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
Ask this document
Answers come only from the text of Monaghan County Development Plan 2025–2031, each claim linked to its page. They are not advice; check the page itself.
Free, with a daily limit.
- Density assumptions are an essential component in estimating land requirements arising from population projections. However, as accepted by the Guidelines, the practical application of multiplying a site area by a density assumption to produce an estimate of site capacity is more complicated in reality, particularly in drumlin counties like Monaghan. Issues of topography play a significant role in determining the acceptability of a proposal for residential development. Consequently, a lower density may be appropriate, whereas in certain instances (such as courtyard development/infill sites in centres) a higher density is more suitable. Therefore, a pragmatic approach is recommended whereby the Planning Authority may determine the appropriate density in any location by considering the following: k Local pattern of development and densities of adjoining residential developments. k Existing landscape and other features on the site. k Design quality, whereby higher densities can be accepted where it exhibits high quality design. k Levels of privacy and amenity. k Proximity to main transport routes. k The capacity of the infrastructure to serve the demands of the proposed development. k The availability of serviced sites in urban areas. 59 FIGURE 2.4 DETERMINING DENSITY Illustration of the process for establishing, optimising and refining appropriate density for a plan or development. Source: Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (DHLGH, January 2024), Page 49. Under the Monaghan County Development Plan 2019-2025 an average housing density of 18 units per hectare was applied in calculating the housing land requirement. This average density encompassed Proposed Residential B lands, the purpose of which was to offer land for low density housing and serviced sites. It is considered that a portion of zoned lands should still be made available for low density housing and serviced sites in order to provide an alternative to one-off rural houses, particularly in the Rural Areas Under Strong Urban Influence around the towns, and to cater for a cohort of the population who wish to complete a self-build home, as is common in rural counties such as Monaghan. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- To ensure that urban settlements which are peripheral to the larger cities thrive, their development must strike a balance in meeting the needs of modern life in a way that is sensitive and responsive to the landscape in which it is located. In Monaghan Town for example, which had a population of 7,894 in 2022, it is considered difficult to require high densities at site specific level as the density standard should be relative to the area accommodating the development. Furthermore, topographical issues further restrict the density of development that can be achieved. Details of this can be found in Appendix 21. For the purposes of ascertaining a suitable housing land requirement for County Monaghan and having regard to the range of densities set out in the Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (2024), it is considered appropriate to apply a density of 30 units per hectare within the larger settlements (Key and Large towns), 25 units per hectare in the medium settlements (Medium and Small towns), and 20 units per hectare in the smaller settlements (Rural town and Villages). It is considered that this is both practical and realistic for the urban settlements of County Monaghan where most of the sites suitable for new residential development have, in the main, extensive topographical challenges. The Core Strategy provides for the development of lower density houses within the urban settlements. This will be permitted through schemes that provide suitable housing to meet the needs of people who might otherwise seek to build a one-off dwelling in the rural area. Such schemes will only be permitted on suitable lands located within the designated settlement boundaries where it is demonstrated that there is a demand for the development within the settlement and where it contributes to the sequential development of land from the centre of the settlement outwards or represents a consolidation of the settlement footprint. As Figure 3.1 of the Sustainable Residential Development and Compact Settlements Guidelines for Planning Authorities (2024) indicates that detached /semi-detached housing will be in the density range of 15-30 dwellings per hectare, a lower density assumption of 15 units per hectare (unless where site specific circumstances can justify otherwise), is being proposed for the option of developing low density developments and/or serviced sites in suitable locations within the designated settlements. As the target densities in the revised Core Strategy Table 2.5 are based on average density across Proposed Residential A and Proposed Residential B zonings this does not affect the quantum of lands to be zoned. 60 Settlement Population and Housing Land Zoning Required Settlement Type Settlement Name Census 2022 Populatio n Censu s 2022 (%) Population Target 2025-2031 Housing Target (units) Housing Target % Existing Zoning (ha) Zoned Land Required (with additional surplus) (ha) Target Residential Density (UPH) Minimum 30% Infill Lands (ha) Remaining 70% lands (non-infill) (ha) Shortfall/ Excess of Zoned Land County 65288 100.0 4152 2558 100.0 107.80 82.71 - 66.11 14.97 25.09 Key Town (Tier 1) Monaghan 7894 12.1 1204 742 29.0 44.10 30.91 30 28.59 1.85 13.19 Self Sustaining Growth Towns (Tier 2) Carrickmacross 5745 8.8 872 537 21.0 25.90 22.38 30 12.05 9.92 3.52 Castleblayney 3926 6.0 498 307 12.0 16.00 15.35 25 14.54 0.47 0.65 Self Sustaining Towns (Tier 3) Clones 1885 2.9 249 153 6.0 11.40 7.67 25 6.33 1.01 3.73 Ballybay 1329 2.0 166 102 4.0 10.40 6.40 20 4.60 1.72 4.01 Villages (Tier 4) * 4833 7.4 332 205 8.0 - - - - - - Rural Areas (including Tier 5 & Tier 6 Villages) 39676 60.8 830 512 20.0 - - - - - - TABLE 2.5 CORE STRATEGY TABLE * Includes the villages of Annyalla, Clontibret North, Doohamlet & Oram which have been redesignated from Tier 5 to Tier 4 settlements. ** It should be noted that there are infrastructure constraints at Clontibret North. Monaghan County Development Plan 2025 – 2031
