Graiguenamanagh LAP

Introduction

Section 7 of the Planning and Development (Amendment) Act 2010, sets out that the written statement of a Development Plan must contain a Core Strategy which shows that the development objectives in the development plan are consistent, as far as practicable, with national and regional development objectives set out in the National Spatial Strategy and Regional Planning Guidelines.  A planning authority shall prepare a core strategy not later than one year after the making of the Regional Planning Guidelines and shall accordingly vary the development plan.  The Regional Planning Guidelines for the South East Region (RPGs) were adopted on the 26^th July 2010.  Variation 2 which provides for the inclusion of the core strategy in the County Development Plan 2008-2014, was adopted on the 19^th September 2011.

That Variation includes a policy PS7, ‘To amend the LAPs for Callan, Castlecomer, Graiguenamanagh and Thomastown adopted in 2009 to take account of the Core Strategy for the County’.

As at September 2011, the Graiguenamanagh Local Area Plan (LAP) contained a total of 12.5 hectares of undeveloped land, zoned for residential uses, or for a mix of residential and other uses.

The RPGs set out a projected population expansion for each county in the region and to accommodate this, determined that in the order of 254 hectares will be required over the period 2010-2016 for Kilkenny city and county.  The RPGs have divided the county allocation between the gateway (Waterford Environs in County Kilkenny, which is covered by the Ferrybank/Belview LAP), the hub (Kilkenny City) and the remainder of the county.  The Core Strategy Table, on page 18 of Variation 2, set out that the housing land requirement for Graiguenamanagh was 2.5 hectares.

Therefore this amendment involves a significant level of change through phasing of development land, in order to meet the objectives of the RPGs and the County Core Strategy.

A Flood Risk Assessment was carried out as part of the Strategic Environmental Assessment screening for this amendment, and this resulted in proposed changes to the Infrastructure/Flood policies and proposed changes to the zoning map.

As a result of all of the above, consequential changes had to be made to other sections of the LAP. This amendment should be read in conjunction with the Graiguenamanagh LAP 2009.

Proposed deletions to the LAP are displayed in strikethrough and proposed insertions are presented in italics. 

Section 1 Introduction and Strategic Context

1.7.1 Town Function

Tinnahinch is the subject of an LAP (2010) 2004 prepared by Carlow County Council.

 

The CDP Strategy sets out the following policy objective (3.3.35) for the District Towns:

To produce amend the LAPs for and promote Callan, Castlecomer, Graiguenamanagh and Thomastown as District Towns, with an appropriate range of facilities and services, including social infrastructure, retail units, commercial offices and local enterprise, to serve their rural catchments; and adopted in 2009 to take account of the Core Strategy for the County. 

 

1.9.1 Population

Insert after first paragraph:

The preliminary results from Census 2011 give a figure of 1,830 for the Graiguenamanagh Electoral Division[1] but no figure is available yet for the town[2].  (The preliminary results are only available for the Electoral Divisions and not for Towns.)  The population of the ED in 2006 was 1,586 which represents a 15.4% increase over the period. 

Delete from “The following table…” to the end of the section.

 

1.10.2 Water Supply

Water is supplied from the Graiguenamanagh water supply scheme which has limited spare capacity.  In order to augment the system, there has been a recent proposal to drill an additional well at Ballynakill, to provide approx. 300 cubic metres of water per day.    A preliminary report for proposed upgrade of the scheme (Graiguenamanagh WSS) is with the Department of the Environment.

Delete sentence: “As a result of existing provision and ongoing invest…. to foreseeable future”.

 

1.11 Housing

Delete from “Of the total amount of land zoned…. to “absorb future housing requirements”.

