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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- 50 Tier 2016 2022 Targeted Projected Projected Population Population Share (%) of % Growth Population Population from 2022 by 2031 by 2031 to 2031 Tier 1 Principal / Key Town Monaghan 7,678 7,894 13.6 22.9 9,700 Tier 2 Strategic Towns Carrickmacross 5,032 5,745 9.9 22.8 7,053 Castleblayney 3,607 3,926 6.5 19.0 4,673 Tier 3 Service Towns Clones 1,680 1,885 3.2 19.8 2,259 Ballybay 1,241 1,329 2.2 18.7 1,578 Tier 4 Villages Large Village Network 3,672 4,833* 7.5 10.3 5,331 Tier 5 & 6 Rural Settlements Rural Community Settlements / Dispersed 38,476 39,676 57.2 3.1 40,922 Rural Communities and Remaining Rural Area TOTAL County Monaghan 61,386 65,288 100% 9.5 71,516 TABLE 2.2 POPULATION TARGETS 2031 These allocations to the County’s settlements are based on the following criteria: k Designation and role in the Settlement Strategy. k Outcome of the Infrastructure Assessment (IA) of existing zoned lands in the 2019-2015 County Development Plan. k Outcome of the Settlement Capacity Audit (SCA) of settlements proposed to be zoned. Under National Policy Objective 72a of the NPF a tiered approach to zoning is required based on the level of service that lands have. An Infrastructure Assessment (IA) was undertaken of the existing undeveloped zoned lands in towns which differentiated between currently zoned land that is serviceable (Tier 1) and currently zoned land that has the potential to be serviced within the lifetime of the Plan (Tier 2). The assessment considered the availability of service infrastructure (watermains, foul sewers, surface drainage systems) and transport infrastructure (roads, footpaths, public lighting and cycle lanes) that would allow the development of lands immediately. From a total of 165 sites subject of the IA, 147 sites were classified as Tier 1 (fully serviced lands) and 18 sites as Tier 2 (lands that have the potential to be serviced during the Plan period). Details of this can be found in Appendix 16. * Includes the villages of Annyalla, Clontibret North, Doohamlet & Oram which have been redesignated from Tier 5 to Tier 4 settlements Monaghan County Development Plan 2025 – 2031
- The Tier 1 sites were subject to further examination as part of the Settlement Capacity Audit (SCA). The SCA requires an infrastructural assessment of lands within and adjacent to settlements must include the following infrastructure categories: k Road access (including public lighting provision) k Footpath access (including public lighting provision) k Cycle access (including public lighting provision) k Foul sewerage drainage (including capacity and access to the network) k Water supply (including capacity and access to the network) k Surface water drainage (including capacity and access to the network) The SCA identified those lands zoned residential (and mixed-use zoned) lands with residential development, and included lands within the existing built-up area, serviced greenfield ‘Tier 1’ tranches of land and serviceable greenfield ‘Tier 2’ lands. The audit included data about each site such as site area, services status, assumed residential density, estimated residential unit yield, planning history, proximity to town centre, and contribution to compact growth. A Strategic Flood Risk Assessment (SFRA) has been undertaken alongside the preparation of the Plan to inform the zoning process of those areas that have an elevated risk of flooding. The findings of the SFRA and the Office of Public Works (OPW) Flood Risk Management Plans (FRMPS) have been integrated into the Plan, and the Strategic Environmental Assessment (SEA) to help ensure the implementation of the Flood Risk Guidelines at lower tiers of decision making, particularly in regard to zoning of land. The development of settlements within County Monaghan is impacted upon by the drumlin landscape/topography of the County, in terms of flood risk in low lying areas and the feasibility of developing steeply sloping and elevated lands, and thus this can affect the density of development that can be reasonably achieved. Details of this can be found in Appendix 21. The Core Strategy has identified the appropriate level of residential growth for each settlement based on the principles of the NPF and RSES and having regard to identified specific roles and functions of the settlements in the Settlement Hierarchy. 2.6 SETTLEMENT HIERARCHY Local, regional and national policy promotes development to locate in the population centres of existing towns and villages where the basic social and infrastructural services are available and where such services may be provided or expanded on if required. Monaghan County Council is committed to furthering the development of the County in a hierarchical manner. The aim of the settlement hierarchy is to recognise existing urban centres and their functions, to encourage enhanced commercial and employment opportunities, to provide an increased range of social and recreational facilities, and to protect the agricultural industry and the rural areas. The key aims of the Settlement Hierarchy are to: k Support the strengthening of the town and village network throughout the County, with priority being accorded to Monaghan Town to fulfil its designation as a Key Town in the RSES and its role as the Principal Town within the County, whilst targeting growth to supporting urban settlements and enabling the expansion of linkages within the region and nationally. k To maintain and support the functional roles of the towns by the promotion of appropriate development in these areas. k To create vibrant and thriving