Offaly County Development Plan 2021–2027 (as varied) — Chapter 2: Core Strategy

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 20 Chapter 2: Core Strategy, Settlement Strategy and Housing Strategy 2.1 Topic 1: Core Strategy 2.1.1 Aim To ensure that the development objectives of this Plan are consistent with national and regional development objectives as set out in the Regional Spatial and Economic Strategy (RSES) for the Eastern and Midland Region (2019). 2.1.2 Context This chapter is prepared in the context of Section 10(2A) of the Planning and Development Act 2000 (as amended), the Guidance Note on Core Strategies 2010, the National Planning Framework (NPF), the Implementation Roadmap for the NPF, the RSES, and Section 28 Ministerial Guidelines such as the Sustainable Rural Housing Guidelines, Sustainable Development in Urban Area Guidelines, Sustainable Urban Housing: Design Standards for New Apartments, and the Urban Development and Building Heights Guidelines. These documents set the basis for guiding future growth within the county. In line with the provisions of the Act, the Core Strategy includes a written statement, a Core Strategy Map and a Core Strategy Table. 2.1.3 Purpose The purpose of the Core Strategy is to articulate a medium to longer-term quantitatively based strategy for the spatial development of the county and in so doing to demonstrate that the Development Plan and its objectives are consistent with national and regional development objectives set out in the NPF, the RSES, and specific planning policy requirements in Section 28 Guidelines. The amount of land and the level of housing for the Plan period that is identified in the Core Strategy must be in line with that specified for County Offaly. The Core Strategy provides a transparent evidence-based rationale for the amount of land proposed to be zoned residential and a mix of residential and other uses in the Development Plan. It identifies the quantum, location and phasing of development for the Plan period linked back to a county population target, in the form of a settlement hierarchy.

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 21 2.1.4 Principles for Growth This Development Plan identifies the following list as principles for growth upon which to encourage the focus of new development: (i) Compact growth, by targeting at least 30% of all new homes that are proposed in settlements within their existing built-up footprints, with a focus on infill / brownfield lands, rather than continually sprawling outwards; (ii) Making better use of under-utilised land and buildings including vacant, derelict and underoccupied buildings; (iii) Supporting, facilitating and promoting a transition to a low carbon society; (iv) Strengthening town and village centres to meet their full potential; (v) Aligning population, employment, community and housing growth in a balanced fashion; (vi) Renewal and rejuvenation of all settlements by identifying significant regeneration areas in the existing built-up areas of our towns and villages as well as rural regeneration opportunities; (vii) Moving towards self-sustaining rather than long distance commuter driven activity; (viii) In order to achieve more balanced and sustainable development, some settlements need to attract increased population, whereas others need more jobs, amenities or better transport links; (ix) Addressing the legacy of rapid unplanned growth, by facilitating amenities, jobs and services catch-up, together with a slower rate of population growth in recently expanded commuter settlements; (x) Sequential provision of housing and infrastructure; (xi) Managing urban generated growth in rural areas under strong urban influence and stronger rural areas and reverse the decline or stagnation of many rural villages; (xii) Developing the designated Key Town of Tullamore of sufficient scale and quality to be a driver of regional growth, investment and prosperity, followed by Self-Sustaining Growth Towns and Self-Sustaining Towns to grow to a sustainable level. Other towns need to be promoted for regeneration, local employment and managed levels of growth, and the rural area which includes villages, Sráids and the open countryside, shall be promoted for regeneration and local employment and services with targeted rural housing policies; (xiii) Developing serviced zoned land and serviceable zoned land within the life of this County Development Plan; (xiv) Compliance with government policy and Section 28 Ministerial Guidelines including specific planning policy requirements; (xv) Reducing car dependency, promoting sustainable mobility and regional accessibility, and integrating transportation and landuse;

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 22 (xvi) Towns and villages to become more attractive, well-designed, of high quality design and ‘liveable’ through healthy place-making; (xvii) Promoting economic development and enterprise activity; (xviii) Protecting assets by preserving the quality of the landscape, open space, recreational resources, biodiversity, architectural, archaeological and cultural heritage and material assets in the county; (xix) Promoting social inclusion; and (xx) Collaboration between key stakeholders in land amalgamation and coordination. The above principles stem from the NPF (2018) and RSES (2019) and have been crucial in the formation of the Core Strategy Table and Core Strategy Map. They are significant guiding principles not only in the making of the Core Strategy but also in the remainder of the County Development Plan. 2.1.5 Approach The approach to realise County Offaly’s population target as set out in the NPF Implementation roadmap, and the provision of this within the settlements and countryside of County Offaly is set out in a robust evidence based analysis of demand, past delivery and the potential of the county’s settlements. This involved an analysis of the capacity of towns and villages throughout the county to accommodate future growth to support the settlement strategy and which examined key issues including: • Strategic Environmental Assessment of this Plan; • NPF, National Development Plan (NDP) and RSES; • Existing population base and other demographic factors; • Availability of social and physical infrastructure; existing and planned; • Environmental constraints; • Settlement form; • Vacancy, dereliction, brownfield / infill sites, unfinished housing developments; • Planning history; and • Potential for economic and social development.

