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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- The planning authority shall finalise the IAR and implement the TAZ through the local area plan preparation process, through the phasing and sequential development of those lands according to the availability or feasibility of delivering services. 4.3.2 Implementation Roadmap for the National Planning Framework (2018) This Roadmap provides transitional population projections at a County scale in order to inform Development Plans for the period 2026 and 2031. The transitional population projections for County Longford are listed in Table 4.1. Table 4.1: Transitional Regional and County Population Projections to 2031 for the Eastern and Midland Regional Assembly (Source: Implementation Roadmap for the National Planning Framework) Sub-Region and Counties 2016 2026 2031 Midlands Longford 41,000 44,500-45,500 46,000-47,000 Westmeath 89,000 96,500-98,500 100,000-102,500 Offaly 78,000 85,000-86,500 88,000-90,000 Laois 84,500 92,500-94,000 95,500-97,500 Sub-total 292,500 318,500-324,500 329,500-337,000 Mid-East Kildare 222,500 249,000-254,000 259,000-266,500 Meath 195,000 216,000-221,000 225,500-231,500 Wicklow 142,500 139,000-144,500 144,000-151,500 Louth 129,000 139,000-144,500 144,000-151,500 Sub-total 689,000 759,000-777,000 789,000-813,500 Dublin Dublin 1,347,500 1,489,000-1,517,500 1,549,500-1,590,000 Total 2,329,000 2,566,500-2,619,000 2,668,000-2,740,500County Development Plan 2021–2027 71
- Table 4.2: Calculation of Housing Supply Targets for County Longford over the plan period10 Longford County Council Annual Average Households Total Households A ESRI NPF scenario projected new household demand 2017 to end Q4 2027 277 3,042 B Actual new housing supply 2017 to end Q3 2021 (Source: CSO to Q4 2020, pro-rata of 2020 data for remainder) 103 517 C Homeless households and unmet need11 - 43 D Plan Housing Demand = Total (A-B+C) For plan period Q1 2022 – Q4 2027 (6 years) 428 2,568 E Potential Adjustment 1 to end 2026 portion of plan period – not pursued F Potential adjustment 2 to end 2026 portion of plan period to facilitate convergence to NPF strategy, applicable where B exceeds or is close to D (where justified) – not pursued 4.3.3 Housing Supply Target Methodology for Development Planning (2020) In order to strengthen the relationship between national and regional population projections and their integration into the development planning process at local authority level, the Department commissioned the ESRI to further develop work previously undertaken for the NPF. The findings of the ESRI work were published as a research paper on Structural Housing Demand at County Level in December 2020. Following publication of this, the Housing Supply Target Methodology for Development Planning: Guidelines for Planning Authorities, issued under Section 28 of the Planning and Development Act 2000, as amended, was published. This ESRI research applies the projection model to four different development scenarios: ■ Baseline – projecting a ‘business as usual’ scenario which is based on current trends and medium-term projections for the Irish economy; ■ NPF 50:50 City – consistent with the NPF strategy; ■ High Migration – incorporating assumptions around high international migration flows into Ireland based on higher economic growth than the baseline; and ■ Low Migration – incorporating assumptions around lower international migration flows into Ireland based on lower economic growth than the baseline. The ESRI research model is intended to enable structural household demand levels for each local authority area to be set out under the four different scenarios for each year to 2040. The Section 28 Guidelines state that ‘the NPF 50:50 City scenario is broadly consistent with the National Planning Framework strategy and consequently, the 2018 NPF ‘Roadmap’ document’. As such, the Section 28 Guidelines further indicate that this is the recommended housing demand scenario to be used by planning authorities in their planning functions in order to plan for the provision of housing to meet projected levels of demand in their administrative area, in accordance with the NPF strategy. Thus, planning authorities must now demonstrate the manner in which their core strategy and other elements of the plan are consistent with the NPF 50:50 City housing demand projection scenario identified by the ESRI. Deviation from this scenario, the Guidelines state, must be evidence-based and consistent with these guidelines. The Guidelines set a methodology for the application of population and housing projections into Local Authority plan processes. 10 Following ‘Housing Supply Target Methodology for Development Planning’ (DHLGH, December 2020) 11 Homeless households as of January 2021, plus unmet need as of Census 2016; source: DHLGH, February 2021.Longford County Council 72