- 61 Monaghan County Development Plan 2025 – 2031 core strategychapter 02 CSO 1 To maintain Monaghan Town’s position as the Principal/Key Town of County Monaghan and to endeavour to ensure that it reaches its population target and fulfils its role as the designated County town. CSO 2 To promote urban growth and the further development of the strategic towns to ensure their functions are supported by appropriate development that will direct development within the locality. CSO 3 To facilitate the growth of the service towns as settlements that can provide associated community facilities, services and employment opportunities for the urban area and the surrounding hinterland. CSO 4 To consolidate the settlements, retain their visual identity distinct from the surrounding countryside, and to reserve land for future planned expansion of settlements. This includes the provision of major infrastructure, as well as protecting the heritage, water quality and recreational amenity of the settlements and their surrounding rural hinterlands. CSO 5 To ensure that the quantum of lands zoned for residential uses in the County is consistent with the requirements of the Core Strategy as set out in Table 2.5 of the Monaghan County Development Plan 2025-2031, and to designate any land considered appropriate for zoning in excess of these requirements as Strategic Residential Reserve for potential development beyond this plan period. CSO 6 To promote sustainable compact development forms, including infill sites, redevelopment of brownfield sites and comprehensive backland development where appropriate, ensuring the efficient use of available public infrastructure and services. CORE STRATEGY OBJECTIVES CSP 1 To preserve the character of Tier 5 and Tier 6 rural settlements by restricting the scale of development permitted within them, having regard to infrastructure availability and capacity, and to ensure integration with the rural character of the area and the satisfactory provision of infrastructure services. CSP 3 To facilitate the development of low-density residential developments on designated zoned lands within existing settlements to assist in providing choice of house type within a structured but low-density environment, as an alternative to the development of one-off housing in the open countryside. CSP 2 Proposals for residential development in the designated settlements will be determined in accordance with the provisions of the Core Strategy with regard to population growth, the ability of the proposal to enhance the character of the settlement, the demand for the proposed quantum and type of residential development within the settlement and compliance with relevant development management standards as set out in Chapter 15 of this Development Plan. CORE STRATEGY POLICIES
- 2.11 HOUSING IN RURAL SETTLEMENTS This Plan aims to maintain and support the rural population of County Monaghan. Urban areas refer to towns and villages which have a settlement boundary (Tier 1-4 settlements), whereas lands located outside of the designated Tier 1-4 settlements set out in the Core Strategy are termed as ‘rural’ for the purposes of the Plan. The Core Strategy of this Plan identifies a number of established settlements within Tier 5 and 6 of the settlement hierarchy for County Monaghan. These include Rural Community Settlements and dispersed cluster settlements that have existing congregation areas and services such as schools, shops, post offices, public houses and residential houses. It is recognised that these settlements have a role to assist in satisfying rural housing need within a structured low-density environment and provide a more sustainable pattern of development to the scattered one-off housing. There are limited local facilities and infrastructure within these settlements. Many of these settlements are not capable of being economically serviced with sewerage and public mains but they can provide for small scale residential development serviced by individual wastewater treatment systems. In addition, they have the potential to offer individuals the opportunity to design and build their own home in a rural area subject to normal planning criteria and the development of one-off type housing within these smaller settlements should be encouraged. Although Tier 5 and 6 settlements do not have settlement boundaries, it should be borne in mind that these settlements can offer an alternative to one off housing in the rural area in a sustainable manner which can help support and maintain existing local facilities, and thus the development of residential dwellings within these small settlements should not be considered as adding to rural one off dwellings and should be encouraged. The low-density residential development policy is set out in Chapter 15 Development Management Standards, and this is also open to consideration in those Tier 5 and 6 settlements which have public foul drainage and disposal systems. Otherwise, permitted development within these settlements will be on the basis of individual wastewater treatment systems. This is considered