Development plan · Longford County Council
Longford County Development Plan 2021–2027
The council's development plan written statement: its strategy, policies, objectives and development standards.
Longford County Council · 2021–2027 · 486 pages
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- Table 4.12 presents the various asset-based criteria used in this approach, as well as an overview of the various quantitative and qualitative settlement appraisal measures for each relevant criterion for the respective settlements which have informed the Settlement Hierarchy for County Longford. Table 4.12: Summary of Criteria Utilised to Inform the County Longford Settlement Hierarchy CRITERIA DESCRIPTION RATIONALE SCALE Population Population resident within CSO defined settlement boundary. Settlements with critical mass of population to drive regional development. Growth Rate % Growth rate between 2011-2016 (County Longford population growth rate was 4.24%) Growth rate will determine capacity for future growth. Towns that have experienced high growth rates may require additional investment in services, infrastructure and employment. Higher Order Spatial Plan Designation Large towns defined by the NPF as >10,000 population and /or >2,500 jobs and settlements identified in the Growth Strategy for the Eastern and Midland RSES. The RSES identified Longford Town as a ‘Key Town’ in its Growth Strategy owing to its substantial economic activity and as a centre for employment, with high-quality transport links and the capacity to act as a growth driver to complement the Regional Growth Centre of Athlone. FUNCTION Commuter Trips Journey times from the settlement to work, school or college The scale of commuting flows will inform the characterisation of a settlement as commuter focused or as more self-sustainable. Jobs to resident workers ratio By undertaking an analysis of the POWCAR and Workplace Zones 2016 database, it is possible to develop a profile of both the number of resident workers and number of local jobs. An analysis of the ratio between workers and jobs at the settlement level reveals the economic importance of a number of County Longford settlements for their respective surrounding areas. Retail Hierarchy Retail hierarchy based on the Retail Strategy in the Plan. Consideration must be given to the retail hierarchy included in the County Longford Retail Strategy. SOCIAL INFRASTRUCTURE / PLACEMAKING Community Facilities Sustainable neighbourhoods require a range of community facilities as stated in the Department of Environment, Heritage and Local Government Guidelines on Sustainable Residential Development in Urban Areas (2009). The extent of local services provision (such as shops, schools, pre-school facilities, community halls or centres; medical centres etc) will determine the attractiveness of a settlement to attract and retain a critical mass of population.County Development Plan 2021–2027 91
- CRITERIA DESCRIPTION RATIONALE ENTERPRISE Economic Assets Higher Education Centres, Business incubation and innovation centres, technology and research centres, business parks or industrial estates, local enterprise office, and strategic employment sites. Firms and enterprise development are drawn to urban locations by market forces such as agglomeration, migration and specialisation that depend on factors such as scale, accessibility, innovation supported by higher education institutions and quality of life. As per the NPF16, Ireland’s natural resources are some of our greatest assets and through the development of the agriculture, food, forestry, tourism and renewable energy sectors, this will not only sustain rural employment, but also contribute to driving the national economy. CONNECTIVITY Public Transport Proximity to high quality public transport, both existing and planned. Access to transport infrastructure influences the location of housing and employment growth, with compact settlements more efficient in terms of maximising returns on transport investment. Modal Share % mode share of work and education trips (origin) by active travel (walk, cycle), public transport, car (driver, passenger). Mode share data indicates the extent of car dependency in a settlement. NATURAL CAPITAL Flood Risk (SFRA) Flood Risk Summary of key Towns from SEA Environmental Report. Includes Flood Zones, constraints and measures identified in the FRMP along with assessment of climate change and adaption measures. Future development and flood risk assessment will need to consider and address flood risk at settlement level. 16 National Planning Framework, p75Longford County Council 92
