Development plan · Monaghan County Council
Monaghan County Development Plan 2025–2031
The council's development plan written statement: its strategy, policies, objectives and development standards.
Monaghan County Council · 2025–2031 · 376 pages
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- The National Planning Framework (NPF) is a national high-level strategic plan for shaping the future growth and development of the Country up to 2040. It is a region focused strategy for managing growth and is linked to the National Development Plan (NDP) which is a ten-year investment plan. It is a framework which will guide public and private investment, create and promote opportunities whilst protecting and enhancing the environment. This Plan sets out the Government’s over-arching investment strategy and budget for the period 2021-2030 which will underpin the National Planning Framework and drive its implementation up to 2030. It is a plan that balances the significant demand for public investment across all sectors and regions of Ireland with a major focus on improving the delivery of infrastructure projects to ensure speed of delivery and value for money. This will guide national, regional and local planning and investment decisions to ensure appropriate regional development that will cater for increased population and ongoing employment development, while supporting the Government’s climate ambitions. A medium to long term framework for advancing sustainable development and the green economy in Ireland. It identifies spatial planning as a key challenge for sustainable development and sets a series of measures to address these challenges. The National Sustainable Mobility Policy sets out a strategic framework to 2030 for active travel (walking and cycling) and public transport journeys to help Ireland meet its climate obligations. It is accompanied by an action plan to 2025 which contains actions to improve and expand sustainable mobility options across the country by providing safe, green, accessible and efficient alternatives to car journeys. It also includes demand management and behavioural change measures to manage daily travel demand more efficiently and to reduce the journeys taken by private car. Published by the Department of Transport (DoT) in 2021, this policy document recognises the interdependence of transport and spatial planning and supports investment that will help realise compact growth and enhance connectivity. This framework specifies the national strategy for the application of adaptation measures in different sectors and by local authorities to reduce the vulnerability of Ireland to the negative effects of climate change and to avail of any positive effects that may occur. It sets out an extended suite of guiding principles that underscore the need for smarter, faster and transformative adaptation actions, which demand a pathway planning approach to account for a range of future warming and impact scenarios. It acts as a roadmap for governments, organisations, and communities to plan and implement adaptation strategies. The Framework helps coordinate efforts, allocate resources, and prioritise actions that reduce vulnerability and enhance resilience. A robust framework not only enables more effective responses to immediate climate related challenges but also fosters longterm sustainability by ensuring that adaptation measures are integrated into policymaking, infrastructure development, and local planning. 30 Monaghan County Development Plan 2025 – 2031 Our Sustainable Future: A Framework for Sustainable Development for Ireland 2012 National Planning Framework – Project Ireland 2040 (NPF) National Development Plan 2021-2030 (NDP) National Sustainable Mobility Policy National Investment Framework for Transport in Ireland (NIFTI) National Adaptation Framework: Planning for a Climate Resilient Ireland 2024 TABLE 1.1 NATIONAL POLICIES AND STRATEGIES
- 31 Environment, Energy and Climate Actionintroductionchapter 01 This is an update of national energy policy, and it sets out a framework to guide policy and the actions of Government up to 2030. This Plan sets out the roadmap to deliver on Ireland’s climate ambition and is updated annually. It aligns with the legally binding economy wide carbon budgets and sectoral ceilings that will enable Ireland to meet 2030 targets and be well placed to meet mid-century decarbonisation objectives. It provides a detailed plan for taking decisive action to achieve a 51% reduction in overall greenhouse gas emissions by 2030 and reach net-zero emissions by no later than 2050. The Plan lists the actions needed to deliver on Ireland’s climate targets and sets indicative ranges of emissions reductions for each sector of the economy. This Plan incorporates all planned policies and measures