necessary to protect the environment and preserve a degree of consistency in design and scale. Applications for residential development within the Tier 5 and 6 settlements will be considered where the following has been demonstrated: k The developer has provided evidence to the satisfaction of the planning authority that there is a demand for the proposed residential development taking account of the extent, nature and status of extant permissions for residential development, unfinished housing developments and vacant residential properties in the settlement. k The proposal contributes to the sequential development of the settlement from the centre outwards and/or represents an infilling* of the existing settlement footprint. * Infilling constitutes the development of a small gap within a substantially built-up frontage or where the development of a gap within existing development would represent the sustainable development of the settlement. 62 HOUSING IN RURAL SETTLEMENTS OBJECTIVE RSO 1 To support a balanced approach to the development of rural areas to retain vibrancy, to accommodate within the rural area people who are functionally or socially part of the rural community, and to direct urban generated housing demand into established rural settlements. Monaghan County Development Plan 2025 – 2031
- RURAL SETTLEMENT POLICIES 63 RSP 1 To permit small scale residential development reflective of the character of the existing settlement in accordance with the relevant criteria set out Section 2.11 in Chapter 2 of the Monaghan County Development Plan 2025-2031. RSP 2 To require applications for development within the rural settlements to submit an assessment of the development site relative to the location, visual impact and other normal planning considerations including the ability to consolidate the settlement, enhance the existing character and strengthen a sense of identity and distinctiveness for the settlement. RSP 3 To only permit residential development and local level services such as small convenience shops, schools, post offices which are appropriate in scale and nature to these settlements. RSP 4 To consider applications for serviced sites in accordance with Policy RDP 5 as outlined in Development Management Chapter in those Tier 5 and 6 settlements which have capacity within existing public foul drainage systems. In all other instances, the application site must be 0.2ha and be served by an individual wastewater treatment system which can be installed in accordance with EPA Code of Practice. RSP 5 Identified rural settlements within the rural areas under strong urban influence shall not be required to demonstrate a rural generated housing need. 2.12 RURAL SETTLEMENT STRATEGY An analysis of planning permission data from 2012 to 2022 was carried out as part of the Housing Need and Demand Assessment for County Monaghan to determine the need for single rural housing in the County. The data sets out the typical quantum per annum of one-off houses being permitted in the County and the proportion of overall residential permissions they comprise. One-off houses have historically made up the greatest part of granted planning permission in the County, constituting 67.3% of all units between 2012 and 2022. This rate reflects the County’s rural character but makes up a higher proportion of overall planning permissions than is apparent for the Border region (63.3%), and a considerably higher proportion than is apparent at the State level (27.7%). Though the average annual number of units granted permission increased between 2018 and 2022, the proportion of one-off houses has decreased, with the 5-year average decreasing from 83.4% to 60.2%. It should be noted however that these figures include both urban and rural one-off housing and can be assumed to represent the upper limit of rural one-off housing figures per annum, even in a predominantly rural county such as County Monaghan. National Policy Objective 20 of the NPF requires Local Authorities to ‘Project the need for single housing in the countryside through the local authority’s overall Housing Need Demand Assessment (HNDA) tool and county development plan core strategy processes.’ It should be noted however that in its current implementation, the HNDA Toolkit does not permit this function to be carried out. This is anticipated as a future feature of the Toolkit. Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- 64 The Sustainable Rural Housing Guidelines were issued in April 2005, under Section 28 of the Planning and Development Act 2000 (as amended), (and subsequent Circular PL 2/2017) and prescribe criteria for consideration of planning applications for houses in rural areas. These guidelines essentially provide that: k People who are part of the rural community should be facilitated by the planning system in all rural areas, including those under strong urban pressures. k Those wishing to build a dwelling in the rural area suffering persistent and substantial population decline will be accommodated. k The development of rural environs of the major urban areas needs to be carefully managed in order to sustain and protect their orderly development and success in functioning into the future. The National Planning Framework (NPF) is supportive of the overall pattern of rural and small town development in Ireland. National Policy Objective (NPO) 15 of the NPF seeks to protect areas that are under strong urban influence from unsustainable over-development, while encouraging population to be sustained in more structurally weak areas, that have experienced low growth or decline in recent decades, to sustain vibrant rural communities. In providing for the development of rural housing, NPO 19 requires that a distinction is made between areas under