Ministerial guidelines
Local Area Plans: Guidelines for Planning Authorities
How a council prepares a local area plan for a town or district.
Department of the Environment, Community and Local Government · June 2013 · 64 pages
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- 33 extent of development and in-migration that may impinge on the dominance of the Irish speaking tradition and culture at a local level. In addition, there are a range of practical policies and measures that planning authorities should adopt to promote the prominence and use of the Irish language at a local community level. These policies and measures are reflected in the guidelines mentioned above. 5.3 Promoting Local Economic Development and Employment The Governments action programme for reform of local government gives particular prominence to the enhanced role local authorities should play in promoting the economic development of their areas and to economic recovery as a whole as well as securing long term government, regional and local planning objectives. In understanding the place or area covered by a local plan, the economic structure of the plan area is of key importance as strong local economies are central to making progress on the objectives of the plan. For example, local area plans for smaller towns or local area plans for city or town centre areas within larger development plans may have to address issues created by stagnation or decline in population or economic activity. In such cases, the focus should be on identifying the planning system’s role in facilitating economic opportunities that will support the overall viability of the settlement and underpin community services such as: identifying low-cost but high-quality ways of providing space for start-up• businesses, including the re-use of vacant but under-utilised buildings and or the development of business incubation units and linkages to third level education and innovation; ensuring a quality public realm that attracts passing business;• identifying locations for local farmers/Christmas/craft markets (that may include• new/revamped public open space8) ; highlighting opportunities for community-based urban improvements through, for• example, the Tidy Towns movement; and reducing the costs to society of the maintenance and improvement of areas• associated with sprawling, low-density patterns of development. Particular focus should also be on facilitating the work of the County Enterprise Boards. Strong city and town centres are especially important to strong local communities, and local area plans can play a key role in activating the development potential of central areas through site assembly, identification of opportunity sites and areas and briefs for their development and use. 5.4 Integrating Environmental Considerations in Local Area Planning The development trends of recent years have raised questions about sustainability in environmental as well as economic and social terms. Local area plans can play a key role in turning around future patterns towards less energy intensive, more prudent and ecologically sensitive ways to meet the development needs of Irish society and its economy. Local area plans should therefore be based fundamentally doing no harm to 8 In this regard the planning authority should give consideration in ensuring that any new/revamped public space makes provision for basic utility services such as lighting/electricity etc that would assist the temporary nature of markets.
- 34 the stock of environmental qualities that might be affected by the development of that area and in addition, maximising the opportunities for improving those environmental qualities. Climate Change Local area plans can make a substantial contribution towards both the causes and effects of climate change. In relation to the causes of climate change, low density, sprawling, and car-dependent forms of development will exacerbate recent trends towards increasing carbon emissions, especially from the transport and residential sectors. Instead, by promoting compact urban development and a move towards smarter travel options, future development can become less carbon intensive. Local area plans should, therefore, be consistent with the objectives of the National Climate Change Strategy, as amended. Mechanisms are becoming available to determine the carbon intensity of different options for the development of urban areas. Developments of such modelling systems, and their use, should be constantly monitored and considered by planning authorities. In relation to the issue of adapting to the effects of climate change, local area plans should also take account of the integration of climate change adaptation in the relevant city/county development plan as required under the National Climate Change Adaptation Framework (December 2012). In this regard, incorporating flood risk assessment into the local planning process is essential in ensuring future development avoids locations that are more vulnerable to flooding associated with more extreme weather events. In this regard, the Planning System and Flood Risk Management Guidelines (2009) are aimed at ensuring a more consistent, rigorous, and systematic approach to flood risk identification, assessment and management within the planning system. The Guidelines focus on providing guidance to planning authorities on the comprehensive consideration of flood risk in future regional plans, development plans, local area plans, and in determining applications for planning permission in line with the principles of proper planning and sustainable development. Biodiversity and Green Infrastructure Since the publication of the National Biodiversity Plan in April 2002, (the latest plan “Actions for Biodiversity 2011-2016 was published in 2011) it is Government policy to protect, maintain and, where possible, enhance biodiversity throughout the entire countryside. The Irish landscape of today is the product of intense interaction between human beings and nature over many thousands of years. Such interaction can have positive impacts on biodiversity. It has, on occasion, led to the creation of new sites and habitats of conservation importance. The development of an integrated approach to green infrastructure planning will improve the quality of our natural environment and support biodiversity. Planning
