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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- 44 Key Messages Delivery of local area plans is dependent on creating a strong overall development• strategy and buy-in from key stakeholders to that strategy. Securing funding for the provision of infrastructure and services, and the phasing• of development, is critical to the successful delivery and implementation of new development. Local area plans must be supported by and linked to relevant Section 48 and 49 development contribution schemes to enable funding for infrastructure. A planning authority must identify all public and private investment resources• (grants, development contributions and planning gain) which will contribute to the implementation of the objectives of the plan. Local area plans for newly developing areas, in particular, should include a• sequential development and phasing programme linked with any necessary investment in water services, public transport, community facilities, and schools. Planning authorities are encouraged to conduct a civic infrastructure audit as part• of the local area plan process in order to maximise the social and financial return generated by financial investment by State agencies and other. 6.1 Local Area Plans and Infrastructure Provision Successful implementation of local area plans depends on the identification of the funding and delivery mechanisms for the provision of the physical and social infrastructure that the plan identifies as essential to achieving its objectives. The development contribution schemes provided for in Sections 48 and 49 of the Act established one important mechanism to fund public infrastructure benefiting development in the area of the plan. Planning guidelines on development contributions have been published. There are other complementary means by which to fund infrastructure including direct exchequer funded investment, private investment and public-private partnerships. The scope for all should be carefully considered in the plan making process. Planning authorities should therefore seek to implement the aims, policies and objectives of the local area plan in a pro-active manner harnessing all available public and private funding avenues to support local area plan implementation. 6.2 Phasing of Development Section 19(2) of the Act provides for the phasing of development within a local area plan. Some local area plans will be developed over a longer period of time, such as those for major docklands regeneration etc, and where this issue arises it is important that the local area plan outlines a clear phasing programme, identifying first and foremost the lands expected to be developed over the plan period and the physical and social infrastructure required to be provided in tandem with that development. Delivering Local Area Plans 6
- 45 The phasing programme will indicate the number of phases proposed and the enabling works that are required in each phase before being able to move onto the next phase. The programme will also specify the amount of residential development that should take place in each phase, integrated with the provision of the appropriate social facilities (such as schools, childcare, and health facilities) as well as transport. When land is zoned in a development plan without the benefit of a more detailed local area plan designation, the development plan should identify, where practicable, the sequential and co-ordinated manner in which zoned lands, buildings or floorspace will be developed, so as to avoid a haphazard, inefficient and costly approach to the provision of social and physical infrastructure. The sequential approach as set out in the Department’s “Development Plan Guidelines” (2007) specifies that zoning shall extend outwards from the centre of an urban area, with undeveloped lands closest to the core and on public transport routes being given preference, encouraging infill opportunities, and that areas to be zoned shall be contiguous to existing zoned development lands, and that any exception must be clearly justified in the written statement of the development plan. The provision of water and sewerage investment programmes by planning authorities must also be related to the sequencing of residential lands and must also be integrated with the provision of public transport, schools, community, and leisure facilities. This will involve keeping up the close contact with other agencies which would have occurred during the plan-making period. A good local area plan will, therefore, include a general framework for the development of the area of the plan in relation to: key milestones or phases• in plan implementation; the• main interrelationships between particular categories of development, for example, in relation to how development of future housing beyond a certain amount will need to be accompanied by the provision of certain critical enabling infrastructure such as a new school (or an extension to an existing school), transport improvements, community facilities, or water services infrastructure; objectives in relation to physical works• such as enhancement of social and community facilities, such as parks and sports facilities and basic infrastructure such as footpaths, lighting, and roadside drainage; and a monitoring regime• which will periodically report on the performance and successful implementation of the local area plan. Taking account of the above, it is strongly advised that local area plans should include an Implementation and Infrastructure Delivery Schedule, which would require a planning authority to work closely with all relevant departments, agencies and stakeholders involved in securing the delivery of the formulation, adoption, implementation, and monitoring of the policies and objectives of the local area plan.