urban influence, i.e. within the commuter catchment of cities and large towns and centres of employment, and elsewhere. In Rural Areas Under Urban Influence, NPO 19 facilitates the provision of single housing in the countryside based on the core consideration of demonstrable economic or social need to live in a rural area, and siting and design criteria for rural housing in statutory guidelines and plans, having regard to the viability of smaller towns and rural settlements. In rural areas elsewhere, NPO 19 facilitates the provision of single housing in the countryside based on siting and design criteria for rural housing in statutory guidelines and plans, having regard to the viability of smaller towns and rural settlements. Furthermore, NPO 20 seeks to “project the need for single housing in the countryside through the local authority’s overall Housing Need Demand Assessment (HNDA) tool and county development plan core strategy processes.” The RSES reflects the NPF in relation to rural housing and Regional Policy Objective RPO 3.3 seeks to “deliver at least 20% of all new housing in rural areas on brownfield sites.” It considered that all opportunities to achieve this target should be considered, particularly the encouragement of the renovation of vacant or derelict dwellings, the provision of on-site replacement dwellings, the redevelopment of previously developed residential sites and former homesteads, and the redevelopment of sites containing industrial or agricultural buildings. Proposals under the Croí Cónaithe vacant property refurbishment grant will also assist in meeting this target. RURAL HOUSING OBJECTIVE RSO 2 To seek to deliver at least 20% of all new housing in rural areas on brownfield sites through the encouragement of the renovation of vacant or derelict dwellings, the provision of on-site replacement dwellings, the redevelopment of previously developed residential sites and former homesteads, and the redevelopment of sites containing industrial or agricultural buildings. An analysis of the 2022 Census shows varying geographical trends throughout County Monaghan. The population of the north of the County and the south- west of the County continues to grow at a faster rate than the mid-Monaghan area except in those townlands along the N2 national route. Areas close to Carrickmacross and Castleblayney have experienced a significant population increase whereas the rural areas surrounding Monaghan Town experienced limited population increase. Figure 2.5 provides a spatial mapping of the number of houses within each District Electoral Division (DED) in County Monaghan. Predictably, the urban areas of the five large towns contain the highest number of units but it is also apparent that a number of DEDs within the wider rural area, particularly those along the N2 national route have a significant number of dwellings within them. However, it is apparent from the population analysis that there is no distinct growth pattern within County Monaghan and that large parts Monaghan County Development Plan 2025 – 2031
- of the rural area have experienced modest growth over the last ten years, particularly those areas in close proximity to the towns. It is evident that the demand for one-off housing in County Monaghan stems from two backgrounds: 1. Rural Generated Housing Need Those people who are part of the rural community, have lived in the rural area for a long period and/or work in the rural area. 2. Urban Generated Housing Need Those people who have lived in urban areas, working in urban areas and who have no established direct link to the rural area. It is considered appropriate to set out what the Rural Settlement Strategy aims to achieve for County Monaghan: 1. To sustain and renew established rural communities in rural settlements as well as the wider countryside. 2. To strengthen the established structure of the rural settlements, particularly the smaller villages, to support local economies and to accommodate additional population in a way that supports the viability of local infrastructure and services. 3. To ensure that key assets in rural areas such as water quality and the natural landscape are protected. 65 FIGURE 2.5 NUMBER OF DWELLINGS PER DED IN COUNTY MONAGHAN (2024) Source: Capta Ltd. Data Q2 2024 Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- 66 2.13 RURAL AREA TYPES Figure 2.6 displays a visual and spatial indication of the number of planning applications for dwellings received in each townland of the County between 2013 and 2024. The map shows that the townlands within and around Monaghan, Carrickmacross and Castleblayney are the areas that are under the most pressure with respect to planning permission being sought for dwellings. It is therefore considered appropriate to continue to protect the rural environs of these urban areas from excessive urban generated development. It is apparent that the environs of Clones have had less pressure, but notwithstanding this it remains an area which should be protected to consolidate the recent growth of the population in the urban area and promote a more sustainable pattern of development surrounding the town. The Sustainable Rural Housing Guidelines (2005) outline that it is necessary to identify distinct categories in rural areas. In supporting sustainable housing development patterns in rural areas, the Guidelines state that policies and practices of planning authorities should seek to: k Ensure that the needs of rural communities are identified in the development plan process and that policies are put in place to ensure that the type and scale of residential and other development in rural areas, at appropriate locations necessary to sustain rural communities, is accommodated. k Manage pressure for overspill development