- 4.8.5 County Longford Settlement Hierarchy Tiers The Settlement Hierarchy for County Longford has been assigned in accordance with the spatial structure and settlement typologies set out in the RSES. It categorises areas for development within the county on a priority basis as per Table 4.13. Furthermore, recommended densities are indicated as per Table 4.14. Table 4.13: Settlement Hierarchy for Longford County Development Plan 2021-2027 Settlement Typology Description Settlements Key Town Large economically active service and/or county towns that provide employment for their surrounding areas and with high-quality transport links and the capacity to act as growth drivers to complement the Regional Growth Centres Longford Town Self-Sustaining Growth Towns i) 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 become more self-sustaining. Granard Self-Sustaining Towns ii) 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. Ballymahon Edgeworthstown Lanesborough Towns and Villages Towns and villages with local service and employment functions. Aughnacliffe, Ballinalee, Drumlish, Keenagh, Legan, Newtownforbes Rural Serviced Rural Villages and Rural Settlement Clusters with a limited level of services and the wider open countryside. The open countryside provides for rural economies and rural communities, based on agriculture, forestry, tourism and rural enterprise. This should be facilitated while avoiding over-spill development from urban areas and urban generated housing. The sustainable development of the open countryside will be supported. ■ Serviced Rural Villages Abbeyshrule, Ardagh, Ballinamuck, Clondra ■ Rural Settlement Clusters Abbeylara, Ballycloughan, Ballywillan, Barry, Bunlahy, Carrickboy, Carriglass, Colehill, Coolarty, Cullyfad, Derraghan, Dring, Enybegs, Forgney, Killashee, Kilnatraun, Legga, Lisryan, Melview, Moydow, Moyne, Mullinalaghta, Newtowncashel, Ratharney, Stonepark, Taghshinny. ■ Open CountrysideCounty Development Plan 2021–2027 93
- Table 4.14: Recommended Residential densities and settlement hierarchy SETTLEMENT HIERARCHY Key Town (35-40 units/ha) Longford Town Self-Sustaining Growth Town (25 units/ha) Granard Self-Sustaining Towns (25 units/ha) Ballymahon, Edgeworthstown, Lanesborough Towns and Villages (20 units/ha) Aughnacliffe Ballinalee Drumlish Keenagh Legan Newtownforbes Rural includes Serviced rural villages (15 units/ha) Abbeyshrule Ardagh Ballinamuck Clondra Rural Settlement Clusters and Open Countryside 4.8.6 Population Allocation at Settlement Level The demographic analysis undertaken to inform this Core Strategy identified a consistent trend over the period between 1991-2016 whereby Longford Town assumed approximately 25% of the overall county population in each subsequent census over this period. This proportion is largely expected to be maintained over the plan period, with sufficient capacity within Longford Town to accommodate this additional growth. The demographic analysis also revealed a disparity in the levels of growth in respect of the other main settlements in the county over the same 25-year timeframe. Over this period, Edgeworthstown and Ballymahon recorded significant growth in population terms, with the populations of both settlements growing by 1,271 persons (+157%) and 1,061 persons (+130%). Lanesborough recorded more moderate growth over the same period (400 persons or +38%)17. In contrast, Granard sustained long periods of population stagnation and even decline over the same 25-year timeframe, with its population in 2016 (1,096) reducing by 125 persons (-10%) from its 1991 equivalent. A key principle of the Settlement Strategy is the need for a more balanced network of higher order towns in the Settlement Hierarchy to support the role and function of Longford Town as the principal economic driver and focus of investment for the county. In addition, the demographic analysis illustrated a clear requirement to address the disparity in growth rates amongst the four other main settlements in the county and in particular to arrest the stagnation in growth experienced in Granard. Accordingly, it was decided to grow these 4 no. settlements in proportion to the overall growth of Longford Town, with Granard denoted as a Self-Sustaining Growth Towns in the Settlement Hierarchy, growing in population terms by 25% of Longford Town’s equivalent population growth up to 2027. Ballymahon, Edgeworthstown and 17 Recorded as the CSO defined settlement ‘Lanesborough-Ballyleague’Longford County Council 94
- CPO 4.1 CPO 4.2 CPO 4.3 CPO 4.4 CPO 4.5 CPO 4.6 Lanesborough are designated as Self-Sustaining Towns in the Settlement Hierarchy and will each grow by 15% of Longford Town’s population growth over the same period. For the settlements within the remaining tiers of the Settlement Hierarchy, these will be allowed to grow relative to their current proportion to the overall county population on a non-intervention basis. In adopting this interventionist approach in relation to the population allocations for the Self- Sustaining Growth Town and Self-Sustaining Towns, this Strategy provides for more balanced growth across the county, whilst recognising the geographic spread of each settlement across the county and the role each settlement can play in supporting the ‘Key Town’ of Longford Town, whilst also reinforcing and strengthening the wider network of towns and villages within the county. This approach also provides assurance that no lower order settlement will outgrow a higher order settlement. A further interventionist approach was undertaken with