Chapter 2: Policies and Objectives

2.4 Natural Heritage and Biodiversity

Policy 3: The River Barrow and River Nore cSAC

Replace (b, c, d and e) as follows: Ensure that any plan or project which has the potential to directly, indirectly  or cumulatively impact on a site protected under European legislation (SAC or SPA), is assessed in accordance with Article 6 of the Habitats Directive in order to avoid adverse impacts on the integrity and  conservation objectives of the site.  Any such plans or projects shall be referred to the National Parks and Wildlife Service.  Potential threats to a designated site may arise from developments such as water abstraction, or discharges from wastewater treatment plants, surface water or surface water attenuation at locations which are geographically remote from the site, through hydrological links with the designated site (tributaries, streams, drainage ditches and drains).  Any such AA for development within the cSAC should include measures which enhance the public awareness and/or the value of the site for conservation as well as the amenity value for users. 

In addition to designated sites, there are a variety of habitats and features, which are important in contributing to the biodiversity, landscape value and sense of place of the town.  Such features include hedgerows, ditches and banks, stone walls, woodlands, rivers, streams and associated riparian zones, and it is important that these areas are conserved and managed well.  As part of the Appropriate Assessment of the Graiguenamanagh Local Area Plan, carried out in October 2008, one habitat (outside of the cSAC boundary) was identified as being of ‘high value, locally important’^[3].  This broad leaved woodland habitat (WD2) is identified on Map 2: Natural Heritage.     

Policy 4: (f) A bat survey will be required as part of any planning application in or near any old buildings along the Barrow waterfront or the Duiske mill race.  This survey shall be carried out by a suitably qualified professional and should identify the species and number of bats (if present), the nature of the site for the species (e.g. wintering or maternity roost) and recommend avoidance or mitigation measures as appropriate.  

 

2.7 Housing and Population

Delete entire section and replace as follows:

2.7 Core Strategy

Section 7 of the Planning and Development (Amendment) Act 2010, sets out that the written statement of a Development Plan must contain a Core Strategy which shows that the development objectives in the development plan are consistent, as far as practicable, with national and regional development objectives set out in the National Spatial Strategy and Regional Planning Guidelines.  A planning authority shall prepare a core strategy not later than one year after the making of the Regional Planning Guidelines and shall accordingly vary the development plan.  The Regional Planning Guidelines for the South East Region (RPGs) were adopted on the 26^th July 2010.  Variation 2 which provides for the inclusion of the core strategy in the County Development Plan 2008-2014, was adopted on the 19^th September 2011.  

Section 3.3.8 of the County Development Plan (as varied) sets out a population and housing land requirement for each of the District Towns, including Graiguenamanagh.  The estimated population in 2010 was obtained by applying its percentage share of the County’s population in 2006 (1.25%) to estimated figure for the County’s population under the RPG’s in 2010 (96,872).  The figure for 2016 is obtained by applying its percentage share of the growth in the County’s population to 2016 (8,726) and adding that to the 2010 estimated figure. The projected population for Graiguenamanagh is shown in Table 2.1. 

Table 2.1: Population projection for Graiguenamanagh from Core Strategy

 

Variation 2 to the County Development Plan, Core Strategy, set out that a total of 2.5 hectares of land would be required in Graiguenamanagh to provide for growth to 2016.  This was based on an average household size of 3 and an average density of 15 dwellings to the hectare.   

As of September 2011, the total amount of undeveloped residentially or mixed use zoned lands within the plan area totalled 12.5 hectares.  This comprised 12.2 hectares of undeveloped land zoned solely for residential uses, and a further 0.3 hectares for a mix of residential and other uses.  There are two unfinished housing estates in Graiguenamanagh, and between them there is a total of 1.6 hectares of land yet to be developed within these sites.       

Table 2.2 below sets out the undeveloped land and the total amount of land with extant permissions in Graiguenamanagh. 

Table 2.2: Undeveloped residential/mixed use zoned land in Graiguenamanagh as at September 2011

	Undeveloped land in hectares	Land with extant permission
ResidentialMixed Use	12.2 0.3	1.6
Total	12.5

Source: OS mapping and Planning Department information, 2011

The zoned land allocation for Graiguenamanagh as stated in the County Development Plan, is 2.5 hectares to 2016.  It is clear that the land currently zoned for residential development (12.5 ha) could far exceed this demand.  Therefore, it is recommended that a significant proportion of the land is phased for development.  Development will be permitted in principle on Phase 1 lands during the period of this Plan (to 2015).  Development will not be permitted on Phase 2 lands during the lifetime of this plan. 