from urban areas in the rural areas closest to the main cities and towns such as the gateways, hubs and other large towns. The 2005 Guidelines state that it is expected that all planning authority areas which are predominantly rural will contain at least three of these rural area types. However, within County Monaghan the demographic and spatial analysis indicates that two distinct categories are appropriate to protect the rural areas on the edge of the large urban centres, whilst encouraging new development needed to sustain and renew the established rural community in the wider rural area. Subsequently, based on analysis of population density, population change, and an examination of planning applications received over the last plan period, it is recommended that two rural area types are designated. This is in line with NPO 19 of the NPF which refers to ‘rural areas under urban influence’ and ‘rural areas elsewhere’. 2.13.1 CATEGORY 1 RURAL AREAS UNDER STRONG URBAN INFLUENCE The assessment of rural housing is an important function of the Development Plan to deliver sustainable communities whilst protecting the unique rural landscapes of County Monaghan. In this regard, the suitability of a site or an area in terms of its sensitivity, its ability to accommodate development in a sustainable manner and compliance with the relevant technical criteria requires careful assessment. To ensure development in the countryside takes place in a sustainable manner that does not compromise the vitality of designated settlements, specific areas of the County have been classified ‘Rural Areas Under Strong Urban Influence’ in an attempt to preserve a clear distinction between the built-up areas of settlements and the surrounding countryside. These areas exist around Monaghan, Carrickmacross, Castleblayney and Clones towns. They have been designated to support the sustainable growth of the urban areas, to provide for the immediate local rural community who have a genuine housing requirement and to direct urban generated housing into the designated settlements. Planning applications for single dwellings in these areas must comply with one of the criteria outlined in Policy RSP 7 and should be accompanied by a completed Rural Housing Application Form (Refer to Appendix 14). An occupancy condition as set out in the Sustainable Rural Housing Guidelines shall be attached to any grant of planning permission in these areas. These are designated areas surrounding Monaghan, Carrickmacross, Castleblayney and Clones are indicated on Maps 2.2 - 2.5. Monaghan County Development Plan 2025 – 2031
- 67 FIGURE 2.6 PLANNING APPLICATIONS FOR SINGLE RURAL HOUSES RECEIVED PER TOWNLAND (2013-2024) Monaghan County Development Plan 2025 – 2031 core strategychapter 02
- RURAL SETTLEMENT POLICIES To facilitate housing in Rural Areas Under Strong Urban Influence for those who have a demonstrable economic or social rural generated housing need in accordance with National Policy Objective 19 of the National Planning Framework and to apply a presumption against urban generated rural housing development. Single dwellings in Rural Areas Under Strong Urban Influence will only be permitted where the development complies with one of the following: a) The applicant is a landowner1, or the dwelling is for a member of his / her immediate family2. b) The dwelling is for an individual who has lived in the local3 rural area4 for a minimum period of 5 years prior to the date of submission of a planning application. c) The dwelling is required to meet the needs of a person working in an established rural based agricultural, commercial, industrial or other enterprise in the local area, where the person derives his/her main income from that activity, or by a member of his / her immediate family. Such circumstances may also include other persons whose work is intrinsically linked to the local rural area (such as teachers in rural schools). d) The dwelling is to facilitate a retiring farmer, where the applicant last worked principally as a farmer in the local area, or by a widow or widower of someone who last worked principally as a farmer in the local area. e) The dwelling is required to facilitate site- specific and compelling special domestic or personal circumstances, where genuine hardship would result if planning permission were refused. In these circumstances the onus will be placed on the applicant to justify why other alternative solutions, such as a house extension, granny flat or mobile home, cannot be considered. f) The dwelling is to replace an existing dwelling, where the dwelling to be replaced; was in use or last used as a dwelling; has not been changed to a dwelling from another use without planning permission; exhibits all the essential characteristics of a dwelling house and is reasonably intact. g) The sympathetic change of use of a protected structure or a nonprotected vernacular building (where the building is an important element in the landscape or of local architectural or historic merit) into residential use, where this secures its upkeep and survival, and the character and architectural or historic interest of the building would be preserved or enhanced. Proposals for a change of use should incorporate details of all intended alterations to the building and its curtilage to demonstrate their effect on its appearance, character and setting. Improvements to protected structures will comply with policies as set out in Chapter 15, Development Management Standards of the Monaghan County Development Plan 2025-2031. h) The dwelling is for an emigrant who is returning to the local rural area, where he/she had previously lived for a minimum period of five continuous years. 68 RSP 6 RSP 7 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.