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 23 Density As part of the Core Strategy, the scale and location of settlements has been considered and accordingly the requisite nature and scale of development appropriate to these locations has been evaluated. In this regard, higher densities are applied to higher order settlements i.e. the Key Town of Tullamore, with a graded reduction in residential densities for Self-Sustaining Growth Towns and Self-Sustaining Towns, and other towns and villages that is commensurate to the existing built environment. Towns in the lower tiers will provide for commensurate population and employment growth, providing for natural increase and becoming more economically self-sustaining in line with the equality and capacity of public transport, services and infrastructure available. NPF, RSES, Guidelines, Population In accordance with National Policy Objective 9 of the NPF, a settlement that is not a city / associated suburb or regional growth centre may be identified for significant (i.e. 30% or more above 2016 population levels to 2040) rates of population growth provided it aligns with investment in infrastructure and the provision of employment, amenities and services. The Key Town of Tullamore lends itself to significant rates of population growth in this instance. As set out in the RSES (2019), urban-generated development in rural areas needs to be managed in such a way so as to safeguard the integrity of rural areas and to support the accommodation of urbangenerated development within urban areas. The Urban Development and Building Heights Guidelines for Planning Authorities, December 2019 state that it is a specific planning policy requirement that in planning the future development of greenfield or edge of city / town locations for housing purposes, planning authorities must secure the minimum densities for such locations set out in the ‘Sustainable Residential Development in Urban Areas’ Guidelines or any amending or replacement Guidelines. In accordance with the Water Services Guidelines for Planning Authorities, the quantum, location and distribution of new development will have regard to the capacity of public water services and seek to make efficient use of and maximise the capacity of existing and planned water services infrastructure. Parcels of land are identified for strategic residential reserve which will be considered for development in future Development Plans, for example, when service infrastructure may become available. Green House Gas Emissions from Transport The Core Strategy has been prepared to reduce the impact of land use on modal split and transport greenhouse gas emissions as follows; • The allocation of population growth to the settlements on a sustainable tiered approach based on the settlement hierarchy set out in the RSES (2019), the infrastructural services, demand, past delivery and potential growth means that the settlements will grow at an appropriate rate and at a more self-sufficient level, thereby reducing the need to commute; • The distribution of many land use zoning types within settlement boundaries including a mix of uses in the centre of the settlements will facilitate reduced travel demand, and also increased usage of sustainable modes of transport;

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 24 • At least 30% of housing within the settlements is to be within the existing built-up footprint area in the interest of compact sustainable growth, in conjunction with the sequential development of the settlements. This contributes to the integration of landuse and transportation; • Many different land uses are permitted or open for consideration in the land use zonings within the settlements. This allows for the integration of various uses in proximity to each other, thereby reducing the need to travel in the first instance, and secondly encourages walking and cycling; and • The Strategic Environmental Assessment carried out as part of this County Development Plan takes climate adaptation and mitigation into account. Residential land in Previous County Development Plan Section 10(2A)(c) of the Planning and Development Act 2000 (as amended) states that ‘A core strategy shall in respect of the area in the development plan already zoned for residential use or a mixture of residential and other uses, provide details of – (i) The size of the area in hectares, and (ii) The proposed number of housing units to be included in the area. The term ‘already zoned’ is taken to mean the County Development Plan that was in effect (2014- 2020 as extended) during the time of the preparation of the new Development Plan (2021-2027). The following table sets out the area of land zoned for residential use in the County Development Plan 2014-2020, together with the number of housing units allocated for these lands. Table 2.1: Residential Land Plan Mixed Use Zoning Residential Zoning Offaly County Development Plan 2014-2020 as extended 110.74 468.2 Tullamore Town Plan 2016-2010 as extended 58.77 682.96 Birr Town Plan 2016-2010 as extended 26.81 243.03 Edenderry Local Area Plan 2017-2023 23.25 137.41 Portarlington Joint Local Area Plan 2018-2024 28.31 143.93 Total hectares 247.88 1675.53 The County Development Plan 2014-2020 (as extended) did not allocate a residential unit figure to zonings for a mixture of residential and other uses. The amount of land that was zoned mixed use (which included developed and undeveloped land) was 110.74 hectares. The number of units allocated to the residential zoned figure under the County Development Plan 2014-2020 was 3163. Going forward, it will be simpler to compare the new residential zonings and undeveloped mixed use zonings of this County Development Plan 2021-2027 with the next County Development Plan 2027- 2033. Where the amount of land that was zoned residential under the 2014-2020 County Development Plan (as extended) is surplus to the amount of land that is required to meet the needs of the current Plan period (2021-2027), the following approaches are available to address the difference:

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 25 • designation of lands as ‘strategic residential reserve’; • zoning of lands for an alternative use; or • dezoning of lands. These measures are to ensure that towns grow at a sustainable level appropriate to their position in the settlement hierarchy, as required by the NPF and RSES. Committed Land The Core Strategy Table as set out in Table 2.2 does not deduct population that would be catered for in committed land by way of extant planning permissions or Part VIII approval. Sequential Approach In order to maximise the utility of existing and future infrastructure provision and promote the achievement of sustainability, a logical sequential approach was taken to the zoning of land for development: (i) Zoning extends outwards from the centre of an urban area, with undeveloped lands closest to the core and public transport routes given preference (i.e. ‘leapfrogging’ to more remote areas has been avoided); (ii) A strong emphasis is placed on encouraging infill opportunities and better use of under-utilised lands; and (iii) Areas zoned are contiguous to existing zoned development lands. Employment, Retail and Regeneration There is a need to encourage population growth in strong employment and service centres of all sizes, supported by continued employment growth. Sufficient lands are zoned for employment purposes within the settlements through various zoning types. Chapter 5 Economic Development Strategy sets out the policies and objectives of the Council in promoting and facilitating employment growth and enterprise activity in the county both in an urban and rural context. In setting out objectives regarding retail development in Chapter 7 Retail and Town Centre and Regeneration, adherence to Section 28 Retail Planning Guidelines has been had, in particular in relation to; • The retail hierarchy • Core retail areas • Criteria for assessing retail development • Categories of retail development • Sequential approach • Design and layout Chapter 7 also includes policies and objectives relating to regeneration and an outline of a number of Opportunity Sites that are considered appropriate for significant improvement, many of which are brownfield, infill, vacant, derelict or underutilised. The individual settlement plans also contain sites considered suitable for regeneration purposes.

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 26 Ecosystem Services In preparing this Plan and developing policies and objectives, the Council have followed these Ecosystem Services1 Approach principles: a) Consideration of natural systems - by using knowledge of interactions in nature and how ecosystems function (including in Chapter 3 Climate Action and Energy). b) Taking into account the services that ecosystems provide - including those that underpin social and economic well-being, such as flood and climate regulation (including in Chapter 3 Climate Action and Energy), resources for food, fibre or fuel (including in Chapter 5 Economic Development Strategy), or for recreation, culture and quality of life (including in Chapter 4 Biodiversity and Landscape, Chapter 6 Tourism and Recreational Development, and Chapter 10 Built Heritage). c) Involving people - those who benefit from the ecosystem services and those managing them need to be involved in decisions that affect them. Public consultation has informed the preparation of the Plan. The Council will promote an Ecosystem Services Approach, following the above principles, in its decision-making processes, including those relating to the preparation of statutory land use plans. In recognition of the need to manage natural capital2, provisions have been integrated into the Plan that will contribute towards management of air quality, noise pollution, light pollution, water quality and integrated catchment management. 2.1.6 Core Strategy Map As required by the Core Strategy Guidance 2010, the Core Strategy must contain the classification of differing rural area types in map format in accordance with the 2005 Planning Guidelines on Sustainable Rural Housing. These areas constitute: 1. Rural Areas under strong urban influence These areas exhibit characteristics such as: • Proximity to immediate environs or close commuting catchment of cities / large towns • Rapidly rising population • Pressure for residential development due to proximity to urban area / major transport corridors • Pressure on infrastructure 1 Ecosystems are multifunctional communities of living organisms interacting with each other and their environment. Ecosystems provide a series of services for human well-being (ecosystem services) either directly or indirectly contributing towards human wellbeing. 2 Renewable and non-renewable resources (for example, plants, animals, air, water, soils, minerals).

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 27 2. Stronger rural areas These areas exhibit characteristics such as: • Stable or rising population within a well-developed town and village structure • Supported by strong agricultural base • Level of individual housing tends to be relatively low and confined to certain areas. 3. Structurally weaker rural areas These areas exhibit characteristics such as: • Persistent / significant population decline • Weaker economic structure based on indices of income, employment and economic growth 4. Areas with clustered settlement patterns • Such rural areas are generally associated with the western Irish seaboard and do not feature in County Offaly. In order to establish the rural area type, each Electoral Division was assessed against a range of data, criteria and trends in relation to planning applications for rural housing, urban zones of influence3 population change, and other demographic information, for example, Pobal Deprivation Indices. 3 Established by AIRO using census data 2016 to identify the Electoral Divisions that experienced 15% of its workforce commute to a settlement of 10,000+ population or a settlement with 2,500+ jobs.

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   Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 28 Figure 2.1 Rural Area Types

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    Offaly County Development Plan 2021-2027 Chapter 2 Core Strategy, Settlement Strategy and Housing Strategy Page 29 Figure 2.2 Core Strategy Map The land use zoning maps in Volume 2 of the Plan and in Local Area Plans (subsequent new LAPs and varied LAPs to reflect the Core Strategy in this plan), illustrate the allocation, extent and location of land zoned to accommodate residential development for each of the settlement areas. The open countryside including Sráids are not zoned settlement areas. It is considered that the lands identified to accommodate residential development are sufficient to meet the population targets as set out in the Core Strategy Table and reflect each settlement’s role in the Settlement Hierarchy. 2.1.7 Core Strategy Table The Core Strategy Table as set out below indicates the distribution of future population and housing across the county’s settlements in the form of a settlement hierarchy.

Source Offaly County Council: Offaly County Development Plan 2021–2027 (as varied) — Chapter 2: Core Strategy (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.