- As set out below in Table 4.2, Longford County Council have finalised the following calculation of housing demand for the plan period. Longford County Council will not pursue optional adjustments (‘E’ or ‘F’), and therefore will pursue a total housing supply target of 2,568 units for the Longford County Development Plan over a plan period12 anticipated to cover approximately Q1 2022 – Q4 2027 inclusive. 4.3.4 Eastern and Midland Regional Assembly Regional Spatial and Economic Strategy 2019 - 2031 The Eastern and Midland Regional Assembly Regional Spatial and Economic Strategy (RSES) sets out a Growth Strategy for the Region in line with growth identified in the NPF and the population targets provided for the in the Implementation Roadmap for the National Planning Framework. The key enablers of the Growth Strategy of the RSES that will influence future growth and development in County Longford are as follows: ■ Future growth will be predominantly directed towards key designated settlements such as Longford Town and other settlements identified as having the capacity, level and range of services and amenities to sustain and cater for future residential, employment, service and amenity requirements in a sustainable manner. ■ Compact urban growth to realise targets of at least 30% of all new homes to be built within or contiguous to the existing built up urban areas. ■ There will be a greater focus on sustainable growth in small-medium sized settlements including infill and brownfield development in addition to support for an improvement in the provision of amenities and services. ■ Complement and support the continued growth of Athlone in its role as a Regional Growth Centre and economic driver in the centre of Ireland. ■ There will be a focus on investment in rural towns and villages to address the decline of rural areas, with a focus on the identification of rural towns, villages and rural regeneration priorities to give vibrancy to these areas. ■ Diversification and growth of smart specialisation of local economies with a strong focus on clustering, including sustainable farming and food production, tourism, marine, energy and renewables and bioeconomy, with a focus on publicly owned peatlands in the midlands, to support a ‘Just transition’ and realise the benefits of green technologies. ■ Promote the Region as a key destination for tourism, leisure and recreation activities and support the development of an integrated network of greenways, blueways and peatways while ensuring that high value assets and amenities are protected and enhanced. ■ ‘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 their residents. Related to this Growth Strategy is a Settlement Strategy set out in the RSES which identifies a Settlement Hierarchy for the Region and an identification of key growth areas that will see significant development up to 2031. 12 For calculation purposes, the plan period has been rounded to whole quarters. Ballymahon town centreCounty Development Plan 2021–2027 73
- The Settlement Hierarchy contained within the RSES was informed by an evidence driven Settlement Typology and ‘Asset-Based’ approach to the identification of settlements which have the greatest capacity and potential for growth and to act as ‘engines’ for wider regional growth. A number of key criteria were considered in the development of the asset base as follows: The Settlement Hierarchy in the RSES classifies Longford as located within the Gateway Region of which Table 4.4 details the RSES Settlement Hierarchy relevant. Table 4.3: Asset Based Criteria for Compact Growth Sub-Region and Counties 2016 Scale: The scale of population, growth rates and local ambition for sustainable compact growth. Function: The scale of employment provision and commuting flows, particularly sub-regional interdependencies and influence. Human Capital: The extent of local services provision i.e. administration, education particularly third level, health, retail and amenities; levels of relative affluence or deprivation. Enterprise: The availability of economic development assets and clusters. Placemaking: This is linked to ‘Functionality’ in terms of provision of suitable sites and property solutions to meet enterprise and labour force expectations. Connectivity: Transport accessibility and trip profiles, including internal trips. Environmental/ Natural Capital: Environmental sensitivities, resources and assets. Infrastructure: Current and planned infrastructure capacity. Longford Town, Town ParksLongford County Council 74
- Table 4.4: RSES Settlement Hierarchy for the Eastern and Midland Regional Assembly Region (as relevant to County Longford) Settlement Typology Description Gateway Region 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. Athlone and Dundalk 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. Longford 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 selfsustaining Defined by Development Plan 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 selfsustaining. Defined by Development Plan Towns and Villages Towns and villages with local service and employment functions Defined by Development Plan Rural Villages and the wider rural region Defined by Development Plan 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. It 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). The Settlement Hierarchy identifies only one County Longford-based settlement, Longford Town, which is classified as a ‘Key Town’ on account of its large economic activity service and status as a county town that provides employment for its surrounding area and which is supplemented by high-quality transport links and the capacity to act as regional driver to complement the Regional Growth Centre of Athlone. In relation to lower settlement tiers within its hierarchy, the RSES advocates the use of the asset-based criteria approach to identify these settlements within the respective development plans of local authorities. This approach has also been utilised to guide the development of the Settlement Hierarchy for County Longford, as detailed in Section 4.10.4. Within higher order settlements such as Regional Growth Centres and Key Towns, such as Longford Town, the RSES asserts that core strategies should apply higher densities in these settlements. However, the RSES further states that 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.County Development Plan 2021–2027 75
