a 2 RPO 4.75 Requires Laois and Carlow County Councils to prepare a Joint Local Area Plan
Source Laois County Council: Laois County Development Plan 2021–2027 (2021–2027) · 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.