respect to the housing allocation for the ‘Rural’ settlement tier to further sustain these settlements and in recognition of historical development trends for rural housing within County Longford. Over the period between 2006-2019, 40% of residential units granted planning permission were for single rural dwellings. Accordingly, further adjustments to the housing allocations within the settlements of Longford Town, Edgeworthstown and Ballymahon were undertaken. This comprised of a reallocation of 40 units form Longford Town and 15 units each from Edgeworthstown and Ballymahon to be distributed throughout the ‘Rural’ settlement tier. The allocations of the population growth for the county, as expressed in the NPF Implementation Roadmap, across the settlement tiers are detailed in Table 4.15: Core Strategy Table. (Section 4.10 Core Strategy Table (page 112)) Settlement Strategy - County Policy Objectives It is the County Policy Objective to: Promote the sustainable growth and development of the county in accordance with the Settlement Hierarchy and population targets established within the Core Strategy and commensurate with the network of urban centres, villages and rural areas presented in the Settlement Strategy and their respective capacities to assimilate sustainable levels of future development. Require at least 30% of all new homes that are targeted in settlements to be located within the existing built-up footprint of the settlements18, in an effort to make settlements more compact and reduce unsustainable urban sprawl and ribbon development. Reinforce the centres of settlements through the increased focus on the development of infill sites, brownfield lands, under-utilised land/buildings, vacant sites, and derelict sites within the existing built-up footprint of the settlements and develop outwards from the centre in a sequential manner. Arrest the decline and stagnation in areas that have experienced low population growth or decline in recent decades. Manage the growth of rural areas that are under strong urban influence and stronger rural areas to avoid over-development, whilst sustaining vibrant urban communities. Support the regeneration of underused town centre and brownfield/infill lands, promote measures to reduce vacancy and the underuse of existing building stock and support initiatives that promote the reuse, refurbishment and retrofitting of existing buildings within urban centres and targeted settlements in the County in order to achieve sustainable compact growth targets of 30% of all new housing to be built within the existing urban footprint of targeted settlements in the County. 18 This means within the existing built-up footprint of all sizes of urban settlement, as defined by the CSO in line with UN criteria i.e., having a minimum of 50 occupied dwellings, with a maximum distance between any dwelling and the building closest to it of 100 metres, and where there is evidence of an urban centre (shop, school etc.).County Development Plan 2021–2027 95
- CPO 4.7 CPO 4.8 CPO 4.9 4.8.7 Key Town – Longford Town Longford Town has grown significantly in recent decades with a substantial economic profile as reflected in its high jobs to resident workforce ratio (1.596) indicative of a net-inflow of workers into the settlement owing to its robust employment base. Longford Town is designated as a ‘Key Town’ in the RSES on account of its role as an economically active service town providing employment for its surrounding area, as well as being endowed with high-quality transport links and the capacity to act as a regional driver to complement the Regional Growth Centre of Athlone. Its designation is also reflective of the substantial retail and administrative functions on offer in Longford Town, as well as its level of physical and social infrastructure which serves a broad, crossregional hinterland. The RSES states that Key Towns should seek commensurate population and employment growth, on high quality public transport corridors coupled with investment in services, amenities and sustainable transport. It is a policy objective of the Council to prepare a Local Area Plan (LAP) for Longford Town to align with the RSES and this Core Strategy. Given its designation within the RSES Settlement Hierarchy, and as reflected in this Core Strategy, Longford Town is identified as the settlement targeted for the most growth over the Plan period. Accordingly lands have been identified within its built-up urban boundary which could potentially be brought forward for development over the Plan period, and which are in accordance with the key NPO 3c of the NPF in delivering at least 30% of all new residential units targeted for Longford Town within its existing built-up footprint. Key Town - County Policy Objectives It is the County Policy Objective to: Support the continued sustainable growth and development of Longford Town in its capacity as a driver of economic activity and overall growth within the county. Support Longford Town in fulfilling its function as a Key Town within the County and Regional hierarchy of settlements, including its role in supporting and complementing the designated Regional Growth Centre of Athlone. Prepare and implement a Local Area Plan for Longford Town to align with the policy objectives of the NPF, Eastern and Midland RSES and Longford County Development Plan 2021-2027, including this Core Strategy, within two years from the adoption of the Longford County Development Plan 2021-2027. Any such Local Area Plan will be informed by a Local Transport Plan to be prepared for Longford Town.Longford County Council 96