- 4.4 Core Strategy Relationship with other Plans and Strategies In addition to strategic guidance set out in the NPF and the Eastern and Midland RSES, the Development Plan and Core Strategy has also had regard to relevant national, regional and local level plans and strategies, along with a number of planning guidance documents issued under Section 28 of the Planning and Development Act 2000, as amended (see Annex 1). In particular the Guidance Note on Core Strategies, DoEHLG (2010) recommends that planning authorities undertake an appropriate level of analysis to ensure that sufficient lands are zoned at suitable locations, taking account of higher level planning policies and the required physical infrastructure. The following are also of particular note: 4.4.1 County Longford Housing Strategy In accordance with Part V of the Planning and Development Act 2000, as amended, each planning authority is required to prepare a Housing Strategy which will cover the period of its Development Plan. The Housing Strategy must have regard to the proper planning and sustainable development of the area and must address the overall supply of housing within the administrative boundary of the local authority. Accordingly, the Planning Authority has a statutory obligation to address the need for social and affordable housing and to ensure that sufficient land is zoned for housing over the period of its Development Plan. All aspects relating to the housing market were considered during the preparation of the Housing Strategy, including an assessment of the prevailing economic and local market conditions through detailed quantitative and qualitative assessments, which included drawing on local auctioneer and property management expertise, to ascertain a comprehensive impression of the current and future market outlook. Whilst the evidence gathered would suggest that challenges exist within the housing market in County Longford, there is consensus that activity should gather pace within the immediate future as the economy continues to grow and, with that, the increased demand for additional housing. Set within this context, the Council has planned for the growth of the housing market in Longford, whilst recognising the need for increased levels of development within established urban settlements and the importance for fostering ‘compact growth’ in our settlements in the overall sustainable development of the County. In line with the methodology employed, the population targets defined as part of the Housing Strategy are in line with the RSES population targets and support the settlement hierarchy outlined within the RSES. It should further be noted that the Housing Strategy addresses the provision of housing in the County, including social and specialist housing, demand for different house types, meeting the needs of varying households and incomes. The population projections and settlement hierarchy defined as part of this core strategy are consistent with the population projections and settlement hierarchy contained as part of the Housing Strategy. The Housing Strategy for County Longford is included in Annex 4 of this Plan. 4.4.2 County Longford Housing Need Demand Assessment (HNDA) Under Section 94 (1) (a) of the Planning and Development Act 2000 (as amended), each planning authority: ‘shall include in any development plan a strategy for the purpose of ensuring that proper planning and sustainable development of the area of the development plan provides for the housing of the existing and future population of the area in the manner set out in the strategy’. Any such strategy must take into account of: ■ existing need and the likely future need for housing; ■ need to ensure that housing is available for persons who have different levels of income; ■ need to ensure that a mixture of house types and sizes is developed to reasonably match the requirements of the different categories of households, as may be determined by the planning authority, and including the special requirements of elderly persons and persons with disabilities, and; ■ need to counteract undue segregation in housing between persons of different social backgrounds. In order to ensure that the plan-making system is supported by a robust methodology to inform policies and funding initiatives around housing andLongford County Council 76
- The key purpose of the Longford core strategy is to ensure that the local authority identify and reserve an appropriate amount of land in the right locations to meet housing and population targets. New Housing StockCounty Development Plan 2021–2027 77