- 46 It is also recommended that this implementation schedule is informed by a capital cost estimate of the infrastructure that is needed to support the sustainable development of the area. At a basic level, phasing must be broken down into short, medium, and longer-term phases within an overall plan delivery horizon. Planning authorities are encouraged to use their discretion in this regard. One option is to tie the phasing for a local area plan into the 6-year plan cycle (i.e., short term can mean 1-2 years, medium 2-4 years and long 4+ years). Nonetheless, it is recognised that the phasing schedule for brownfield locations such as the Dublin and Cork Dockland Regeneration areas may have a longer, overall delivery horizon. Each phase should then contain a schedule of development which must take place within each phase timeframe. An example of an Implementation and Infrastructure Delivery Schedule is outlined below. Phase: Medium Term Key development Residential and non-residential uses and social infrastructure Timescale 2015 – 2020 Key outcomes required Phase 2 (1) Community hall and sports facility; (2) Final phase of public park; (3) Completion of primary school; (4) Phase 2 of Quality Bus Network; (5) Phase 2 of distributor road network; and (6) Upgrading of waste water treatment plant to PE 4000. Associated development The build of the residential and commercial development must take place in this phase. The community hall and sports facility must be completed before the next phase of development commences. This quantum of community and amenity development is critical to creating a critical mass of population to support the final phase of development. Residential Quarters 4 to 6 Funding sources In partnership with local sports club (Local Authority lands being provided). Local Authority own sources partly funded by Development Contributions. Department of Education and Skills Capital Programme – confirmed start 2014. National Transport Authority Capital Programme – confirmed start 2015 once road (5) complete. Local Authority Capital Works Programme: Part 8 complete, start 2014. Department of Environment, Community and Local Government Water Services Investment Programme and development contributions
- 47 6.3 Provision of Social and Community Infrastructure The delivery of soft infrastructure, viz social and community facilities, in line with the phased provision of hard infrastructure is crucial in terms of creating sustainable communities. Developing areas depend on the integrated delivery of essential social infrastructure. Local area plans provide a critical opportunity for planning authorities to take a leadership role in relation to co-ordinating the activities and investments of various infrastructure providers. Planning authorities should use this opportunity to formulate a shared vision and implementation schedule for the local area plan. A round-table format may prove useful in brokering agreements between various stakeholders to ensure the successful implementation of the local area plan. Local area plans must act as vehicles for the delivery of social infrastructure provision by containing policies, objectives and measures which: implement the joint Department of Environment, Community and Local1. Government/Department of Education and Skills Code of Practice on Schools Planning; provide funding for arts and cultural facilities by the Department of Arts, Heritage2. and the Gaeltacht under the ACCESS programmes; implement the Planning Guidelines on Childcare;3. use development levies under Sections 48 and 49 of the Planning and Development4. Act 2000-2012 to fund community and sports facilities; and promote joined-up approaches in site identification, acquisition, and premises5. development in the delivery of schools, libraries, community facilities on shared campuses in suitable locations. 6.4 Lessons for Local Plans from Strategic Development Zones Strategic development zones (SDZs) are an innovative type of development designation introduced in the Planning and Development Act in 2000. Such zones facilitate specified development of areas of economic or social importance to the State. Once a site is designated by the Government for the establishment of an SDZ , a development agency is required to prepare a draft planning scheme within two years. The planning scheme is made either by elected members of the planning authority or after an appeal process by An Bord Pleanála . Development within an SDZ requires planning permission from the planning authority and the planning authority has to grant permission where the proposed development is consistent with the planning scheme . There is no appeal to An Bord Pleanála against the decision of the planning authority on an application for development within an SDZ. To date, the following SDZs have been designated for residential development by the Government. Adamstown, Lucan (2001) – South Dublin County Council.• Hansfield, Blanchardstown (2001) – Fingal County Council.• Clonmagadden Valley, Navan (2001) – Meath County Council.• Balgaddy-Clonburris (2006) – South Dublin County Council.•
- 48 Cherrywood, Dublin (2010) – Dun Laoighaire Rathdown County Council.• Monard, Cork (2010) – Cork County Council.• Grangegorman, Dublin City (2010) – Dublin City Council.• North Lotts and Grand Canal Dock, Dublin (2012) – Dublin City Council.