that were identified up to the end of 2019, and which collectively deliver a 30% reduction by 2030 in non-ETS greenhouse gas emissions (from 2005 levels). It aims to assist in the delivery of net-zero greenhouse gas emissions at EU level by 2050. It will be revised to include policies and measures to bring it in line with Ireland’s commitment to achieving a 7% annual average reduction in greenhouse gas emissions between 2021 and 2030. This Plan strives for a “Whole-of-Government, Whole-of Society” approach to the governance and conservation of biodiversity. The aim is to ensure an awareness of biodiversity and its importance, of the implications of its loss, and an understanding how to address the biodiversity emergency as part of a renewed national effort to act for nature. The NBAP takes account of the wide range of policies, strategies, conventions, laws and targets at the global, EU and national level that influence our shared environment in order to scale up biodiversity action. The National Broadband Plan (NBP) is the government’s initiative to deliver high speed broadband services to all premises in Ireland. This will be delivered through investment by commercial enterprises coupled with intervention by the State in those parts of the country where private companies have no plans to invest. This document considers at a national level the way that water services are delivered in Ireland. It sets out strategic objectives for the delivery of water services up to 2040. The RBMP sets out the status of waters in the River Basin Districts the proposed environmental objectives and the programme of measures to achieve those objectives by 2027. This was published by the Department of Transport, Tourism and Sport in 2015 and sets out clear targets for the development of Irish Tourism. It is framed within the context of the tourism sector welcoming 10 million visitors by 2025 with associated revenues of €5bn and sustaining 250,000 persons in employment. Ireland’s 4th National Biodiversity Action Plan 2023- 2030 (NBAP) The White Paper: Ireland’s Transition to a Low Carbon Energy Future 2015-2030 Climate Action Plan 2024 National Broadband Plan (NBP) Water Services Strategic Plan (WSSP); A Plan for the Future of Water Services 2015 National Energy and Climate Plan (NECP) 2021-2030 Draft Third Cycle Draft River Basin Management Plan 2022-2027 People, Place and Policy Growing Tourism to 2025
- 32 The vision of this policy is for a thriving rural Ireland which is integral to national economic, social, cultural and environmental wellbeing and development. It highlights the interdependence of urban and rural areas, and recognises the centrality of people, the importance of vibrant and lived in rural places, and the potential to create quality jobs and sustain the environment. Part of the Programme for Government – Our Shared Future, the document Housing for All - a New Housing Plan for Ireland is the government’s housing policy to 2030. The vision over the longer term is to achieve a steady supply of housing in the right locations with economic, social and environmental sustainability built into the system, through increased affordability, eradication of homelessness, increasing housing supply and social housing delivery, and addressing vacancy and underuse of existing stock. The document specifies 213 actions to be taken by government departments, local authorities, state agencies and others. TABLE 1.2 REGIONAL POLICIES AND STRATEGIES The RSES provides a high-level development framework for the Northern and Western Region that supports the implementation of the NPF and the relevant economic policies and objectives of Government. It provides a 12 year strategy to deliver the transformational change that is necessary to achieve the objectives and vision of the Regional Assembly. It sets out the key strategic assets, opportunities, and challenges for the Northern and Western Regional Assembly as well as setting out the policy responses to ensure that people’s needs for housing, jobs, ease of travel and overall well-being are met up to 2032 and beyond. This Plan seeks to influence sustainable consumption and prevent the generation of waste, improve the capture of materials to optimise circularity and enable compliance with policy and legislation. Sets out policy for future improvement and development of waste management as well as the means to implement and monitor progress. This Strategy aims to assist in the strategic development of nationally and regionally significant Greenways in appropriate locations constructed to an appropriate standard in order to deliver a quality experience for all Greenways users. It also aims to increase the number and geographical spread of Greenways of scale and quality around the country over the next 10 years with