- associated land requirements, the NPF introduced a requirement for each local authority to develop a Housing Need Demand Assessment (HNDA). The HNDA will support the preparation of housing strategies and all related housing policy outputs, e.g. county development plans, local area plans, traveller accommodation plans. The purpose of the HNDA 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 HNDA process complements the Core Strategy in providing the quantitative evidence base to articulate the medium to longer term spatial development strategy of the functional area of the planning authority and in so doing to demonstrate that the development plan and its objectives are consistent with national and regional development objectives. The HNDA process is elaborated and presented in greater detail in the Housing Strategy provided in Annex 4. 4.4.3 County Longford Retail Strategy 2021- 2027 In terms of the Core Strategy there is a particular requirement to demonstrate that regard has been had to the statutory Retail Planning in setting out objectives for retail development. In this regard the County Longford Retail Strategy reflects the important role Longford Town, identified as a Level 2 - ‘County Town Centre’ within the retail hierarchy for the Region, plays in the overall retailing function of the County through its position at the top of the retail hierarchy in this Plan. Similarly, the RSES retail hierarchy takes account of the retail role and function played by Granard, which is identified as a Level 3 – ‘Key Service Centre’. The Retail Strategy also recognises the important retail functions other settlements within the County undertake, whilst also reinforcing their respective rural hinterlands through the provision of key services and retail choice. In order to cater for the population increases envisaged over the Plan period, it is considered that an approximate total of 2,100-3,200 sq.m of convenience floorspace; 2,000-2,650 sq.m. of comparison floorspace; and 2,200-4,850 sq.m. of additional bulky goods retail floorspace is required over the period up to 2027. In line with the Retail Planning Guidelines, and having regard to the Retail Hierarchy, Longford Town is identified as being the only location within the County suitable for the provision of District Centres for the purpose of providing retailing and amenities to serve its catchment population. Accordingly, as a consequence of the retail primacy of Longford Town in the County, the importance of promoting the use of appropriate lands within Longford Town for the development of associated employment generating, industrial and mixed uses in order to enhance and contribute to the overall economy of Longford is acknowledged in the Core Strategy. The Longford County Retail Strategy is contained in full in Volume 3: Annex 9 of this Plan, with relevant policy contained in Section 8.7.2 of this Volume. 4.5 County Longford Development Plan Strategy (Core Strategy) The key purpose of the Longford core strategy is to ensure that the local authority identify and reserve an appropriate amount of land in the right locations to meet housing and population targets. This is done through the articulation of a medium to long term quantitative strategy for the spatial development of the area of the planning authority which is consistent with national and regional policy objectives set out in the NPF and the RSES and previously indicated. County Longford also benefits from a strategic national road network reflecting its central location in the country. Several strategic national primary and secondary routes traverse the County from east to west; and from north to south. These include the N4 and the N5, both of which are components of the Trans-European Transport Networks (TEN-T) Comprehensive Network; as well as the N55, N63 and several strategically important regionally routes, including the R392 which provides a route from Lanesborough and Ballymahon to Mullingar. Together the EU TEN-T Network and the national roads identified provide important strategic linksLongford County Council 78
- within and through the county and region, including providing critical international connectivity. Accordingly, this Core Strategy articulates a medium to longer term evidence and quantitatively based strategy for the spatial development of County Longford, whilst demonstrating consistency with national and regional development objectives outlined in the NPF and RSES as previously outlined. This Core Strategy identifies the quantum, location and phasing of development for the plan period that is consistent with the regionally defined population targets and settlement hierarchy, and, which reflects the availability of existing services, planned investment, sequential development and environmental requirements (i.e. an evidencebased approach in determining the suitability of lands for zoning purposes). In accordance with statutory requirements the County Longford Core Strategy sets out to: 1. Define a settlement hierarchy for the County that is consistent with the NPF and RSES. 2. Transpose the prescribed NPF and RSES housing and population targets set at County level for the rural and urban centres identified within the settlement hierarchy. 3. Provide 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. 