3   Core Strategy

Strategic Aim: To implement the provisions of the Regional Planning Guidelines and to target the growth of Kilkenny City, Ferrybank/Belview, the District Towns,  the other settlements in the hierarchy and rural areas to advance sustainable development. 

3.1   Introduction

The Planning and Development Acts 2000 - 2011 require the written statement of a Development Plan to 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 (NSS) and relevant Regional Planning Guidelines (South East Regional Planning Guidelines).

The Core Strategy will set out an evidence based rationale for the settlement hierarchy for the Plan area and give details on:

1. Designations under the NSS and South East Regional Planning Guidelines.
2. Policies and objectives of the Government in relation to national and regional population targets.
3. Classification of roads within the Plan area,
4. Inter urban commuter rail routes,
5. Rural areas where the Sustainable Rural Housing Guidelines apply.

3.2   Development Strategy

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 to demonstrate that the Development Plan and its objectives are consistent with national and regional development objectives set out in the NSS and South East Regional Planning Guidelines (RPGs).  

The current South East Regional Planning Guidelines were adopted on the 26^th July 2010. They were based on revised national and regional population projections prepared by the Department of the Environment, Heritage and Local Government in October 2009^[1].

In the promotion of development generally, the Local Authority will focus on opportunities for the redevelopment and renewal of areas in need of regeneration, whether urban or rural. 

Objective: To promote the redevelopment and renewal of areas in need of regeneration. 

3.3   Settlement Hierarchy

The settlement hierarchy for the purposes of the Core Strategy is set out on Table 3.1 and illustrated on Figure 3.1, Core Strategy Map.

 

3.3.1Kilkenny City & Environs

Kilkenny City has been identified as a Hub in the NSS, and is a key driver which can help promote more balanced regional development.  Under the NSS and South East Regional Planning Guidelines Kilkenny City has a target population of 28,200 to be reached by the year 2022.  Kilkenny is the driver of growth for the County at a sub-regional level and also supports Waterford City in its role as a Gateway.  In order to fulfill its role as a Hub, Kilkenny City will be the main focus for public and private sector investment within the county over the period of the Plan.

3.3.2   Waterford Gateway (Ferrybank/Belview)

Waterford is the principal city in the South-East Region and is the designated Gateway under the National Development Plan and the NSS. Development priorities for the City include enhancing its critical mass to allow it to perform as a Gateway city and implementing a co-ordinated approach to the development of the various parts of the city and its environs, which cross local authority boundaries.

In 2004, an integrated Planning, Land Use and Transportation Study (PLUTS) was prepared for the Greater Waterford area which set out a vision for the development of Waterford city as a Gateway^[3].  This has a key role in delivering social, economic and environmental sustainability for the City and its Environs.

Kilkenny County Council is committed to the role of Waterford City as a Gateway and in this regard has facilitated the continued development of the Waterford Environs within County Kilkenny and Belview Port which are seen as having substantial potential for enhancing critical mass.  The Council has ensured, through a separate Local Area Plan for the environs of Waterford within County Kilkenny (Ferrybank/Belview LAP 2009), that there is sufficient development capacity for the various land uses required to support the Gateway. 

Kilkenny County Council’s vision for the environs of Waterford in County Kilkenny is summarised as follows:

To ensure that the people of the Waterford City Environs in County Kilkenny enjoy a good quality of life with a high standard of education, excellent employment prospects and easy access to a full range of social, economic and cultural services.  This will be achieved through integrated planning and cooperation with Waterford City Council, all the other authorities in the region and other agencies, ensuring that Waterford and its Environs can compete internationally and maximise its potential as a gateway city serving the entire South East Region. 

The Council in its approach to developing the Ferrybank/Belview area as an integral part of the Gateway City for the South East Region is conscious of maintaining the area’s social, cultural, sporting and political identity into the future. 

Objectives:

To implement the NSS and South East Regional Planning Guidelines by encouraging developments into the designated Hub of Kilkenny and the environs of the Waterford Gateway.