The principles underlying the phasing approach are as follows:

• National/Regional/Local Policy Context (i.e. the NSS, RPGs, County core strategy etc.)
• Demographic and socio-economic trends
• Assessment of need for housing
• Water, drainage and road infrastructure (existing and planned)
• Flood Risk Assessment
• Supporting infrastructure (social, community and commercial, both existing and planned)
• Physical suitability
• Environmental policy (ground and surface water quality, flooding, etc.)
• Heritage policy
• Sequential approach (zoning should extend outwards from the core of an urban area, with undeveloped lands closest to the core and public transport routes being given preference. In addition, areas to be zoned should be contiguous to existing zoned development lands)

 

The proposed phasing is based on the principles of sustainable development as outlined above, in addition to the planning histories and the potential of sites coming forward for development.  The proposed phasing is set out below in Table 2.3.

 Table 2.3: Amount of undeveloped zoned land in Graiguenamanagh by Proposed phase

Zone	Phase 1 land (ha)	Phase 2 land (ha)
Residential	4.27	8
Mixed Use	0.08	0.2
Total	4.35

Phase 1 land

Phase 1 land will be considered for development during the lifetime of this Plan.  However, it is clear that the total amount of zoned land in Phase 1 – 4.3 hectares – could cater for a greater expansion than that envisaged by the County Core Strategy.  Therefore, any application for residential development, either a new application or application for extension of duration of permission on Phase 1 lands (where substantial works have not been completed), shall be subject to a Core Strategy Justification Test.  This Core Strategy Justification Test shall consider the demand for the development, the availability of services, the transport infrastructure and the contribution of the development to the plan objectives for the area. 

Any such application shall be accompanied by a Core Strategy Justification statement, which will examine:

• How the development is consistent with the Development Plan Core Strategy
• The demand for the proposed development based on an assessment of existing housing vacancy, unfinished estates and the unit types in the area
• The capacity of services in the area to cater for the proposed development, including childcare, schools, other community services, open space, retail and commercial services
• The provision of transport infrastructure in the area, and how the proposed development will contribute across all modes (vehicular, rail, cycle and pedestrian linkages)
• The contribution of the proposed development to the achievement of objectives outlined in the LAP
• In the case of applications for extensions of duration, an assessment of how the development is in accordance with the current LAP, the Guidelines on Sustainable Residential Development in Urban Areas, and (where necessary) the Guidelines on Sustainable Urban Housing, Design Standards for New Apartments.   

Phase 1 development objective:

In addition to each zone’s individual development objective, the following objective will apply on all land identified on the Zoning Map as Phase 1: 

The Council will only consider development on Phase 1 lands where the Core Strategy justification statement demonstrates that the proposed development is consistent with the County Core Strategy, having regard to all of the criteria outlined above.  

Phase 2 land

In general, Phase 2 land will act as a strategic reserve. 

Significant residential development will not be permitted on Phase 2 lands, but new land uses other than significant residential development will be considered on their merits having regard to the strategic nature of the phase 2 lands and general planning considerations.

Applications for single houses on the phase 2 lands will be considered on the same basis as lands zoned as Agriculture as outlined in Section 3.1.7 Agriculture of the LAP.

Expansion of existing land uses within the Phase 2 lands will be considered on a case by case having regard to the potential impacts on the strategic nature of the phase 2 lands and general planning considerations.

Phase 2 development objective:

Phase 2 lands will allow for a sequential approach to development.  Any application for development will be assessed against the strategic nature of the Phase 2 lands and the principles as set out above. 

 

2.7.1 Housing Development Generally

There is sufficient land zoned in this Plan to cater for needs beyond the lifetime of this Plan.  The Council recognises the direct implications of this zoning in relation to the scheduling and cost of delivering infrastructure. In this regard, the Council will adopt a sequential approach to the development of the town and will discourage the leapfrogging of development over greenfield sites which would result in the development of the town in a piecemeal and incoherent manner out of sequence with the scheduling and delivery of the necessary infrastructure to serve the proposed development. 

