Offaly County Development Plan 2021–2027 (as varied) — Chapter 7: Retail Town Centre Strategy and Regeneration

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 232 Chapter 7: Retail and Town Centre Strategy, and Regeneration This chapter is prepared in the context of the following documents: • National Planning Framework • National Development Plan 2018-2027 • Regional Spatial and Economic Strategy for the Eastern and Midland Region • Retail Planning Guidelines 2012 and accompanying Retail Design Manual • Enterprise 2025, Ireland’s National Enterprise Policy 2015-2025 • Bringing Back Homes; Manual for the reuse of existing buildings 2018 (DHPLG) • National Vacant Housing Reuse Strategy 2018-2021 • Urban Development and Building Heights – Guidelines for Planning Authorities (2018) • A Framework for Town Centre Renewal, Retail Consultation Forum (due to be updated 2020) • Rejuvenating Ireland’s Small Town Centres a Call to Action • Places for People, National Policy on Architecture – (Discussion document, Nov 2019) • Age Friendly Strategy for Offaly 2018-2021 • Guidelines for Planning Authorities on Sustainable Residential Development in Urban Areas ‘09 • Urban Regeneration and Housing Act 2015 Figure 7.1 Birr Town Retailing

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 233 7.1 Retail and Town Centre Strategy Aim To provide a clear framework for retail development in County Offaly in acknowledgment of its role in employment, economic activity and vitality in towns and villages. Context The retail sector plays a significant role in the economy of Offaly, particularly in place-making and the vitality of town and village centres. The provisions of the Retail Planning Guidelines 2012 inform the retail and town centre strategy for this plan. The retail and town centre strategy must therefore be consistent with the approach of the guidelines. Retail Strategy The Retail Planning Guidelines 2012 require the following matters to be addressed in a Retail Strategy: • Retail Hierarchy to be in line with the Regional Spatial and Economic Strategy and the Settlement Hierarchy of the Core Strategy; • Outline the level and form of retailing activity appropriate to the various components of the hierarchy; • Define by way of a map the boundaries of the core shopping areas or town centres and if applicable the location of district centres; • Set out strategic guidance on the location and scale of retail development; • Identify sites to accommodate the needs of modern retail formats; • Include objectives supporting action initiatives for the improvement of town centres; and • Identify development management criteria for assessment of retail development. Regional Policy Objective (RPO) 6.10 of the Regional Spatial and Economic Strategy (RSES) for the Eastern and Midland Regional Assembly (EMRA) states that EMRA will support the preparation of a Retail Strategy / Strategies for the region in accordance with the Retail Planning Guidelines for Planning Authorities 2012 (or any subsequent revision), to update the retail hierarchy and apply floorspace requirements for the region. Accordingly, until such time as this is undertaken the retail

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 234 development strategy for this Plan will be informed by the provisions of the Retail Planning Guidelines 2012 as they offer direction on retailing matters to be addressed by development plans. Retail Hierarchy The Retail Planning Guidelines 2012 prescribe that to ensure proper planning and sustainable development, retail development must follow the settlement hierarchy of the state as per the hierarchy identified by the National Planning Framework, Regional Spatial and Economic Strategy and Core Strategies of development plans. The retail and town centre strategy will demonstrate consistency with the Core Strategy in setting out a retail hierarchy in line with the settlement hierarchy for County Offaly as set out in Chapter 2 of this plan. Offaly’s retail hierarchy comprises the following: Table 7.1 Retail Hierarchy County Offaly (based on RSES) Settlement Typology Settlement Key Town Tullamore Self –Sustaining Growth Town Birr Self-Sustaining Towns Edenderry, Portarlington Towns Clara, Banagher Rural (Smaller Towns, Villages, Sráids and Open Countryside) Daingean, Ferbane, Kilcormac, Ballinagar, Ballycumber, Belmont, Bracknagh, Cloghan, Clonbullogue, Cloneygowan, Coolderry, Geashill, Killeigh, Kinnitty, Moneygall, Mountbolus, Mucklagh, Pollagh / Lemanaghan, Rahan, Rhode, Riverstown, Shannon Harbour, Shannonbridge, Shinrone, Walsh Island, the Sráids and open countryside. The retail hierarchy reinforces the settlement hierarchy set out in the Core Strategy and takes the following approach which: • Reinforces and extends the high order retail function of Tullamore as a Key Town, enabling it to effectively reduce retail expenditure exported from the county to other centres; • Supports the roles identified for Birr, Edenderry and Portarlington by encouraging retail floor space provision commensurate with their anticipated growth; and • Promotes balanced retail provision throughout the county of a scale appropriate to the size and function of the various settlements. The bulk of additional retail floorspace in the future will be directed to the main existing centres in the retail hierarchy, consistent with the provisions of the Core Strategy. Tullamore as a Key Town and as the county town will be the main focus of retail development activity. The role and function of