a consequent significant increase in the number of people using Greenways as a visitor experience and as a recreational amenity. TABLE 1.3 COUNTY MONAGHAN STRATEGIES Monaghan County Council’s Corporate Plan sets out the aims and principles that will inform and guide the activities of the Council. The core values of the Council are: k To provide strong governance, be open to scrutiny and transparent in our dealings with stakeholders. k To provide a public service that has a strong customer and citizen focus. k To be professional, competent and progressive in the design and delivery of our services. k To provide clear direction in economic, social and community development. Our Rural Future: Rural Development Policy 2021-2025 Housing for All- A new Housing Plan for Ireland 2021 Regional Spatial and Economic Strategy 2020-2032 (RSES) National Waste Management Plan for a Circular Economy (2024-2030) Strategy for the Future Development of National and Regional Greenways (July 2018) Monaghan County Development Plan 2025 – 2031 Monaghan County Council Corporate Plan 2020-2024
- 33 The LECP sets out the objectives and actions needed to promote and support the economic development as well as the local and community development of the County both by the Council and in partnership with other economic and community development stakeholders. The LECP covers both community and economic elements in an integrated and combined way that reflects the cross-cutting nature of elements across the goals, objectives, outcomes, and actions. The aim of the Monaghan LECP 2023-2029 is, “to develop and promote social and economic opportunities for all people living in and visiting County Monaghan”. This Plan provides a framework for conserving biodiversity and natural heritage at a local level. It includes actions which serve to raise awareness of and enhance the protection, conservation and management of our natural heritage. The plan has an ambitious vision that the role heritage and biodiversity play in relation to climate change mitigation and adaptation, sustainable communities, functioning ecosystems, and health and well-being will be accepted in the County and embedded in the activities of Monaghan County Council. The mission or purpose of the strategic plan is to protect, conserve and advocate for biodiversity, tangible and intangible heritage, contributing to sustainable development and climate change mitigation and adaptation. This Strategy identifies a series of actions which are designed to enhance tourism in the County. It sets out a clearly articulated, refreshed vision for driving sustainable, innovative, resilient and inclusive tourism sector growth in Monaghan and advocates the coordinated delivery of tourism products, services and experiences to realise the ambition of the strategy. This document is a high-level, strategic look at how Monaghan County Council proposes to develop walking and cycling infrastructure, and to promote walking and cycling as activities which support the economic, cultural, and social wellbeing of the people of County Monaghan. The Strategy looks at walking and cycling both as recreational activities and at the crucial role that they play in helping to address Climate Change through the promotion of Active Travel. The aim of this Strategy is to promote a vibrant retail sector and to protect the viability and vitality of existing town centres. The Climate Action Plan 2024 - 2029 seeks to ensure that it: k Supports the implementation of international and national objectives on climate change, and k Works closely with the Northern and Western Regional Assembly (NWRA), Climate Action Regional Office (CARO) and other stakeholders to promote climate action policies and objectives, and k Promotes spatial planning policies that are consistent with climate mitigation and adaption. This Study is a short to medium term plan that sets out a transport and land use strategy for Monaghan town. Monaghan Local Economic and Community Plan 2023-2029 Monaghan Biodiversity and Heritage Strategic Plan 2020-2025 County Monaghan Tourism Strategy 2023-2028 County Monaghan Walking and Cycling Strategy 2021-2026 Monaghan Retail Strategy 2016-2022 Monaghan Local Authority Climate Action Plan (LACAP) 2024 - 2029 Monaghan Land Use and Transportation Study 2017 Environment, Energy and Climate Actionintroductionchapter 01