- 35 authorities have a key role to play in preserving the natural heritage of their areas, arising from the legal responsibilities placed on them and from the increasing public awareness of the importance of nature conservation at local level. In doing so, they should also avail of opportunities that may arise to create or promote new features of biodiversity in new developments. Green infrastructure is a mechanism to conserve and improve biodiversity and can be broadly defined as an interconnected network of green space that enables natural ecosystems to thrive, such as in the case of rivers and streams that act as amenities, a mechanism to manage flood risk and local ecosystems. To promote biodiversity, local area plans, in identifying green areas such as open spaces, linear green corridors and natural areas, should ensure that each area links into a larger network that incorporates other public and private green spaces in the area, including areas where farming, forestry, recreation, and conservation can take place together. The adoption of a green infrastructure approach can contribute greatly to the effectiveness of a local area plan. This approach was introduced to Ireland by means of an international conference organised by Fingal County Council in November 2008. In August 2010, Comhar, the Sustainable Development Council, produced a research report focusing on Green Infrastructure, entitled “Creating Green Infrastructure for Ireland”. This report sets out a broad definition of green infrastructure and proposes an approach and a set of principles that should be followed in green infrastructure planning. Green infrastructure has already been integrated into several strategic planning exercises including the Regional Planning Guidelines for the Greater Dublin Area 2010– 2022, Fingal Development Plan 2011–2017 and Dublin City Development Plan 2011– 2017. The integration and incorporation of a Green Infrastructure approach, including an initial inventory of green resources, into the local area plan process can contribute greatly to the quality of the environment in the area covered by the local area plan, to the conservation and enhancement of green resources over a wider area and to climate change mitigation and adaptation. Screening of a local area plan for Appropriate Assessment and Strategic Environmental Assessment will also assist planning authorities in looking at wider biodiversity issues arising from its proposed implementation. Local Biodiversity Action Plans, adopted as part of integrated Local Heritage Plans, can set out a range of measures for the conservation and sustainable use of biodiversity at the local level and are one of the measures set out in Ireland’s National Biodiversity Plan. Of particular importance are measures to protect plants, animals and habitats of local and national importance. Local Biodiversity Action Plans aim to raise awareness of biodiversity and its importance to human wellbeing. Local area plans can create important synergies with Local Biodiversity Action Plans through the inclusion of policies and objectives to protect plants, animals, and habitats of local and national importance.
- 36 5.5 Providing for Schools Planning authorities are encouraged to promote the delivery of schools as part of well-structured, focal places/centres for the community or neighbourhood. Other community buildings such as community halls, health centres, crèches, and youth cafés could be provided adjoining or nearby school buildings. Alternatively, other community uses could be incorporated into a larger grouping of community buildings or co-located within a larger multi-purpose building. It is recommended that local area plans provide a realistic phasing timetable to ensure that the provision of school facilities is delivered in conjunction with the phased construction of dwellings. Planning guidelines on “The Provision of Schools and the Planning System: A Code of Practice for Planning Authorities” (Department of Education and Science and the Department of the Environment, Heritage and Local Government) were issued by the Minister under Section 28 of the Act in July 2008. These guidelines seek to ensure that the planning system facilitates the timely and cost-effective roll-out of school facilities by the Department of Education and Skills in line with the principles of proper planning and sustainable development. The Code of Practice complements and expands on the Planning Guidelines on Development Plans (2007) and identifies complementary roles for the Department of Education and Skills in working with planning authorities in delivering schools through effective strategic planning and demographic analysis, liaison with school patrons and communities, as well as site identification and acquisition and school building projects. In addition, a new Memorandum of Understanding has been agreed between the Department of Education and Skills, the Department of Environment, Community and Local Government and the City and County Managers’ Association in relation to the acquisition of sites for schools by local authorities. The provision of schools is an integral part of formulating a local area plan and can greatly assist in promoting the development of a compact and sustainable urban community, particularly so in the case of greenfield areas. The Department of Education and Skills has developed a comprehensive Geographical Information System (GIS) for school-planning purposes. This holds data on school locations, capacities, demographic trends, and analyses of need. Planning authorities should liaise directly with the above Department’s Forward Planning Section to input such data into their own forward planning exercises. At a strategic level, the development plan will have addressed future school premises and site requirements. The local area plan provides an opportunity, at a more detailed level, to consider site location, access to services, detailed design and operational issues to ensure school sites are fit for purpose. The location of sites for new schools should be centred on the existing/proposed population catchments and encourage sustainable mobility (i.e., walking/ cycling/ public transport) in accordance with the Department of Transport, Tourism and Sport’s “Smarter Travel” policy framework. In addition, local area plans should also identify