- 4.8.8 Self-Sustaining Growth Town - Granard Self-Sustaining Growth Towns, according to the RSES, are 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 become more self-sustaining’. Granard has a robust employment base, with a particular focus on manufacturing in the food and agricultural sectors, with the Pat the Baker food manufacturing company and Kiernan Milling both significant employers. In 2016, there were a total of 269 resident workers within Granard, however 633 total jobs were recorded, giving a jobs to resident workers ratio of 2.35; the highest recorded ratio within the regional area. These statistics also reveal a low level of resident workers within the town, with a reliance on workers from outside the settlement. In addition, the settlement has experienced population growth stagnation and decline between 1996-2016 (1,221 – 1,096 respectively19), in comparison to other settlements within the county. Granard also acts as an important retail centre to its inhabitants and wider hinterland, as reflected in its designation in the RSES as a Level 3 retail centre (Town and/or District Centres & Sub-County Town Centres (Key Service Centres)). Moreover, given its proximity to the Longford-Cavan border, Granard performs as a key service provider and retail centre for a broad hinterland which extends beyond the County boundary. Granard also has sufficient capacity in its physical infrastructure (e.g. wastewater plant) to accommodate additional development commensurate with its position within the Settlement Hierarchy. Furthermore, Granard has been identified for significant regeneration in its town core which will act as a further catalyst in sustaining its existing population and robust employment base whilst enhancing further opportunities for residential development and employment. CPO 4.10 Self-Sustaining Growth Town It is the County Policy Objective to: Promote the commensurate population and employment growth in the designated Self- Sustaining town, in accordance with the Core Strategy, and to deliver targeted regeneration and ‘catch-up’ investment in services, infrastructure, amenities and local employment in order to become more self-sustaining. 4.8.9 Self-Sustaining Towns – Edgeworthstown, Ballymahon and Lanesborough The RSES defines ‘Self Sustaining Towns’ as 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 selfsustaining’. Both Edgeworthstown and Ballymahon have seen significant growth over the twenty-year period between 1996 and 2016, with their populations increasing by approximately 181% and 138% respectively over this period. More recently, the 2016 Census recorded the populations of Edgeworthstown and Ballymahon as being 2,072 and 1,877 respectively, with both settlements firmly established as the second most populated towns in the county. Given their populations exceed 1,500, both settlements are considered ‘urban’ areas under the CSO definition20. Edgeworthstown and Ballymahon also command robust jobs to resident workers ratios (0.817 and 0.734 respectively). Edgeworthstown has a long-established manufacturing and light-industrial base, with particular focus on agri-food and the service sector and also has excellent transports links owing to its 19 Based on former Legal Town boundary in respect of both recorded populations for Granard. 20 ‘Urban and Rural Life in Ireland 2019’, CSO (2019). Available at: https://www.cso.ie/en/releasesandpublications/ep/p-urli/ urbanandrurallifeinireland2019/County Development Plan 2021–2027 97
- proximity to key transport corridors in the form of the N4 and the Sligo-Dublin InterCity rail line. Similarly, Ballymahon has a strong manufacturing and lightindustrial base, with a key retail and service-sector standing within the county, with significant growth in tourism-orientated services such as food and drink, hostelries, and tourist accommodation which has coincided with the opening of the nearby Longford Forest Center Parcs resort in 2019. Notwithstanding the significant population increase experienced in Edgeworthstown and Ballymahon over the last 25 years, their capacities to assimilate future development within their settlements is impeded by current limited capacities of their respective wastewater treatment plants (wwtps). Whilst Irish Water (IW) is committed to upgrading these plants over the lifetime of the plan, no such works will take place before 2024. Accordingly, given this need for ‘catch up’ investment, Edgeworthstown and Ballymahon are categorised as ‘Self-Sustaining Towns’. Lanesborough has also seen a steady increase in its population