To review the County Development Plan in the light of any emerging replacement to the NSS and South East Regional Planning Guidelines and vary the Development Plan accordingly if necessary.

 

3.3.3   Large Town – the Environs of New Ross

The South East Regional Planning Guidelines identified New Ross as a Large Town. According to the RPGs, New Ross was targeted for growth having regard to its strategic location 23 km from Waterford City, its capacity for growth and its potential to deliver on the core objectives of critical mass and balanced regional development. 

Development priorities for New Ross include supporting the strengthening of critical mass within the catchment of the Waterford Gateway and implementing a co-ordinated approach to the development of New Ross and its environs, which cross local authority boundaries in conjunction with New Ross Town Council and Wexford County Council.  Zoning objectives for the Environs of New Ross are set out in Chapter 12. 

Objective:

To support the strengthening of critical mass within the catchment of the Waterford Gateway by implementing a co-ordinated approach to the development of New Ross and its environs within County Kilkenny between Kilkenny County Council, New Ross Town Council and Wexford County Council.

3.3.4   District Towns

District towns are identified in the RPGs as containing a population of between 1,500 and 5,000 in the 2006 census. The RPGs included Callan, Castlecomer and Thomastown in this category.

Graiguenamanagh, while it does not exceed this 1,500 population threshold, possesses many of the characteristics of a district town as identified in the RPGs, such as being close to the population level of 1,500 and having primary and second level schools.  In the 2011 Census the population of Graiguenamanagh was recorded at 1,252, which was a 14% increase over the 2006 census figure.  It is therefore included.

In general, these District Towns have well developed services and community facilities and have the capacity to accommodate additional growth (subject to certain physical infrastructural investments).  Local Area Plans for the District Towns were adopted by the Council in 2009.  The LAPs were amended following the adoption of the Core Strategy in September 2011 and phasing of land for development was introduced in each LAP.  It is intended to commence the review of the District Town LAP’s on completion of the County Development Plan review in 2014.

Objectives:

To ensure that the District Towns will in so far as practical be self-sufficient incorporating employment activities, sufficient retail services and social and community facilities.

Promote enterprise and economic development in Graiguenamanagh in line with the Graiguenamanagh-Tinnahinch Development and Economic Study, 2006[5]

 

3.3.5   Smaller Towns and Villages

For the smaller towns and villages within the County seventeen Local Area Plans were prepared since 2003.  In addition four LAPs were prepared for the district towns bringing the number of LAPs to 21^[6].

The towns and villages where these were prepared are as follows: Ballyhale, Ballyragget, Bennettsbridge, Knocktopher, Fiddown, Freshford, Goresbridge, Gowran, Inistioge, Kells, Kilmacow, Mooncoin, Mullinavat, Piltown, Slieverue, Stoneyford and Urlingford.

Six of these plans (Ballyhale, Ballyragget, Inistioge, Knocktopher, Mooncoin and Urlingford) expired between October 2009 and July 2010 and so are no longer the statutory plans for those areas.

A further 6 Local Area Plans have expired since the adoption of the Core Strategy Variation to the County Development Plan in September 2011.  These are; Freshford, Goresbridge, Kells, Mullinavat, Slieverue and Stoneyford.

3.3.5.1   Expired LAPs

The Local Area Plans for Ballyhale, Ballyragget, Freshford, Goresbridge, Inistioge, Kells, Knocktopher, Mooncoin, Mullinavat, Slieverue, Stoneyford and Urlingford have expired.

For the purposes of this core strategy, these 12 towns will not be assigned a separate population projection, but will be considered as part of the remainder area of the county in the core strategy table. Each of these towns will be subject to a map within this Plan which depicts a settlement boundary within which development will be considered in accordance with the policies outlined below (see Figures 3.2-3.13). There will be no land use zoning objectives in these settlements.  Development proposals within the boundary will be considered on their merits against the policies and objectives contained in this core strategy and the Development Plan generally.