- 34 Monaghan County Development Plan 2025 – 2031 k Architectural Heritage Protection – Guidelines for Planning Authorities (DAHG, 2011) k Appropriate Assessment of Plans and Projects in Ireland – Guidance for Planning Authorities (DEHLG, 2009) k Childcare Facility Guidelines for Planning Authorities (DELG, 2001) k Development Contribution Scheme Guidelines for Planning Authorities (DECLG, 2013) k Development Management Guidelines for Planning Authorities (DEHLG, 2007) k Development Plan Guidelines for Planning Authorities (DHLGH, 2022) k Core Strategy Guidelines (DEHLG, 2010) k Spatial Planning and National Roads, Guidelines for Planning Authorities (DECLG, 2012) k Landscape and Landscape Assessment-draft (DELG, 2000) k The Planning System and Flood Risk Management Guidelines for Planning Authorities (DEHLG, 2009) k Provision of Schools and the Planning System (DEHLG, 2008) k Quarries and Ancillary Activities - Guidelines for Planning Authorities (DEHLG, 2004) k Retail Planning Guidelines, Guidelines for Planning Authorities and Retail Design Manual (DECLG, 2012) k Strategic Environmental Assessment: Guidelines for Regional Assemblies and Planning Authorities (DHLGH, 2022) k Sustainable Rural Housing Guidelines (DEHLG, 2005) k Sustainable Residential Development in Urban Areas and Urban Design Manual Best Practice Guide (DEHLG, 2009) k Urban Design Manual, A Best Practice Guide (DEHLG, 2009) k Sustainable Urban Housing – Design Standards for New Apartments (DHPLG, 2015) k Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (DHLGH, January 2024) k Telecommunications Antennae and Support Structures Guidelines (DELG, 1996) k Tree Preservation Guidelines (DELG, 1994) k Wind Energy Development Guidelines 2006 and Interim Guidelines for Planning Authorities on Statutory Plans, Renewable Energy and Climate Change, (DHPLG, 2017) k Best Practice Guidance on Transboundary Consultation and Land Use Plans (DOENI Planning Service, 2010) k Domestic Wastewater Treatment Systems (Population Equivalent ≤10) (EPA, 2021) k Taking in Charge Procedures for Private Housing Developments (MCC, 2010) and any new or updated/subsequent versions(s) that may be published over the plan period. Monaghan County Development Plan 2025 – 2031 There are also a number of Guidelines for Planning Authorities issued by Government Departments under Section 28 of the Planning and Development Act 2000 (as amended). Planning Authorities are required to have regard to any guidelines issued and accordingly this Plan has considered the following guidelines:
- Environment, Energy and Climate ActionEnvironment, Energy and Climate Actionintroductionchapter 01 1.13 STRATEGIC ENVIRONMENTAL ASSESSMENT (SEA) Strategic Environmental Assessment (SEA) is an environmental assessment of plans and is a statutory requirement of the EU SEA Directive (2001/42/EC) and the Planning and Development (Strategic Environmental Assessment) Regulations 2004 as amended by the Planning and Development (Strategic Environmental Assessment) (Amendment) Regulations 2011. It is a process of systematically evaluating and predicting the likely environmental effects of implementing the Plan and it ensures that these effects are appropriately addressed at the earliest stage of decision making. The formal process of carrying out a SEA is an integral part of the preparation of this County Development Plan. The issues considered by the SEA are: k Biodiversity and flora and fauna, k Population and human health, k Soil (especially on greenfield lands), k Water (including flood risk and the status of rivers, lakes, and groundwater), k Air and climatic factors (including sustainable mobility and associated effects - energy usage and emissions to air including noise and greenhouse gases), k Material assets (including provision of adequate and appropriate wastewater and drinking water services and waste management), k Cultural heritage (architectural and archaeological heritage), and k Landscape/Geology. The SEA Environmental Report which accompanies this Plan provides an understanding of the likely environmental consequences of decisions regarding development in County Monaghan. It has guided the preparation of policies and development alternatives for this Plan. A comprehensive suite of environmental mitigation has been developed for the County Development Plan which is presented in Section 8 of the accompanying Strategic Environmental Assessment (SEA). Monaghan County Council commits to implementing these mitigation measures during the lifetime of the Plan. A SEA statement has also been prepared, and this summarises how environmental considerations have been integrated into the Plan, how consultations were taken into account and the reasoning behind the decisions made in light of other reasonable alternatives. 