Hence

Delete “This plan proposes two areas of newly zoned… to in the previous LAP”.

Insert “This plan proposes a total of 4.3 hectares of undeveloped land zoned for residential or a mix of residential and other uses”.

 

Policy 11 – New Housing Developments

All residential development proposals will be required to demonstrate that they satisfy the following requirements:

• Conformity with the draft Guidelines set out by the DoEHLG in Sustainable Residential Development in Urban Areas (February 2008 May 2009)
• Conformity with the Core Strategy Justification Test

2.8 Service Infrastructure and Flood Defence

2.8.3 Flood Defence

Delete entire section and replace:

Flood risk in the Plan area will be managed through compliance with the Planning System and Flood Risk Management – Guidelines for Planning Authorities 2009. 

The Guidelines outline three key principles that should be adopted by regional authorities, local authorities, developers and their agents when considering flood risk. These are:

• Avoid the risk, where possible,
• Substitute less vulnerable uses, where avoidance is not possible, and
• Mitigate and manage the risk, where avoidance and substitution are not possible

Avoidance of development in flood risk areas

Flood zones are geographical areas within which the likelihood of flooding is in a particular range and they are a key tool in flood risk management within the planning process as well as in flood warning and emergency planning. There are three types or levels of flood zones defined for the purposes of the guidelines:

• Flood zone A – where the probability of flooding is highest (greater than 1% or 1 in 100 for river flooding or 0.5% or 1 in 200 for coastal flooding) and where a wide range of receptors would be vulnerable;
• Flood zone B – where the probability of flooding is moderate (between 0.1% or 1 in 1000 and 1% or 1 in 100 for river flooding and between 0.1% or 1 in 1000 year and 0.5% or 1 in 200 for coastal flooding); and
• Flood zone C – where the probability of flooding is low (less than 0.1% or 1 in 1000 for both river and coastal flooding).

 

As part of the Strategic Environmental Assessment Screening for Amendment No. 1, a Flood Risk Assessment was carried out.  This has identified an area within which development proposals shall be the subject of a site-specific Flood Risk Assessment.  This FRA shall be appropriate to the type and scale of the development being proposed and shall be carried out in line with the Guidelines. 

A Flood Risk Management Study was carried out by Hyder Consulting in 2010 for Callan, Graiguenamanagh and Thomastown.  This identified a series of flood defence measures for Graiguenamanagh.  The detailed design of these measures is currently being undertaken.

Policy 17

a) Applications for development on lands identified as being located in an area of flood risk on the FRA map, shall be the subject of a site-specific Flood Risk Assessment appropriate to the type and scale of the development being proposed, in line with the DoEHLG Guidelines “The Planning System and Flood Risk Management” November 2009. A site-specific FRA may be required for sites adjoining an area of flood risk.   

b) For any development, where flood risk may be an issue, a flood risk assessment should be carried out that is appropriate to the scale and nature of the development and the risks arising.  The applicant is primarily responsible in the first instance for assessing whether there is a flood risk issue and how it will be addressed in the development they propose. 

c) Development that is vulnerable to flooding will not be permitted in an area identified as subject to flood risk, without a site specific flood risk assessment.  Any development will not be permitted unless the criteria as set out in the Justification Test are satisfied. 

2.10.3 Education

Policy 24 (b) To facilitate the future expansion requirements of the VEC through zoning of suitable land and in the context of a comprehensive masterplan for the wider area.

2.11.1 Open Space

It is Council policy to endeavour to implement as a priority the hierarchy of open space identified in the Kilkenny Open Space, Sport and Recreation Study for the City and County (2003).  Based on the CDP requirement for outdoor recreation playing space to be provided at a ratio of 2.4ha per 1,000 persons, the following table applies the quantitative standard to the projected population growth during the lifetime of the LAP, and to longer-term growth envisaged up to 2016:

Delete table and replace as follows:

	2006	2010	2011	2016
Population	1,097	1,162		1,275
Equivalent open space provision based on 2.4ha per 1000 persons	2.6 ha	2.78 ha		3.06 ha
Open Space Provision	17.8		22.4

On this basis it is evident that the town is well endowed with open spaces, even taking into account that the buffer category a large proportion of this is on private land (Brandondale grounds).