The expired LAP’s are no longer the statutory plans for their areas but the plans do contain a significant amount of information on natural and built heritage and other planning issues.  The expired plans will be used as supplementary guidance documents for planning purposes.  Housing development within the settlement boundary of these towns will not be subject to the rural housing policy as outlined in section 3.5.

Where a smaller town or village does not have a statutory Local Area Plan or a development boundary in existence at the time of this development plan then for development management purposes it will be considered as part of the County’s rural area i.e. there is no change in its status.

3.3.5.2   Existing LAPs

At the time of this draft development plan extant LAP’s are in place for the towns and villages of Bennettsbridge, Fiddown, Gowran, Kilmacow, and Piltown.

Towns with existing LAPs are targeted for growth having regard to their position within the settlement hierarchy of the County and the scale and character of the individual settlement i.e. commensurate with their position within the hierarchy.

As can be seen in Table 3.3, the smaller towns and villages with extant LAPs contain 13.6 hectares of undeveloped residentially zoned land within their Plans.

If an average density of 15 units per hectare is applied (6 per acre) the 13.6 hectares could yield 204 housing units which could accommodate 603 persons assuming an average occupancy of 2.96 persons per unit.

Where a smaller town or village has an extant Local Area Plan with zoning objectives then this core strategy sets out a phasing map for the land within the Local Area Plan.  These maps supersede the original zoning map within the relevant Local Area Plan, see Figures 3.14 – 3.16. 

The local authority will, if the need arises, prepare Local Area Plans or other appropriate planning framework documents for areas within the County whether urban or rural and subject to the necessary resources being available. 

 

3.3.5.3   Development Objectives for smaller towns and villages

The smaller towns and villages need to be developed in a way that strengthens their role as local service centres whilst respecting their existing character.  Achieving the right balance between encouraging development in smaller towns and villages and the scale and nature of such development is critical. It is important to ensure that new residential development in smaller towns and villages is of a design, layout, character and scale which fits well with the town or village involved and presents a high quality living environment.

The scale and density of development will depend on number of factors including the:

• Availability of infrastructure including appropriate waste water treatment facilities, water supply,
• Contribution to the enhancement of the village form by reinforcing the street pattern or assisting in the redevelopment of backlands
• Contribution to the protection of the architectural and environmental qualities of the village
• Capacity of the existing services in the village to accommodate the proposed development.

Future growth in the smaller towns and villages will be incremental, small in scale and appropriate to the size, scale and character of the village. 

Development within all the settlements of the County must be of a scale that reflects the scale and character of the particular settlement and its function within the settlement hierarchy.  Housing development within the development boundary of these towns will not be subject to the rural housing policy as outlined in section 3.4 of the Development Plan.

Objectives:

To facilitate development of housing, economic development, services and infrastructure in the smaller towns and villages of the county  at a scale and character which is appropriate in order to sustain and renew populations and services in these areas.

Development Management

• For smaller towns and villages, no one proposal for residential development should increase the existing housing stock[7] by more than 12.5% within the lifetime of the plan. 
• For villages of under 400 in population, any individual scheme for new housing should not be larger than about 10-12 units.

3.4   Core Strategy Table

The implementation of the NSS and RPGs at the County level will:

• Allow the sustainable development of rural areas of the county,
• Allow the sustainable growth of the Gateway, Hub and District Towns, smaller settlements and rural areas within the County,
• Avoid the overprovision of zoned lands,
• Avoid the potential of unsustainable leapfrogging of undeveloped lands,
• Avoid the pressure for excessive development in unserviced areas,
• Ensure that adequate land is zoned to more than meet 1.5 times the population targets set in the RPG’s.

3.4.1   Population Change

From Chapter 2 the following table outlines the population changes to be planned for within the county.