1.14 APPROPRIATE ASSESSMENT (AA) The EU Habitats Directive (92/43/EEC) requires the Appropriate Assessment (AA) of plans and projects to determine whether the Plan could have significant effects on Natura 2000 sites. This process involves an assessment of the indirect and cumulative impacts of the plan, considered with any current or proposed activities, developments or policies impacting on Natura 2000 sites. This process informs plans of the environmental impacts of alternative actions and contributes to the integration of environmental considerations into plan making. The formal process of Appropriate Assessment has been carried out as part of the preparation of this Plan. Stage 1 involved screening for AA where it was concluded that the Plan could, in the absence of mitigation, result in adverse impacts on the Natura 2000 network. A Stage 2 Appropriate Assessment (Natura Impact Report) was carried out. Any risks to the conservation objectives of the Natura 2000 network have been addressed by the inclusion of mitigation measures that will prioritise the avoidance of impacts in the first place and mitigate impacts where these cannot be avoided. With mitigation measures incorporated, it is considered that the Plan will not have a significant adverse effect on the integrity of the Natura 2000 network. The Natura Impact Report is included in Appendix 23 of the Plan and should be read in parallel with this Plan. 1.15 STRATEGIC FLOOD RISK ASSESSMENT (SFRA) Following the implementation of the Floods Directive (2007/60/EC) into Irish legislation, the Planning System and Flood Risk Management Guidelines for Planning Authorities (DEHLG/OPW, 2009) indicate that County Development Plans must establish the flood risk assessment requirements for their function area. Planning authorities must ensure that development is not permitted, and land is not zoned in areas of high flood risk, particularly floodplains, except where there is no suitable alternative. The SFRA which accompanies the Development Plan focuses on land use zoning and flood risk management policy. It is based on the best available emerging information on flood risk indicators, as well as climate change consideration. Flood risk areas have been annotated in green onto the towns and villages maps which accompany this Development Plan. These green lines are for indicative purposes and should always be read in conjunction with the SFRA for this Development Plan 2025-2031. The SFRA is included in Appendix 19. Environment, Energy and Climate ActionEnvironment, Energy and Climate Actionintroductionchapter 01 35
- 1.16 COUNTY PROFILE Monaghan is a relatively small county of approximately 1295km2. It is bounded by Counties Cavan, Meath, Louth, Armagh, Tyrone and Fermanagh. It is strategically located on the Donegal/Derry – Dublin corridor, adjacent to the M1 corridor and has strong links to Northern Ireland. The County is a rural one with a quality drumlin landscape interspersed with wetlands and woodlands. Despite its peripheral border location, County Monaghan has a long and proud tradition in the development of unique indigenous industry and as a hub for innovation in business and agriculture nationally. County Monaghan has a range of unique towns and villages, renowned angling destinations and impressive architectural heritage, coupled with a vibrant population. The roads infrastructure of County Monaghan which includes the N2 national route traversing the middle of the County provides for strong connections to the surrounding counties and the two principal cities of Dublin and Belfast. The settlements within County Monaghan historically evolved along the Great Northern Railway route and the main transport routes. The focus of economic activity for the County exists within the five towns of Monaghan, Carrickmacross, Castleblayney, Clones and Ballybay. 1.17 POPULATION AND DEMOGRAPHY Census 2022 results show that County Monaghan’s population has grown more significantly since the Census taken in 2016, increasing by 3,902 persons to 65,288 persons. This represents an increase of 6.4% over the intercensal period, an average annual increase of 1.06% compared to a state average of 1.3%. These figures follow continuous population growth rates for Monaghan since the 1996 Census. Given the change in economic trends nationally over the last ten years, the population growth within County Monaghan is considered reasonable. However, within the border counties Monaghan’s population growth is relatively low compared to other counties over the last ten years. Table 1.4 and Figure 1.3 indicate that all five of the main settlements of County Monaghan experienced growth between 2016 and 2022. Having regard to national economic conditions which impacted on population change over the 2016-2022 periods, trends considered over a longer-term period demonstrate more measured and sustainable growth patterns. Taking a longer-term view of County Monaghan over the period 1996-2022 (26 years), the population of the County has increased by almost 13,975 persons demonstrating positive growth patterns, notwithstanding cycles of economic and population decline within this period. Census figures indicate that there is a natural population increase and an increase in migration figures, and this is a trend which is likely to continue with anticipated continued economic growth. 