communities in the rural settlements by using the extensive village network to support rural communities through the provision of community services, convenience retail services, social functions and transport links. k To create attractive town and village environments with unique identities and an appropriate mix of uses to attract and retain population within the County. The settlement hierarchy for the County is set out in Table 2.3. The position of the settlement within the hierarchy provides an indication of the potential scale of population growth permissible over the Development Plan period. The settlements play a key role in the appropriate delivery of the population targets in order to achieve balanced development at a local level through strengthening the designated urban structures while ensuring that resources of rural areas are developed in a sustainable manner to meet the needs of its people. 51 Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- 52 HIERARCHY FUNCTION SETTLEMENT Tier 1 Principal / Key Town Monaghan Town Tier 2 Strategic Towns Carrickmacross Castleblayney Tier 3 Service Towns Clones Ballybay Tier 4 Villages Ballinode Emyvale Glaslough Inniskeen Newbliss Rockcorry Scotshouse Scotsown Smithborough Threemilehouse Annyalla Clontibret North Doohamlet Oram Tier 5 Rural Community Settlements Carrickroe Corcaghan Corduff Drum Knockatallon Knockconan Latton Lisdoonan Tydavnet Tier 6 Dispersed Rural Communities TABLE 2.3 SETTLEMENT HIERARCHY FOR COUNTY MONAGHAN Monaghan County Development Plan 2025 – 2031
- Monaghan Town is a Key Town that occupies a strategic border location along the Dublin to Letterkenny/Derry City corridor, and adjacent to the Dublin/Belfast eastern economic corridor. The Regional Spatial and Economic Strategy (RSES) for the Northern and Western Regional Assembly (NWRA) recognises its importance as an economic driver in the Central Border Region and has designated it a Key Town. It is crucial that it continues to expand seamless cross border links, aided by, for example the upgrade of the N2/A5. In the absence of substantial investment in critical infrastructure, Monaghan Town will not achieve its potential in terms of economic development and population growth. The designation of Monaghan Town as the Principal/Key Town in the Settlement Hierarchy is reflective of the vision to further the development of the County in a hierarchical manner. As the largest town, Monaghan provides a broad range of services across the sectors including employment, education, health, cultural services, community services and entertainment. The strengthening of Monaghan Town as a major centre of population in the regional and cross border context is important to ensure it provides benefits across the County and the region, in terms of attracting private sector investment in jobs and the economy, as well as securing investment in infrastructure that is critical to the County. The findings of the Monaghan Land Use and Transportation Study (MLUTS) will assist in underpinning the land use plan for the County town. 2.6.2 TIER 2 – STRATEGIC TOWNS The Strategic Towns are identified due to their existing population base and their infrastructural capacity to accommodate new residential and commercial development. Both towns are well serviced by educational and community facilities as well as public transport linkages in comparison to other areas of the County. The priority for these towns is to accommodate population growth and for them to play a critical role in driving growth and economic development in the County. Carrickmacross is a town that continues to thrive with strong population growth and has significant potential for further growth. It is a strategic growth centre given its proximity to the M1 motorway, Dundalk, the Greater Dublin Area and the Eastern Economic (Dublin – Belfast) Corridor, and thus has been designated in the RSES as a town with strategic potential on a regional scale. It also acts as a driver for the local economy to the south of the County with well-established economic, administrative and social functions. The town performs important retail, residential, service and amenity functions for local rural hinterlands and supports the Principal Town of Monaghan. Strong emphasis will be placed on the growth of the local economy in Carrickmacross and developing and enhancing its links with the adjacent Eastern and Midland Regional Assembly area, in particular Dundalk. Castleblayney serves a wide hinterland and provides important local level residential, retailing, social and leisure functions for the town and surrounding rural community. The town is a Strategic Town for the County that has significant potential for expansion and growth given its location. 53 2.6.1 TIER 1 – PRINCIPAL / KEY TOWN PRINCIPAL / KEY TOWN OBJECTIVE SHO 1 To facilitate the development of Monaghan Town in order to maintain its position as the Principal/Key Town in the County at the top of the settlement hierarchy and to ensure that its population and development growth takes place in an orderly and sustainable manner. STRATEGIC TOWNS OBJECTIVE SHO 2 To promote the Strategic Towns as population centres and as prosperous and thriving local development and service towns, where the principles of environmental, economic and social sustainability, including protection of the town’s heritage and natural and built environment are enshrined. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- 54 The N53 route between Castleblayney and Dundalk provides an essential link to a larger economic centre and gives direct access to the M1 motorway, the Eastern Economic (Dublin-Belfast) Corridor, and the Greater Dublin Area. Emphasis will be placed on maintaining and supporting urban development by way of consolidation of the town centre and expansion of services to meet the needs of the locality commensurate with its position in the hierarchy. It is important that this growth occurs in a manner that protects and enhances the towns natural heritage assets including the development of Lough Muckno for appropriate and sustainable recreational and tourism development. 2.6.3 TIER 3 – SERVICE TOWNS These Service Towns are designated as the third tier in the settlement hierarchy due to their function as service settlements for their urban population, but also for their rural hinterland populations. They have an important role in the provision of local retailing, service, social and leisure functions to the local population. Both towns suffered during the economic downturn by way of high vacancy and dereliction and although progress has been made in addressing this in Clones, significant work remains to be done in this regard. A specific focus for these settlements within this Plan is to promote the regeneration and renewal of the town centres to enable them to fulfil their full potential. Clones has a historic town centre and is an established service centre for an isolated rural area as well as a significant hinterland located within County Fermanagh. The town has previously experienced population decline over the last ten years, however the 2022 census has indicated a moderate increase in population, therefore priority will be placed on continuing to support its regeneration in a manner that respects its traditional character and built fabric. Within Clones town a number of local businesses, including the largest employer Allied Beef Products Ltd, provide essential local employment. The town has sufficient infrastructural capacity available to act as a local growth settlement for the needs of its hinterland, as well as serving and supporting the surrounding rural economy where numerous agri-food industries are located. Ballybay town is located in the centre of the County and is equidistant from the larger urban centres of County Monaghan. It is a market town with strong links to the agricultural sector and a large mart is the focus of activity within the town centre on a weekly basis. The Kepak plant is located within the town boundary and the employment centre of Lough Egish is only 11kms from Ballybay, both of which provide important economic spin off benefits and employment to the town and hinterland of Ballybay. The town has in the past experienced significant population decline and it is the priority of this Plan to assist and direct development in the town as well as assisting in the delivery of its tourism potential. 2.6.4 TIER 4 – VILLAGES Including the village network as part of the Settlement Hierarchy is an acknowledgement of their importance to the rural areas of County Monaghan in sustaining the vitality of rural communities. Each village has the necessary infrastructural capacity available to ensure they can continue their function as local growth settlements and serve the needs of their hinterlands. These villages provide services to rural communities, including housing, neighbourhood level retail and social facilities which are critical to the on-going viability of these rural communities. SERVICE TOWNS OBJECTIVE SHO 3 To promote and develop the Service Towns to create self-sufficient sustainable and vibrant communities and centres of population, which will act as local development and service centres for their respective hinterlands. VILLAGES OBJECTIVES SHO 4 To promote and facilitate development that is commensurate with the nature and extent of the existing villages and to support their role as local service centres and locations for housing. Monaghan County Development Plan 2025 – 2031
- 55 2.6.5 TIER 5 – RURAL COMMUNITY SETTLEMENTS Within the rural area there are several smaller cluster settlements that have existing congregation areas and services such as schools, shops, post offices, public houses and residential houses. The function of these settlements is recognised as a critical component of the social, community and cultural identity of the County. It is recognised that the strengthening of rural community settlements is essential to ensure the survival of their unique character. Residential development in these areas is only suitable at a small scale, reflective of the character of the existing settlement and will be promoted to alleviate the pressures for one-off housing in the open countryside RURAL COMMUNITY SETTLEMENTS OBJECTIVE SHO 6 To support and encourage the development of Tier 5 settlements as locations for housing and to ensure that local services are sustained in the rural community settlements. SHO 5 To prepare Tier 4 village plans during the lifetime of this plan, with a focus on housing, amenity, infrastructure, transport and the sustainable reuse and regeneration of existing derelict, vacant, or underutilised sites. At least one village plan will be prepared for a village in each of the three Municipal Districts per annum. 