4. Demonstrate how the Planning Authority has had regard to the statutory Retail Planning Guidelines in setting out objectives for retail development. To demonstrate consistency with statutory requirements, and national and regional development objectives outlined in the NPF and RSES, the Core Strategy contains the following: ■ A written statement which outlines the strategic aims and rationale of the strategy including population targets; ■ Existing and future distribution of population within a defined settlement hierarchy; ■ A diagrammatic core strategy map which shows how it is envisioned the County will develop in line with the availability of infrastructure, services and amenities; ■ A Core Strategy Table with the emphasis being placed on the quantum and distribution of future population and housing development lands and quantification of the requirements for zoning of lands for residential purposes; 4.6 Core Strategy Strategic Aims The 9 no. Strategic aims of the Core Strategy are as follows: AIM 1 AIM 2 AIM 3 AIM 4 AIM 5 To provide a framework for the proper planning and sustainable development of County Longford over the plan period. To demonstrate that the Longford County Development Plan 2021-2027 is consistent, as far as practicable, with national and regional policy objectives set out in the National Planning Framework and Eastern and Midland Regional Spatial and Economic Strategy and other national guidelines and policies. To identify the appropriate quantum, location and phasing of development considered necessary to provide for future population growth over the plan period in accordance with National Planning Framework and Eastern and Midland Regional Spatial and Economic Strategy. To provide alignment and integration between strategic planning and settlement policy and the prioritisation of physical infrastructure investment. To secure future growth opportunities within County Longford through optimising the County’s economic, social and physical development.County Development Plan 2021–2027 79
- AIM 5 AIM 6 AIM 7 AIM 8 AIM 9 To secure future growth opportunities within County Longford through optimising the County’s economic, social and physical development. To coordinate the development of land identified in this Core Strategy in a manner that supports public transport and existing services and to prioritise sequential development of settlements, including the development of infill and brownfield lands. To provide a framework for determining the scale, phasing and location of new development having regard to existing services and planned infrastructural investment over the coming years. To provide a framework within which the provision of sustainable infrastructure, amenities, economic investment and development can take place to maximise the use of resources in the plan area. To maintain the strategic function, capacity and safety of the national roads network and to ensure that the existing extensive transport networks, which have been greatly enhanced over the last two decades, are maintained to a high level to ensure quality levels of service, safety, accessibility and connectivity to transport users. 4.7 Core Strategy Considerations 4.7.1 Economic Development Prior to the COVID-19 pandemic and subsequent economic downturn, the economic landscape in Longford had recovered significantly in the intervening years following the national economic recession and stagnation experienced between 2007 to 2014, albeit not to the same economic or labour market activity levels evidenced in the Celtic Tiger economic era. In Longford, the CSO has recorded that since 2011, the total number of ‘active enterprises’ has increased from 1,862 in 2011 to 2,022 in 2017. These figures indicate an improvement on enterprise formation levels from than experienced in 2008, prior to the full effects of the economic downturn, with 1,944 active enterprises recorded in Longford in that year. However, it is also notable that the number of employees corresponding to the amount of active business was higher in 2008 (6,820) compared to the number of employees recorded in 2017 (6,341). More recent figures for 2017 suggest that companies operating in the ‘business economy’ are the overwhelming major employers, with 6,341 employees. Manufacturing also plays a significant role, with its employee total reaching 1,621, making it the next largest. Longford’s labour force participation rate has seen a decline of 1.3% from 2011 to 2016. The labour force for Longford in 2016 comprised of 18,873 persons, an increase of 440 persons from that recorded in 2011, and a participation rate of 60.2%. Table 4.5 provides details on the principal economic status of persons over the age of 15 years, which accounts for retirees as well as potential labour force participants. Table 4.5: Principal Economic Status of Persons Aged 15 and Over in County Longford (Source: CSO, Census 2016) Principal Economic Status Persons Aged 15 and Over % At work 15,172 48.4% Looking for first regular job 374 1.2% Unemployed having lost or given up previous job 3,327 10.6% Student 3,062 9.8% Looking after home/ family 2,873 9.2% Retired 4,782 15.2% Unable to work due to permanent sickness or disability 1,657 5.3% Other 118 0.4% Total 31,365 100.0%Longford County Council 80
Source Longford County Council: Longford 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.