 

According to the adjusted RPGs figures above, the population increase projected for the county between 2014 and 2020 is 10,021.  The figure for 2020 is derived from applying the annual average increase predicted by the RPGs to the period between 2016 and 2020.

The population increase for the County over the Development Plan 2014 to 2020, is therefore 10,021.

3.5   Rural Settlement Strategy

The rural settlement strategy is based on the Sustainable Rural Housing Guidelines for Planning Authorities[15].  The objective of the Council’s rural housing strategy is to provide for sustainable rural communities without compromising the physical, environmental, natural or heritage resources of the county.

This broad objective is underpinned by the following detailed objectives:

• Promote the sustainable development of rural areas.
• Protect the quality and character of rural areas.
• Protect the quality of the environment, including the prevention, limitation, abatement and/or reduction of environmental pollution and the protection of waters, groundwater and the atmosphere.
• Protect features of the landscape and areas of major importance for wild fauna and flora.
• Protect the character of the landscape, including views and prospects listed in this Plan and the amenities of places and features of natural beauty or interest.
• Protect natural resources such as minerals and construction aggregates
• Protect areas where sustainable energy production is feasible, such as high lying areas where wind energy production is acceptable in principle.

Approximately 63% of the county’s population live in rural areas^[16]. The Council recognises that Kilkenny has a long tradition of people living in rural areas. It is the Council’s intention to support this in a way that is sustainable.

3.5.1   Analysis of the County

In January 2006, Variation Number 8 to the County Development Plan 2002 was adopted which gave effect to the Sustainable Rural Housing Guidelines. This policy was carried through in the County Development Plan 2008-2014.  Between January 2006 and August 2012, a total of 2,043 permissions were granted for one-off houses in Kilkenny rural areas.

At this stage, the current rural housing policy is in operation approximately 6 years.  As is evident from the number of housing applications granted over this period, the demand for rural housing remains strong.  There has been a significant decline in the number of applications lodged in the past three to four years, but this decline is thought to reflect economic realities rather than any change in housing demand.  The potential demand for rural housing remains strong, which could quickly be reflected in applications once the housing market and mortgage availability improves.

Over the period of the policy, the distribution of housing applications has been fairly equal throughout the County.  However, certain areas have been shown to be more attractive for rural settlement, particularly around the major centres such as Kilkenny and Waterford.  The trends observed over this period do however show that the policy is having the desired effect and therefore the thrust of the existing policy, with slight variations, will be retained. The changes reflect appropriate responses to changes in housing demand over the period of the previous plan.

The County can be divided into three broad categories as follows:

1. Areas under Urban Influence
2. Stronger Rural Areas
3. Peripheral Areas of Population decline

See Figure 3.17: Rural Housing Strategy Map

3.5.2   Rural Housing Policies

The following policies have been devised in order to respond to the different housing requirements of urban and rural communities and the varying characteristics of rural areas.  This is to ensure that first and foremost the housing requirements of persons with roots or links in rural areas are facilitated in all such areas, but that planning policies also respond to local circumstances whether these relate to areas experiencing economic and population decline or to areas under sustained pressure for development.

The following definitions and associated policies will be used:

Urban Area:  A city or town with a population of 1,500 or more at the time of the 2011 Census of Population.  (This definition is consistent with the CSO and the Sustainable Rural Housing Guidelines).

Urban Generated Rural Housing: Housing in rural areas sought by persons living and working in urban areas, including second homes.

Rural Generated Housing: Housing needed in rural areas within the established rural community by persons from that community or whose occupation is intrinsically linked with that particular rural area. 

Subject to satisfying good practice in relation to site location and access, drainage and design requirements, rural generated housing need should be facilitated as close as possible to its origin to ensure that strong local ties are maintained and that the applicant remains an intrinsic part of the local community.

Ribbon Development: Ribbon development: is defined as existing where there are 5 or more houses on any one side of a given 250 metres of road frontage.  If four houses exist on any one side of a given 250 metres of road frontage, it is likely that ribbon development may be created with an additional house. 