2.6.6 TIER 6 – DISPERSED RURAL COMMUNITIES Within the rural area there are dispersed rural communities which have small scale clustering around one or more focal point, which may include a crossroads, a shop, a community facility or a church. It is considered that there is scope for some additional dwellings at these locations which may consolidate existing focal points and utilise existing services in the area subject to normal planning considerations. It is anticipated that most of the development taking place at these locations will be individual dwellings. Where a multi-unit residential development (more than 2 houses) is proposed in Tier 6 settlements the onus will be on the developer to justify the demand for housing proposed. Any development shall be centred on the focal point of the settlement and shall be subject to the satisfactory provision of infrastructure and services. DISPERSED RURAL COMMUNITIES OBJECTIVE SHO 7 To support the viability of dispersed rural communities as locations for sustainable housing and to seek to encourage the growth of Tier 6 settlements generally in the form of single dwellings. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- 56 2.7 REGENERATION OF EXISTING LANDS It is considered appropriate to include for the reuse, regeneration and renewal of land through active land management over this Plan period, having regard to legislative requirements, and to national and regional policy. The NPF target of delivering 30% of new housing within the existing built-up footprint of settlements, on infill and brownfield lands and the principles contained within the Town Centre First Policy are key considerations in this regard. The regeneration of land (as defined by the Urban Regeneration and Housing Act 2015) and buildings in need of development and renewal throughout the County, is an objective of this Development Plan and Monaghan County Council will seek to develop and improve areas in need of development and renewal, particularly within designated settlements. Monaghan County Council has been proactive in regeneration initiatives in recent years, particularly in respect of delivering residential development within town centres such as the award winning Clones Renewal Scheme. There has been significant advancement of the Dublin Street South Regeneration Plan in Monaghan Town with consent having been recently obtained for the development of infrastructure on these lands. This scheme along with the Dublin Street North Regeneration Plan and the Roosky Lands Master Plan have potential to deliver housing within the urban core and thus contribute to compact growth and significant funding from the Urban Regeneration Development Fund has been secured in relation to progressing these schemes. The recent acquisition of the Saint Louis Convent lands within the town by Monaghan County Council also provides opportunity for regeneration and town centre development. In Carrickmacross, the Backlands Plans either side of the Main Street and the initiatives for Distillery Lane / Convent Lands will contain residential development, thus contributing to the delivery of compact growth in this town. In Castleblayney, the Town Centre Regeneration Plan and the Masterplan and Development Framework for Lough Muckno and Environs will also greatly assist in delivering compact growth. The Core Strategy Table provides for a significant proportion of future urban development to occur on lands within the built-up area of existing settlements. However, it should be noted that the delivery of the entirety of these schemes will likely fall outside the period of this development plan given the period of time involved in agreeing proposals, obtaining consents, assembling lands, providing enabling infrastructure before development is delivered. Notwithstanding this, these schemes are advancing and will contribute greatly to town centre regeneration and compact growth. In order to encourage brownfield/regeneration development within the urban centres, a relaxation of some development management standards will be considered where appropriate. 2.8 POPULATION PROJECTIONS The Planning and Development Act 2000 (as amended) requires that the population projections over the plan period are provided in respect of individual towns of a population of 1,500 or more and aggregate population projections for the remainder. In keeping with the Settlement Hierarchy and for purposes of monitoring and clarity, Table 2.4 also includes population projections in respect of the Tier 4 village network as well as the five towns. Monaghan County Development Plan 2025 – 2031
- 57 TABLE 2.4 COUNTY MONAGHAN POPULATION PROJECTIONS 2022 – 2031 HIERARCHY LOCATION 2022 PROJECTED PROJECTED POPULATION ADDITIONAL POPULATION POPULATION 2031 Tier 1 Principal / Key Town Monaghan Town 7,894 1,806 9,700 Tier 2 Strategic Town Carrickmacross 5,745 1,308 7,053 Strategic Town Castleblayney 3,926 747 4,673 Tier 3 Service Town Clones 1,885 374 2,259 Service Town Ballybay 1,329 249 1,578 Tier 4 Villages Ballinode 433 45 478 Emyvale 638 67 705 Glaslough 443 46 489 Inniskeen 405 42 447 Newbliss 352 37 389 Rockcorry 302 31 333 Scotshouse 317 33 350 Scotstown 436 45 481 Smithborough 495 51 546 Threemilehouse 148 16 164 Annyalla 205 22 227 Clontibret North 191 15 206 Doohamlet 287 30 317 Oram 181 18 199 Tier 5 & 6 Remaining Rural Area Rural Community 39,676 1,246 40,922 Settlements / Dispersed Rural Communities and Remaining Rural Area County Monaghan 65,288 6,228 71,516 2.9 HOUSING NEED AND DEMAND The Monaghan County Development Plan 2019-2025 zoned approximately 108 hectares (ha) for residential development. The areas zoned for residential development have not been substantially developed, and the majority of residential units which have been developed throughout the County have been one off dwellings. Given that most land zoned for housing has remained undeveloped, it is proposed to apply the following approach to promote growth in the designated settlements of County Monaghan: k Encourage the development of infill sites and/or brownfield/regeneration lands within designated urban centres through a range of measures including, where appropriate, reduced development management standards. k Adopt a proactive approach towards the refurbishment of derelict properties. k Encourage sequential development of lands from the settlement centre outwards. k Retain a large proportion of the zoning as allocated in the 2019-2025 CDP subject to its continued suitability for residential development. k Provide for lower density housing on zoned lands to expand the options for residential development and offer a wider choice of housing within the designated settlements as an alternative to rural one-off housing. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- The economy has recovered in recent years, and notwithstanding the increases in the cost of building materials and the cost of living, there are indications that house building activity will increase at a modest rate over the plan period. The average household size in County Monaghan was 3.13 persons in 1996. However, the average household size decreased to 2.83 in 2016. The household size has since fallen from 2.83 to 2.81 between 2016 and 2022. This represents a decrease of 0.32 persons over a 26- year period or a decline of 0.012 persons per annum over this timeframe. Having regard to historical trends in the County and available household composition from the 2022 Census, it is assumed that the trend of falling household size will continue over the plan period to 2.74 persons by 2031 which was the State average in 2022. 2.10 SUSTAINABLE RESIDENTIAL DENSITIES The policy document Sustainable Residential Development in Urban Areas (DEHLG, May 2009) set out guidance in relation to calculating suitable densities for smaller towns in previous county development plans. These Guidelines have been replaced by the Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (DHLGH, January 2024). The new Guidelines expand on higher-level policies of the National Planning Framework, setting policy and guidance in relation to the growth priorities for settlements, residential density, urban design and placemaking and introduce development standards for housing. The Guidelines state that in the preparation of a Core Strategy under Section 10 of the Act, the Planning Authority will need to account for net and gross areas when calculating land requirements. This requires an informed estimate of net developable area and the determination of an appropriate density range for each area. The general rule of thumb is that the net site area would be between approximately 65 to 80 percent of the gross area but this will depend on the area of land involved and local circumstances such as topography which may require area for cuttings, embankments and graduated roads. Appendix B of the Guidelines, Measuring Residential Density, sets out more detail in relation to net and gross site areas. It states that while the principle of calculating density is straightforward (a site area multiplied by a density assumption to produce an estimate of site capacity), the practical application is more complicated and is dependent in particular on the appropriate definitions of the site and development areas, as well as to a lesser extent, on employing the correct density measure. Selecting the appropriate definition of the site and the development area is important. In forecasting the capacity of lands for housing delivery where nonresidential uses, such as main roads, retail, employment and major open spaces are being planned in conjunction with housing, an allowance must be made in the density assumption for the land that will be occupied by such uses, which may be upwards of 25% when forecasting the capacity of a land area at the neighbourhood or district scale. At the site-specific level, if density controls are to produce the expected results, a density standard must be carefully related to the area accommodating the development. In estimating housing yield, it is necessary to determine the appropriate density range for the area or site. This should generally be within the ranges set out in Section 3.3 of the Guidelines but can be refined further in accordance with the guidance set out in Section 3.4. It may be necessary and appropriate in some exceptional circumstances to permit densities that are above or below these ranges, based on considerations relating to the proper planning and sustainable development of the area. Section 3.3 of the Guidelines state that for Key Towns (i.e. Monaghan) and Large Towns (i.e. Carrickmacross) residential densities in the range 40 to 100 dwellings per hectare (net) should generally be applied in the centres and urban neighbourhoods (edge of town centre), while residential densities in the range 30 to 50 dwellings per hectare (net) should generally be applied at suburban and urban extension (edge of town) locations. In relation to Medium Towns (i.e. Castleblayney) and Small Towns (i.e. Clones), the Guidelines do not set a specific range but the scale of new development in the central areas of small to medium sized towns should respond positively to the scale, form and character of existing development, and to the capacity of services and infrastructure (including public transport and water services infrastructure). Densities in the range 25 to 40 dwellings per hectare (net) should generally be applied at the edge of small to medium sized towns. In respect of Rural Towns (i.e. Ballybay) or Villages the Guidelines state that the density of development at such locations should respond in a positive way to the established context. 58 Monaghan County Development Plan 2025 – 2031
Source Monaghan County Council: Monaghan County Development Plan 2025–2031 (2025–2031) · 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.