over the intercensal period, with the CSO defined settlement of Lanesborough- Ballyleague recording a population of 1,454 in 2016; a 6% increase on the equivalent 2011 census figure. In 2016, the Lanesborough-Ballyleague settlement recorded 543 resident workers with 351 jobs in the settlement (jobs to resident workers ratio of 0.64). Lanesborough is currently in a state of structural economic change, with the closure of the Lough Ree power station having a direct impact on ESB employees and indirectly on Bord na Móna employees with peat harvesting the main source of fuel for the plant. Lanesborough has also been identified for regeneration purposes and has already secured funding for targeted regeneration schemes through the Rural Regeneration Development Fund and other funding streams. In addition, the roll out of the ‘Just Transition’ Fund will have significant positive impacts on a variety of sectors within the Lanesborough community, ranging from agrifood to tourism, to alternative energy sectors. It is anticipated that such targeted investment will provide the stimulus for further ‘catch-up’ investment to grow Lanesborough in a sustainable manner and enhance its self-sustaining attributes further. CPO 4.11 CPO 4.12 Self-Sustaining Towns - County Policy Objectives It is the County Policy Objective to: Support the further development of Self-Sustaining Towns as key locations of population growth and as drivers of economic growth and prosperity commensurate with the level of growth outlined in the Core Strategy. Promote consolidation in Self- Sustaining Towns coupled with targeted investment where required to improve local employment, services and sustainable transport options and to become more selfsustaining settlements. 4.8.10 Towns and Villages This tier of the Settlement Hierarchy comprises of 11 no. towns and villages which fulfil significant roles in terms of local services provision, amenity, local employment sources with scope for moderate residential growth. While these settlements invariably have a reduced level of services in comparison to those settlements identified in previous tiers of the Settlement Hierarchy, these settlements can offer an attractive environment for their inhabitants by balancing higher quality of life features associated with rural living, whilst also providing for the sharing of services, such as wastewater and water supply in a more efficient and effective manner, as opposed to sporadic, oneoff rural development. These settlements have unique attributes in terms of natural and/or built and cultural heritage that require specific designation to protect and enhance their character. Each settlement also has the necessary infrastructure capacity available to accommodate additional growth and to sustain and enhance existing services for the needs of their hinterlands and act as catalysts for the rural economy of the county.Longford County Council 98
- CPO 4.13 CPO 4.14 CPO 4.15 Towns and Villages - County Policy Objectives It is the County Policy Objective to: Promote the commensurate growth in development in the ‘Towns and Villages’ as designated in the Settlement Hierarchy, in a consolidated, sustainable and sequential manner, with targeted investment to improve local employment, services and sustainable transport options and to become more self-sustaining. Consider proposals for residential development in settlements defined as ‘Towns and Villages’ in the Settlement Hierarchy in accordance with the following criteria: a) Adherence to population allocations of the subject settlement as prescribed in the Core Strategy and the demand/need for the proposed level and type of residential development; b) The ability of the proposal to adequately address, and where possible enhance, the existing nature and character of the subject settlement; c) Compliance with relevant legislative, technical, environmental, design guidance prescribed under Section 28 of the Planning and Development Act 2000, as amended, and any such relevant policies and objectives contained within this Plan or any other relevant plan, the functional area of which may contain the subject settlement. Support housing and repopulation taking place within ‘Towns and Villages’ as designated in the Settlement Hierarchy, in a consolidated, sustainable and sequential manner, and to promote the provision of serviced sites supported by Irish Water in order to attract people to build their own homes and live in small towns, whilst also managing the levels of growth at an appropriate scale to ensure compliance with the Core Strategy Table. Also refer also to CPO 5.17 in respect of the need to adhere to the provisions of official policy in relation to development accessing national roads. 