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 235 established centres should be consolidated (at all levels in the retail hierarchy) by encouraging the improvement of retail facilities and supporting services appropriate in size and scale to each of the existing centres. This will include: • A positive approach to planning applications which reinforce retail roles and functions, subject to satisfying relevant planning and environmental assessment criteria; • Support ‘in principle’ for town and other centre improvement initiatives (including for example, public realm and business development initiatives); and • Support for sustainable mobility. Level and Form of Retailing Activity The Retail Planning Guidelines require Planning Authorities to outline the level and form of retailing activity appropriate to the various components of the retail hierarchy as set out in Table 7.2 below. The retail hierarchy encourages the provision of retail floorspace in the settlement areas of County Offaly at a level appropriate to the size and the defined function of its various settlements as outlined in the Core Strategy. Table 7.2 Level and Form of Retailing Activity in the context of the Retail Hierarchy Typology Description Key Town (Tullamore) Tullamore is the focus for all types of retail development. Its role, as a Key Town, can be strengthened through securing major retail development for the town, which will in turn benefit the county area and the wider region. Tullamore has the greatest capacity to accommodate a range of retail development types. Major comparison retail development should be directed to Tullamore. The application of the sequential test is fundamental to achieving appropriate retail development in the most appropriate locations within Tullamore. Major retail development proposals in Tullamore shall demonstrate that the proposal will have a positive impact in: • further reducing levels of retail expenditure exported from the county; • generating a significant improvement in Tullamore’s regional appeal; and • consolidating the town centre, in particular Opportunity Sites. A neighbourhood centre will be considered where it complements rather than competes with the town centre. It should provide an appropriate range of local services including commercial, retail and community uses, to support the population of the surrounding area. Retail Warehousing development will be carefully considered given; the level of existing provision, the levels of vacancy, pressure to entertain or accommodate inappropriate uses at existing sites and the justification for additional retail warehouses.

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 236 Self-Sustaining Growth Town (Birr) & Self-Sustaining Towns (Edenderry and Portarlington) As the larger towns within the county, appropriate levels of convenience and comparison floor space will be encouraged in Birr, Edenderry and Portarlington, and supported where it is required to serve the existing and projected population catchment, subject to consideration of the impact on retail core areas and existing retail developments. There will generally be a presumption against further development of retail parks accommodating retail warehousing in these larger towns. Where retail warehousing is proposed careful consideration shall be given to the level of existing provision, the levels of vacancy, pressure to entertain or accommodate inappropriate uses at existing sites and the justification for additional retail warehouses. Towns (Clara and Banagher) Additional convenience and comparison floorspace shall be encouraged where: • It is needed to support levels of population growth commensurate with the settlement hierarchy; • Gaps are identified in local provision; and • There would not be a material and unacceptable adverse impact on the vitality and viability of the existing town centre. Comparison retail development shall not be considered where it proposes to attract a larger catchment such that it would be likely to affect the integrity of the retail hierarchy. There shall generally be a presumption against the development of retail parks accommodating retail warehousing in these towns. Rural (Smaller Towns, Villages, Sráids, and open countryside) Smaller Towns and Villages shall maintain the role in the provision of retail services to their local population catchments. New small scale retail developments shall be supported where they meet the needs of the local population (including the rural catchments that they serve), subject to normal planning considerations including sequential approach and adherence to the retail hierarchy of the county. There shall be a clear presumption against edge-of-centre and out-of-centre locations in smaller towns and villages. The development of vacant/derelict or underutilised land or buildings is a key priority in smaller towns and villages to encourage the most efficient use of land and to promote the renewal, regeneration and consolidation of smaller towns and village centres. Core Retail Areas Volume 2 of the Development Plan provides for settlement plans for all settlement areas within Offaly (except where a separate Local Area Plan exists). The core retail area of each settlement area has been delineated to identify clearly that part of a town centre which is primarily devoted to shopping as distinct from the wider town or village centre / mixed use zoning objective. Core retail areas contain the primary retail streets of a centre where the main concentration of retail activity takes