Ribbon Development is discouraged for a variety of reasons, including road safety, future demand for the provision of public infrastructure and visual impact. The Planning Authority will have discretion to allow well spaced infill ribboning to complete a particular settlement pattern only, but not where it will lead to the coalescence of separate ribbons of development or, in combination with other ribbons, lead to the over proliferation of houses in the immediate area.

Local Area: Local area is defined as within approximately 8km from the site, excluding defined urban areas.

Backland Development: Where a development (most commonly associated with but not restricted to one-off housing) is positioned loosely to the rear of another so as to create a piecemeal and disorderly form of development, which could potentially impact neighbouring residential amenities, and gives rise to negative environmental or traffic issues, such development will be classed as backland development and in general will be considered contrary to the proper planning and sustainable development of the area.

3.5.2.1   Areas under Urban Influence

It is the Council’s objective for areas of urban influence to facilitate the housing requirements of the rural community (as identified in this section) while on the other hand directing urban generated rural housing to areas zoned for new housing development in the city, towns and villages.

Areas under urban influence display the greatest pressures for development due to:

• Close commuting catchments of larger cities and towns,
• Rapidly rising population,
• Ready access to a good road network with ready access to the larger urban areas.

Providing for Urban Generated Housing need in rural areas is only allowed where provision will be in accordance with the policies for that category of rural area. Where development is urban generated, an intrinsic connection with the particular rural area will therefore have to be proven.

In areas under urban influence it is the policy of the Council to permit single houses for persons where the following criteria are met:

1. Persons who are full-time farmers or employed full-time in other rural-based activity such as horticulture, forestry, bloodstock or other rural-based activity in the area in which they wish to build or whose employment is intrinsically linked* to the rural area in which they wish to build.
2. Immediate family members of people intrinsically linked* to the area to include brothers, sisters, sons and daughters, nieces, nephews and grandchildren. 
3. Persons who are originally from the local area and wish to return to live in the local area (returning migrants).

*Persons who are an intrinsic part of the rural community:

Such persons will normally have resided a minimum of three years in a rural area as members of an established rural community. Examples would include farmers, their sons and daughters and/or any persons taking over the ownership and running of farms, as well as people who have developed strong links in the rural area and are building their first homes.  Examples in this regard might include sons and daughters of families living in rural areas who have grown up in rural areas and are perhaps seeking to build their first home near their family place of residence. The Council will also consider nieces, nephews and grandchildren in this regard.  In certain circumstances, persons who lived for substantial parts of their lives in rural areas then emigrated and who now wish to return to reside near other family members or to care for elderly family members, will be considered an intrinsic part of the rural community. 

All permission granted for rural housing within the Areas of Urban Influence shall be subject to an occupancy condition restricting the use of the dwelling to the applicant or members of his/her immediate family as a place of permanent residence for a period of seven years from the date of first occupancy.

3.5.2.2   Stronger Rural Areas

In stronger rural areas of the county it is a key objective of the Council to consolidate and sustain the stability of the population and in particular to strike a balance of activity in the smaller towns and villages and the wider rural area thereby ensuring that these areas maintain a stable population base.

In stronger rural areas, the Council will endeavour to:

• Accommodate proposals for individual rural generated houses subject to compliance with the rural housing policy and normal siting and design criteria.
• Promote the development of houses in the designated settlements and villages in the county.

It will be the policy of the Council to consider development for single houses for the following classes of persons:

1. Persons who are an intrinsic part of the rural community* (see above)

2. Persons working full-time in rural areas

Such circumstances will normally encompass persons involved in full-time farming, forestry, inland waterway or marine related occupations. It could also encompass persons whose work is intrinsically linked to rural areas such as teachers in rural schools or other persons whose work predominantly takes place within rural areas.