- 37 the location of reserved school sites within areas of residential expansion including the option of developing development briefs for reserved sites in conjunction with the Department of Education and Skills. 5.6 Achieving Smarter Travel The Government launched the document, “Smarter Travel - A Sustainable Transport Future”, in February 2009. This policy document, which was the subject of extensive public consultation, sets out how the Government’s vision of sustainable travel and transport in Ireland can be achieved by the year 2020 To reach this level of sustainability, changes are necessary, both in terms of personal behaviour and in relation to settlement patterns. There will also be a need to make continued investment in public transport, especially less capital intensive measures to promote walking and cycling for local trips. The five key goals of Smarter Travel – A Sustainable Transport Future are to: reduce overall travel demand;• maximise the efficiency of the transport network;• reduce reliance on fossil fuels;• reduce transport emissions; and• improve accessibility to transport.• In developing local area plans, planning authorities should consider the practical steps that can be taken to promote the achievement of all of these goals and include relevant policies and objectives. Local area plans, therefore, have a pivotal role in ensuring that spatial and transport planning are aligned to avoid unsustainable travel. A key and associated element of this approach is to align employment and transport policies and promote the use of mobility management plans through the development management process. In order to achieve smart travel, local area plans should be underpinned by an effective understanding of transportation and mobility of the relevant area and: include practical measures to promote an increase in walking and cycling, especially• for shorter trips around urban areas; promote the location of small-scale retail, industrial and residential development• in small towns and villages to counteract population decline and contribute to a reduction in emissions by lessening the need for private car trips; ensure that housing development is located in such a manner as to be capable of• being serviced by good public transport connections and safe routes for walking and cycling; promote the consolidation of urban growth in a phased and sequential way from• the centre out of settlements by prioritising and maximising the development potential of brownfield/existing sites for new residential and mixed-use development; ensure a general minimum density of between 35 and 50 dwellings per hectare• in urban areas of suitable size and population where local circumstances warrant, particularly in high-capacity public transport corridors ;
- 38 specify a maximum permitted level of car parking for commercial sites which• have suitable public transport facilities and are within walking/cycling distance of amenities; require covered cycle parking and employee showering facilities for commercial/• industrial developments; ensure that high-density development occurs along urban rail corridors and the use• is appropriate for public transport use (e.g. not warehousing or other activities with low employment intensity); be consistent with the retail strategy for the area and the retail planning guidelines,• as amended, based upon the general presumption against the future development of out-of-town shopping or retail centres; contain specific proposals, where appropriate, for the retro-fit of areas towards• creating sustainable neighbourhoods so that walking and cycling become the best options for local trips (e.g. to reach local facilities such as shops and schools); and ensure business parks are easily accessible from residential areas by walking,• cycling and public transport. All local area plans should therefore contain clear and implementable policies and objectives which support sustainable transportation modes. Furthermore, it is reasonable and desirable that local area plans identify the cost of funding the public transport infrastructure that is required to support the sustainable development, where feasible. Planning authorities should in general, and especially in locations benefiting from substantial investment in public transport, set some quantifiable targets for modal split in favour of public transport, walking and cycling. Such targets should be used to influence the phasing and sequential development with the local area plan. The trend in modal choices can be used to monitor the implementation of the local area plan. 5.7 Achieving Quality in Urban Design Urban design is about creating high-quality places for people. It includes the way places work, how they are linked, and matters such as community safety, as well as how they look. It concerns the connections between people and places, movement and urban form, nature and the built fabric, and the processes for ensuring successful villages, towns, and cities9. Planning authorities should promote high-quality urban design in their local area plans policies, objectives, and standards. Clearly defined policies create more certainty for potential developers and their design teams, and also provide a basis for developing a shared, collaborative approach to pre-application consultations with the planning authority. Urban design is a key to creating sustainable developments and the conditions for a flourishing economic life, for the prudent use of natural resources, and for social progress. Good design can help create lively places with distinctive character; streets and public spaces that are safe, accessible, pleasant to use and human in scale; and places that inspire because of the imagination and sensitivity of their designers. 9 By Design: Urban Design in the Planning System: Towards Better Practice. Department of Communities and Local Government (UK), 2000.