Chapter 3: Land Use Zoning Objectives

3.1.4 Open Space/ Biodiversity conservation

Objective: To preserve, provide and improve recreational and amenity open space and to allow for biodiversity conservation

Chapter 4: Development Management and Framework

4.2 Best Practice Design Guide Criteria

Delete paragraph beginning “The Urban Development Framework Plan identifies

Replace with:

The Urban Development Framework Plan (Map 4, Appendix 1) identifies the areas within the town which have been selected for indicative preliminary master plans.  These sites are broken down into two phases: Phase 1 and Phase 2. 

4.6.2 Generic Development Layouts

7^th paragraph:

Regard should be had to ‘Sustainable Residential Development in Urban Areas’ Guidelines (2008) (2009).

4.6.12 Access for People with Disabilities

Part M of the Building Regulations 1997 to 2000 2010

4.6.13 Apartments/Duplex Style

Apartment type	Minimum floor area
Two bed	65 sqm 73 sqm

4.10 Key Development Areas

Delete first paragraph and replace:

A number of sites have been selected for indicative preliminary master plans.  These sites are broken down into two phases: Phase 1 and Phase 2.  The sites in Phase 1 are as follows:

Opportunity Site 1: The Quay

Opportunity Site 2 & 3: The Dock and Turf Market

Opportunity Site 4: Rear of Main street/High Street

Opportunity Site 5: Duiske River Valley

Opportunity Site 6: District Park

Site R1.1: Lands inside Western Relief Road

R3.2: Lands at Harristown

The sites in Phase 2 are as follows:

R1.2: Lands outside Western Relief Road

R2: Lands at Brandondale House

R3.2: Lands at Harristown

R4: Lands at Fairgreen

Delete Figure 9: Location of key development areas

4.10.1 Opportunity Site 1: The Quay

Change table on page 65

Site	Area	Access	Density	Content
1.6	820	The Quay	High	New build/redevelopment of outbuildings with appropriate 2+3 storey terrace housing maintaining building and corner line, and yard to rear with ped access from Site 7 to Barrow Lane development subject to findings of Flood Risk Assessment.
1.7	2,150	The Quay	High	New build of courtyard 2+3 storey terrace housing to Quay frontage with car park to rear serving wider area and with ped link through to Site 6. Appropriate development subject to findings of Flood Risk Assessment

Change concept plan p.66 –

1.6 Renovation/new build 2 + 3 storey terrace housing, subject to findings of FRA

1.7 New build 2 and 3 storey courtyard housing with public car park to rear. Appropriate development subject to findings of FRA

4.10.6 Residential Area R1: Lands along Western Relief Road

Development framework

Development objectives

To secure low density development of site R1.2 (Phase 2) within a substantial landscape framework

4.10.7 Residential area R2: Lands at Brandondale House (Phase 2)

4.10.8 Residential area R3: Lands at Harristown

Key characteristics

The site comprises two parcels of land R3.1 (Phase 2) to the west of the R705 lies between existing detached houses and the development boundary, while R3.2 is to the east of the road.

4.10.9 Residential Area R4: Fair Green (Phase 2)

Core Strategy Table

 

Graiguenamanagh	Core Strategy Population Allocation (2010 to 2016)	Housing land requirement (ha)	Existing Zoning (ha)	Proposed Zoning (ha)	Housing Yield (Residential Lands – units)[4]	Housing Yield (Other Lands – units)	Excess (ha)
Total	113	2.5[5]	12.5	4.35			1.85[6]
Residential zoning				4.27	64
Mixed use zoning				0.08		8[7]

 

List of Maps:

Map 1: Land Use Zoning

Introduce Phase 2 zoning, show cSAC on zoning map, change open space to include biodiversity conservation.

Map 2: Natural Heritage

Include potential site of local conservation interest, WD1, Mixed Broadleaved Woodland