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 237 place. Identifying and delineating core retail areas allows a focused approach for retailing and town / village centre action initiatives as well as the proper application of the sequential approach to retail development. Strategic guidance on the location/scale of retail development and identification of sites to accommodate the needs of modern retail formats The priority for the location of retail development is in town and village centres in line with the sequential approach to retail development. The delineation of core town and village retail areas as set out in Volume 2 of the Plan (and in future Local Area Plans), establishes the framework from which the sequential approach can be applied. Thereafter, key Opportunity Sites have been identified in the Regeneration section of this Chapter for larger settlements and in Volume 2 for other settlements. Such Opportunity Sites are considered suitable for re-development to contribute to the enhancement of the vitality and vibrancy of town and village centres and to provide for future mixed use development including retailing, commercial and residential uses. Encouraging the improvement of Town and Village Centres The decline in town and village centres in County Offaly is recognised as a challenge that needs to be addressed where possible within the lifetime of this plan. The role of town centres has been impacted by the following factors: • Economic situation; • Increased competition from out of town retail parks and large supermarkets; and • Changing trends and patterns in consumer purchasing, namely, on-line shopping. An aim of this Plan is to support and further develop the role of town and village centres in their evolution as inclusive, diverse and attractive service centres, recreational centres and living centres for residents and visitors alike. In order to maintain the attractive characteristics of our town and village centres, applications for new development / changes of use within the town and village centres would need to ensure proposals would not detract from the amenity, vitality and character of the area. Where the evening economy is promoted it should avoid being detrimental to the amenity of residents. Safeguards regarding the hours of permitted operation, control of litter and odour may be imposed as conditions to development. In cases where there is a proliferation of uses which threaten the vibrancy and mixed use character of the town and village centre they shall be discouraged. To remain competitive, attractive and sustainable, town and village centres need to be responsive to local needs and to strike a balance between choice and offering environmental attributes for example, quality shopfronts, green infrastructure and attractive public realm that can be used to attract people. Future town and village centre development should have regard to the principles outlined in section 7.2.4 of Opportunity Sites below.

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 238 Development Management Criteria for the Assessment of Retail Development The Council supports applications for retail development which: • Are in line with the role and function of the town or village in the settlement hierarchy of the development plan, and • Accord with the scale and type of retailing identified for that location in the development plan. Applications for retail development shall be assessed against a range of criteria, which include the following: • Sequential approach; • Retail Impact Assessment; • Traffic and Transport Assessment; • Specific categories of retail development (for example, large convenience goods stores such as supermarkets, factory shops, retail parks and retail warehouses); • Sustainable mobility; and • Design and place making. Sequential Approach Planning applications for retail development proposals must demonstrate to the satisfaction of the Planning Authority that it complies with the policies and objectives of the Development Plan to support town or village centres. Proposals should demonstrate compliance with criteria on location, suitability of use, size, scale and accessibility to ensure that the site chosen is suitable, available and viable for the type of retailing proposed. For retail proposals outside the core retail areas, proposals should demonstrate by supportive evidence what alternative sites were examined and why they were discounted. Retailers should demonstrate a degree of flexibility in appraising potential sites and provide for: • Adaptation of standard retail format to accommodate retail development on sites which are centrally located or sensitive in the context of the sequential approach; • Possibility of changing core business models and adopting flexible retail formats in order to complement the local character; and • Innovation in site and store layout. A sequential approach should be applied to material changes of use of existing development where due to their nature (for example, size, category of retailing, likelihood to cause vacant properties in

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 239 the town or village centre), could have a significant impact on the role and function of the town or village centre. Table 7.3 Order of Priority - Sequential Approach Order of Priority Location Criteria 1 Town Centre Preference for location of retail development in town / village centre locations, and only to allow retail development in edge-ofcentre or out-of-centre locations where all other options have been exhausted. 2 Edge of Town Centre Only where the applicant can demonstrate and the Planning Authority is satisfied that there are no sites or potential sites including vacant units within a town / village centre that are (a) suitable (b) available and (c) viable, can an edge-of-centre site be considered. 3 Out of Town Centre Only in exceptional circumstances where the applicant can demonstrate and the Planning Authority is satisfied that there are no sites or potential sites either within the centre of a town / village or on the edge of a town / village that are (a) suitable (b) available and (c) viable, can an out-of-centre site be considered. Retail Impact Assessment A Retail Impact Assessment (RIA) will be required where: • a new retail development is considered to be particularly large in scale compared to the existing town centre; or • there is a particular allocation of a specific type and/or quantum of retail floorspace to a particular settlement, and a proposed development absorbs on one site the bulk of that potential retail floorspace. An RIA must examine and demonstrate compliance with the Development Plan and that there would not be a material and unacceptable adverse impact on the vitality and viability of any existing centre. The RIA must address criteria as set out in the Retail Planning Guidelines 2012 (or any subsequent update).