Planning permission granted for rural housing within Stronger Rural Areas shall be subject to a condition restricting the permission (until completed and ready to occupy) to the applicant/s only for a period of five years.  The permission can, within this five year period, be transferred to another person only with the written consent of the Planning Authority where the prospective purchaser complies with the applicable rural housing policies.

3.5.2.3   Peripheral Areas of Population Decline

In these areas it will be the policy of the Council to accommodate any proposals for individual rural or urban generated permanent residential development subject to meeting normal planning and environmental criteria.

In all cases the consideration of individual sites will be subject to normal siting and design considerations, which will include but not necessarily be limited to the following:

• Any  proposed vehicular  access would not  endanger public safety by  giving rise to  a traffic hazard,
• That any  proposed on-site waste water disposal system is designed, located and maintained in a way which protects water quality,
• That the siting and design of new dwellings takes account of and integrates  appropriately with its physical surroundings and other aspects of the natural and cultural heritage and,
• That the proposed site otherwise accords with the objectives of the development plan in general.

3.5.3   Refurbishment and Replacement Dwellings in rural areas

The Council will encourage and facilitate the appropriate refurbishment of existing housing stock and other structures in rural areas and in certain limited cases the replacement of existing dwellings subject to the criteria outlined below.

Development management standards

• The emphasis should be on the retention, refurbishment and reuse of the structure as part of the development proposal
• The scale and architectural treatment of proposed works should be sympathetic to the character of the original structure and the surrounding area including adjoining or nearby development.
• In the case of replacement dwellings, to require proof that the original structure was last used as a dwelling and was habitable so as not to invoke the policies under section 3.5.2 that applies to new dwellings. (Replacement dwellings will be subject to all usual development management criteria also) 
• In cases where retention or reuse of the existing dwelling is not technically feasible, the size and scale of any replacement dwelling should reflect the site’s characteristics and context and shall accord with best practice in rural house design.
• Where an original structure was not habitable, if an applicant can demonstrate that their proposals will ensure the sensitive restoration of vernacular and traditional buildings in the rural area, thereby respecting and maintaining the integrity and scale of the original building, and does not compromise any other development management considerations, such proposals shall not be subject to the policies in Section 3.5.2 that applies to new dwellings.(see Section 8.3.10  Vernacular built heritage)

3.5.4   Rural House Design Guidance

A Rural Design Guide[17] was produced in 2008 for County Kilkenny.  The Design Guide acts as an instrument to develop best practice in the design and siting of one-off rural housing.  Those intending to build houses in the countryside are advised to consult the Rural Design Guide for advice on site choice, local design and landscaping at an early stage in their preparations.

3.6   Implementation of Settlement Strategy

The settlement strategy outlined above will be reinforced by the Council reviewing the Local Area Plans that are already made, and preparing additional LAPs and Village Design Statements other supplementary guidance documents, where appropriate.

The settlement strategy will be underpinned by the prioritisation of investment in local infrastructure under the Council’s programmes in water services, roads and other infrastructure.

Objective: To monitor the trends in rural housing and population during the lifetime of the plan to ascertain if further rural housing policy responses are required during the plan period.

 

3.7   Retail Strategy

The County Retail Strategy confirms a retail hierarchy, as set out in Table 4.1.  This hierarchy is consistent with the Retail Planning Guidelines and the South East Regional Planning Guidelines.  The County Retail Strategy is set out in Chapter 4 of this plan.

Appendix A gives the detailed methodology used in the preparation of the draft retail strategy.

3.8   Housing Strategy

Section 94 of the Planning and Development Act 2000 (as amended) requires a Development Plan to include a strategy for the purposes of ensuring that the proper planning and sustainable development of the area provides for the housing of the existing and future populations of the County. This strategy is known as the Housing Strategy.

The Housing Strategy is set out in detail in Appendix B and is supported by Chapter 5 of this plan.

The Strategy is consistent with the National Spatial Strategy, the South East Regional Planning Guidelines and regional population targets set therein.

Objectives are included in Chapter 5 to secure the implementation of the Housing Strategy.