- 39 Local area plans have a key role in translating overarching development plan urban design policies and objectives at the local level. Local area plans should: define key elements of local character;• identify relevant development plan urban design principles and policies which• respond to the local context; provide detailed guidance regarding layout, density, massing, height, materials,• etc., and indicate minimum/maximum densities; and include indicative layouts to guide the shape and form of future development,• leaving individual building and open space design to expert designers. The effective integration of green spaces/parks into the overall planning and design process will contribute significantly to achieving high-quality places. Where appropriate and practical (for example in relation to key undeveloped or infill sites) local area plans could include three dimensional imagery to both enable the community to more easily understand the implications of the local area plan and provide better guidance for developers. A local area plan that is being prepared for a greenfield location or is dealing with infill development on brownfield sites needs to provide at a minimum three-dimensional modelling in order to provide a holistic view of the built form being promoted. This will enable the community to more easily understand the implications of the local area plan and provide certainty to developers. 5.8 People-Friendly Urban Design Universal design is the process that results in the creation of an urban environment that can be used by all people, regardless of their age, disability or ability etc. Planning authorities should have regard to the National Disability Authority’s Building for Everyone Booklet 9 – Planning (www.nda.ie) in relation to universal design for local area plans. In relation to local area plans for existing settlements, the primary focus will be on the retention of existing positive features and subsequently improving accessibility within the existing built environment. Policies should ensure that existing features that aid personal mobility within the built environment are retained and protected. The local area plan should establish a regulatory, policy, and urban design framework which incorporates universal design features within all new development proposals. Where appropriate, a pro-active stance to retro-fitting of universal design features should also be pursued. Local area plans being prepared for brownfield sites should retain existing features that assist permeability and integrate new development with the wider area. Local area plans should avoid proposals that are based on the assumption of access to private transport and the enhancement of linkages to public transport without having regard to acceptable walking distances.
- 40 5.9 Key Local Area Plan Strategies Local area plans must contain a written statement and maps depicting the objectives of the plan. In developing the local area plan maps, it is very important that the plan should be informed by a number of key strategies which draw together the various elements of the plan discussed earlier in this section. Diagrammatic maps can be a useful technique in explaining the thinking behind the plan in visual terms. The Best Practice Manual which accompanies these guidelines outlines various examples which depict how the following key strategies can be used to shape a local area plan; character and heritage – the essence of a place and place making;• vitality and diversity – creating robust strategies to meet the needs of the local• economy, community, and society; community and housing – targeted response to community housing and• educational needs; urban and landscape structure and form – a coherent and distinctive spatial• strategy; movement and transport – promotion of integrated, multi-modal transport needs;• and energy and micro-climate in sustainable generation and consumption of energy.• 5.10 Presentation Local area plans are, by and large, aimed at a local audience. Planning authorities should therefore make every effort to ensure that local area plans are well presented, written in easy-to-understand non-technical language, with a glossary of terms, if necessary, to explain technical phrases. They should also include plenty of illustrations to help the public interpret the plan and understand how the area of the plan will develop into the future. The best practice guidance document accompanying these guidelines contains many good examples of high standards in relation to presentation aspects of local area plans. Planning authorities are also reminded that local area plan maps should be prepared in a format that enables that authority to input future plans into the Department’s development plan geographical information system (Myplan.ie). In particular, planning authorities are encouraged to adopt the generic zone type (GZT) system for categorising land use zoning objectives.
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