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   Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 240 Traffic and Transport Assessment A Traffic and Transport Assessment (TTA) must examine the traffic and transport impacts of a proposed development, incorporating any subsequent measures necessary to ensure roads and junctions and other transport infrastructure in the vicinity of the development are adequate to accommodate the proposed development without causing additional delays to existing and future road based traffic. A TTA is important in demonstrating how to encourage a shift towards sustainable travel modes by those using the retail development in question. The TTA must also address urban design impacts of the proposed public and private transport proposals. A TTA will be required for retail developments over a threshold of 1,000sq.m. gross floorspace; and, at the discretion of the Planning Authority, a TTA may be required for retail developments below this threshold.1 Specific Categories of Retail Development Table 7.4 provides a range of criteria for the assessment of the specific categories of retail development. Table 7.4 Assessment of specific categories of retail development Category Assessment Criteria Large Convenience Goods stores i.e. supermarkets, superstores and hypermarkets • Should be located in town centres or on the edge of town centres and be of a size which accords with the general floorspace requirements set out in the development plan/retail strategy to support and add variety and vitality to existing shopping areas and also to facilitate access to shoppers by public transport. • The sequential approach should be used to find the most preferable sites. • Planning application drawings should clearly delineate the floorspace to be devoted for sale of comparison and convenience goods, and should differentiate between net and gross floor area. • The balance between the convenience and comparison elements shall be assessed as a critical element of the suitability of the development proposal. Where a significant element of the store is indicated to be for comparison goods the potential impact of that element of the store on existing comparison goods stores within the catchment must be included in the assessment of the application. Retail Parks and Retail Warehouses • Presumption against further development of out-of-town retail parks where they have already reached saturation point, where there are existing levels of vacancy, and where there is potential for detrimental 1 As per Traffic and Transport Assessment Guidelines, National Roads Authority, 2014

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    Offaly County Development Plan 2021-2027 Chapter 7 Retail and Town Centre Strategy, and Regeneration Page 241 impact on town centres (including vacancy rates in town centres where retail parks exist on the periphery of the town). • Types of goods to be sold from retail parks is tightly controlled and limited to truly bulky household goods or goods which are not portable by customers travelling by foot, cycle, or bus in accordance with the provisions of the Retail Planning Guidelines 2012. • Minimum size of retail park units shall be no less than 700 sq.m. in out of centre locations and shall not be subdivided. • Cap of 6,000 sq.m (gross) on large-scale single retail warehouse units. Factory Shops • Should be restricted to the sale of products produced in the respective factory only. • Scale of the shop should be appropriate to location and raise no issues in relation to the vitality and viability of nearby centres. Outlet Centres • Applicants must demonstrate that the products sold would not be in competition with those currently on sale in typical town centre locations. • Most appropriate location for outlet centres is likely to be where commercial synergy can be achieved between an outlet centre and an urban centre which would lead to economic benefits for the overall area. Outlet centres should not be permitted in more remote out-of-town locations. • Applications for the development of outlet centres should be considered having regard to the retail hierarchy and shall be assessed in accordance with the sequential test. Retailing in Small Towns and Villages • Retail development should be provided for the local urban and rural populations that the town or village serves. • Applicants must demonstrate a need for the retail development within such locations. Local Retail Units • The importance of local retail units must be justified for their location within defined local centres. Retailing in Rural Areas • Retailing in rural areas should generally be directed to existing settlements and retailing in the open countryside should generally be resisted. • Retail development may be considered in the open countryside in circumstances where there is a justifiable need for one of the following:

Source Offaly County Council: Offaly County Development Plan 2021–2027 (as varied) — Chapter 7: Retail Town Centre Strategy and Regeneration (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.