• There are a number of features that local area plans can adapt from the SDZ model. Development Agency The success to date of the SDZ model, particularly Adamstown, has been due in part to the establishment of a development agency which represents all the land owners to secure private sector agreement on what is needed to be done, by whom, how, and when. Planning authorities should use the local area plan process to clearly establish areas of responsibilities between all stakeholders, together with a programme for the phasing of development in line with the delivery of physical, social and recreational infrastructure. In-house Planning and Project Management The establishment of a dedicated, multi-disciplined in-house planning and project management team within South Dublin County Council has ensured that the necessary resources and focus is provided at local level to co-ordinate and facilitate development in Adamstown. This in-house team is made up of professional and technical staff from the authority’s planning, architecture, engineering, parks, and housing departments. Prior to embarking on the preparation of a local area plan, a planning authority must ensure that all the resources are available to deliver the physical, social, and environmental infrastructure needed to support the sustainable development of the area in question Sustainability Tool Kit The successful implementation of the policies and objectives of a local area plan must be informed by key social, environmental and physical indicators. The Clonburris SDZ is pioneering the development of a carbon neutral/low energy neighbourhood. A sustainability toolkit has been developed to provide a check-list for both the planning authority and developers to ensure that the implementation of the SDZ happens in sustainable manner. The Clonburris SDZ approach provides a template for a top down/ bottom up approach to sustainability that should be utilised in relation to county development plans and local area plans. Local area plans must contain policies and objectives which focus development on achieving sustainability through encouraging biodiversity, for example, through protecting habitats, energy efficiency through promoting passive energy in building design and district heating systems whilst at the same time building at densities which encourage the optimisation of public transport. 6.5 Monitoring Systems Planning authorities are encouraged to periodically review the success or otherwise of the implementation of the policies and objectives of a local area plan within the life of the plan by effective monitoring systems. Such monitoring could include reviewing
- 49 progress achieved in securing the objectives of the development plan10 or experience in implementing its various policies and objectives and act as part of the monitoring regimes required under the Strategic Environmental Assessment11 and Appropriate Assessment processes as required by Article 6(4) of the Habitats Regulations.12 Monitoring can also encompass periodic surveys including housing land availability, employment (or business) land availability, retail health checks, audits of open space and community facilities. 10 Section 15 of the Planning and Development Act 2000. 11 Article 10 of the SEA Directive requires Member States to monitor the significant environmental effects of the implementation of plans and programmes in order to identify at an early stage unforeseen adverse effects and to be able to undertake appropriate remedial action. 12 Although there is at present no statutory requirement for the monitoring the ongoing impact of the implementation of a development plan on the conservation objectives of Natura 2000 sites, it is best practice to do so. See DEHLG/NPWS “Appropriate Assessment of Plans and Projects in Ireland Guidance for Planning Authorities” (December 2009).
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- 52 This table identifies particular aspects of other guidelines published by the Minister under Section 28 of the Planning Act 2000-2012 or other documents that will, inter alia, be of particular relevance in preparing and implementing local area plans Guideline Relevant Area Requirement Childcare Facilities Guidelines (June 2001) Social infrastructure - Objective & policies which promote the appropriate locations for childcare in terms of land use zonings & transportation infrastructure. Design Standards for New Apartments (September 2007) Residential Development - Average floor areas to be achieved in apartment developments. Spatial Planning and National Roads (January 2012) Transportation and Access - consultation on implications of local area plan’s for national roads network. - Access policies and requirements. Retail Planning Guidelines (May 2012) Retail Objective & policies which reflect; - County retail hierarchy; - Sequential test; - Strategies; & - Policies. Development Management Guidelines (June 2007) Policy objectives & development standards - Policies & objectives must be clear & unambiguous in order to achieve their implementation. Development Plans Guidelines (June 2007) Core strategy - An overview of major planning issues and influences on policies as transposed from the development plan; - Objectives and policies needed to achieve the core strategy; & - Supporting information upon which the core strategy is based. Provision of Schools and the Planning System (July 2008) Social infrastructure - An assessment of existing provision & need in collaborate with the Department of Education & Science ; - Identification of suitable site for new schools or expansion of existing schools; & - Implementation strategy. Sustainable Residential Development in Urban Areas & Best Practice Urban Design Manual (May 2009) Urban Design - Objective & policies which promote compact urban form; - Higher densities in urban areas generally; & - Facilitation of sustainable travel modes. Telecommunications Antennae and Support Structures (July 1996) Telecommunications - Policies & objectives which include locational requirements Wind Energy Development Energy - Policies & objectives which include designations The Planning System and Flood Risk Management (November 2009) Flood Risk - Screening for flood risk assessment; - Site-specific flood risk assessment; & - Objective & policies which assess & manage flood risk. Strategic Environmental Assessment (SEA) (November 2004) Environmental protection - Screening for environmental assessment; - Formulation of alterative policies & objectives; & - Objective & policies which mitigate environmental impact. Putting People First Municipal Districts Members of proposed Municipal Districts to prepare and adopt local area plans for their areas. Appendix
Source Department of the Environment, Community and Local Government: Local Area Plans: Guidelines for Planning Authorities (June 2013) · 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.