1.18 COUNTY MONAGHAN - POPULATION CHANGE Census 2022 results show that significant growth has occurred in the rural area, particularly to the north of Monaghan town and the rural area surrounding Carrickmacross in the south of the County. Monaghan remains a predominantly rural county, with only 37.9% of the County’s population living within an urban area. The population is quite evenly spread throughout the Municipal Districts (MDs) with Carrickmacross- Castleblayney MD having a slightly larger population than Monaghan MD, and Ballybay-Clones MD having the smallest population. Figure 1.3 and Table 1.4 indicate that most designated settlements within County Monaghan have experienced varying levels of population growth between 2006 and 2022. This included a 31% and a 25.7% increase in the population of Carrickmacross and Castleblayney respectively. Over this same period Monaghan Town population increased by 17.5%. 36 Monaghan County Development Plan 2025 – 2031
- 37 Environment, Energy and Climate ActionEnvironment, Energy and Climate Actionintroductionchapter 01 FIGURE 1.3 POPULATION DENSITY AND AREA SIZE BY ELECTORAL DIVISION – 2022 CENSUS Source: Central Statistics Office, Ireland TABLE 1.4 POPULATION CHANGE IN TOWNS AND VILLAGES 2006 – 2022 Town 2006 2011 2016 2022 Monaghan 6720 7325 7678 7894 Carrickmacross 4387 4894 5032 5745 Castleblayney 3124 3634 3607 3926 Clones 1767 1761 1680 1885 Ballybay 1217 1461 1241 1329 Ballinode 400 473 470 433 Emyvale 683 696 701 638 Glaslough 290 348 453 443 Inniskeen 292 265 273 405 Newbliss 317 331 327 352 Rockcorry 292 310 316 302 Scotshouse - - 220 317 Scotstown 250 370 361 436 Smithborough 309 363 395 495 Threemilehouse 167 159 156 148 Remaining Area 20,215 22,390 22,910 24,748 Total population 55,816 60,495 61,386 65,288
- Despite having a falling population over recent census periods, Clones town has experienced a 12.2% increase in population between 2016 and 2022, whilst Ballybay recorded a 7.1% increase in population for the same period. It is evident from the demographic analysis that the designated settlements function as key local service centres for their surrounding rural catchments, within which a substantial proportion of the County’s population reside. A more pronounced population increase took place in the villages of Glaslough, Inniskeen, Scotstown and Smithborough where growths of 52.8%, 38.7%, 74.4%, and 60.2% were recorded respectively. However, it should be noted that the populations of Ballinode, Emyvale, Glaslough, Rockcorry and Threemilehouse have fallen between 2016 and 2022. 1.19 CROSS BORDER CONTEXT A number of County Monaghan’s settlements are located in close proximity to the Northern Ireland border and the high level of cross border social and economic interactions that occur between County Monaghan and those counties in Northern Ireland is difficult to quantify. This level of interdependency is recognised in the National Planning Framework (NPF) and the Regional Spatial Economic Strategy for the Northern and Western Regional Assembly area. Monaghan County Council is a member of both the Irish Central Border Area Network (along with Armagh City, Banbridge and Craigavon Borough Council; Fermanagh and Omagh District Council; Mid Ulster District Council and the county councils of Cavan, Donegal, Leitrim, and Sligo), and the East Border Region (along with the councils of Armagh City, Banbridge and Craigavon Borough Council; Newry, Mourne and Down District Council; Ards and North Down Borough Council; and the county councils of Louth and Meath). Through its membership of both of these cross-border groups, Monaghan County Council participates in promoting cross-border co-operation and communication at a Local Government level on common regional development concerns and also draws down EU funding which contributes to the economic development, social and cultural development of our region. Figures 1.4 and 1.5 shows the spatial extent of commuting flows across the border and can be used as an evidence-based indicator of the influence of the border region in terms of daily economic activity. These are existing functional relationships between urban centres in two jurisdictions that require a specific policy framework to support co-ordinated growth in the border region. Through the Core Strategy it is important to identify the key strategic towns within County Monaghan that due to their proximity to the border have potential for land use opportunities. 38 Monaghan County Development Plan 2025 – 2031 FIGURE 1.4 ROI CAR TRIPS CROSSING THE BORDER TO NORTHERN IRELAND Source: NPF Issues and Choices Paper, February 2017
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