4.8.11 Rural (Serviced Rural Villages, Rural Settlement Clusters and Open Countryside) Given the predominantly rural nature of the population distribution in the county21, the network of rural settlement clusters within the county and residential development within the rural countryside are identified as critical elements of this Settlement Strategy for sustaining the vitality of rural communities. In terms of the future development of these areas, this Plan places emphasis on maintaining existing the Serviced Rural Villages of Abbeyshrule, Ardagh, Ballinamuck and Cloondara. This is in addition to the network of Rural Settlement Clusters within the county, with a view to the long-term enhancement of existing services and facilities and also the retention and creation of local-level employment opportunities in such smallscale settlements. These locations provide modest social and community infrastructure and services such as schools, shops, post offices, public houses and residential housing. Residential development in these areas will only be permitted at a small-scale, commensurate with existing levels of development and reflective of the character of existing settlements. Small-scale residential development which act as a viable alternative to one-off housing in the open countryside and alleviate such pressures will be permitted in these areas. These areas will cater for local need in a similar manner to current one-off housing policy (and in accordance with the provisions of the Sustainable Rural Housing Guidelines 2005 and any replacement guidelines issued under Section 28 of the Planning and Development Act 2000, as amended). A number of these settlements have experienced an increase in development in recent years and it is envisaged 21 2016 Census of Population identified a rural-urban population split as being 66% - 34% respectively for County Longford.County Development Plan 2021–2027 99
- that these areas will provide scope for the further expansion of existing services as well as the introduction of new services and infrastructure over a longer timeframe, commensurate with the scale of such settlements. Fostering the conditions and environment for such settlements to sustainably grow and lead to further development of existing services is an overarching principle under this tier of the Settlement Hierarchy. Rural Settlement Cluster Policy and Design Statements will be prepared within the lifetime of this Plan to address development issues in these Rural Service Clusters and identify opportunities for targeted infrastructure provision and investment. Such Policy and Design Statements will be informed by the programme for ‘new homes in small towns and villages’ to be developed under NPO 18b of the NPF, in collaboration with local authorities, public infrastructure agencies such as Irish Water and local communities, in order to provide serviced sites with appropriate infrastructure to attract people to build their own homes and live in these designated Rural Settlement Clusters. In the interim, the area contained within each identified Rural Settlement Cluster envelope shall be zoned to cater for the development of small-scale residential development reflective of the existing character of the settlement and limited local-level services and social and community infrastructure such as schools, neighbourhood and shops, except where specifically stated otherwise. One – Off Rural Housing A significant majority of housing planning permissions in County Longford have been in the open countryside, with one-off rural housing accounting for 64.1% of housing units granted in the county between 2012 and 2019. However, it should be noted that this period coincided with a time of very little activity in the housing market in Longford. The NPF recognises the importance of sustaining rural areas, specifically through NPO 15 which states: ‘Support the sustainable development of rural areas by encouraging growth and arresting decline in areas that have experienced low population growth or decline in recent decades and by managing the growth of areas that are under strong urban influence to avoid overdevelopment, while sustaining vibrant rural communities’22. As per NPO 19, the NPF requires a clear distinction to be made between areas under urban influence and elsewhere in providing for the development of rural housing in the countryside. The RSES reinforces this through its requirement for core strategies of development plans to identify ‘areas under strong urban influence in the hinterlands of settlements and set the appropriate rural housing policy response to avoid ribbon and over spill development from urban areas’, support revitalised towns and villages, achieve sustainable compact growth targets, sustainably address rural decline and protect the rural resource for rural communities. The Council will ensure that development of the open countryside takes place in a manner that is compatible with the policy objectives of the NPF, and further expressed by the RSES, whilst ensuring the protection of key economic, environmental, biodiversity and cultural/heritage assets such as the road network, water quality and important landscapes. Section 4.8.12 sets out the Rural Settlement Strategy for County Longford including specific rural housing County Policy Objectives. The 22 National Planning Framework 2040; p71.Longford County Council 100
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