RE: SUBMISSION TO THE DRAFT KILKENNY CITY AND ENVIRONS DEVELOPMENT PLAN 2014-2020
- MACDONAGH JUNCTION SHOPPING CENTRE -
1.0 INTRODUCTION
Tom Phillips + Associates[1] prepared this Submission on behalf of MacDonagh Junction Development Limited, Office 2, Floor 1 St Andrew’s House, 28-30 Exchequer Street, Dublin 2.
This Submission refers to MacDonagh Junction Shopping Centre at McDonagh Railway Station on the north-eastern edge of Kilkenny City. The Submission seeks to ensure that the new Plan gives appropriate recognition to MacDonagh Junction Shopping Centre and actively supports its consolidation in the short-term so as to ensure that it maintains its vitality and viability. This is vital in commercial terms and also in terms of ensuring that the centre continues to underpin this new urban quarter in Kilkenny City and the rejuvenation of important streets in the vicinity.
The objective of this Submission is to highlight the significance of MacDonagh Junction as an economic driver within the City of Kilkenny and seek that specific wording be added to the Plan in recognition of the fact that the scheme still remains incomplete and needs further retail facilities to ensure its long-term viability. The Centre is a major employer locally with circa 500 No. employees and requires appropriate supports in the new Plan.
As currently drafted, the Plan’s retail provisions could have unintended consequences and may be used by others to oppose future retail development at MacDonagh Junction. In the absence of any explicit recognition of the role and importance of MacDonagh Junction in the Plan, such opposition might well be supported on appeal by An Bord Pleanála.
We consider this to be a very real consideration and in order to address it we simply want to have a provision in the Plan that would support appropriate retail development at MacDonagh Junction, subject to all of the normal checks and balances.
The suggested wording is proposed for the end of Section 4.7.1.2 of the Plan (relating to Edge of Centre sites) and would read along the lines of the following (or words to similar effect):
In addition to the two identified expansion sites above, recognition is also given to the role and function of the MacDonagh Junction site, which has created a new urban quarter in the City and contributed significantly to the vitality and viability of the area since the centre opened in 2007. It is envisaged that MacDonagh Junction will continue to play a key role in the enhancement of the City Centre and appropriate development at the site that contributes to the achievement of this goal, including comparison retailing, will be supported. Any new development required to underpin the Centre will be the subject of a detailed Masterplan for the lands and Retail Impact Assessment, where appropriate…”
These matters are addressed in more detail below.
2.0 ATTRACTING INWARD SPENDING TO KILKENNY - CONSOLIDATION OF EXISTING CENTRES IN THE SHORT-TERM TO SECURE COMPETITIVENESS IN RETAIL SECTOR
As set out in our Pre-Draft Submission and as recognised in the Draft Kilkenny City & Environs Development Plan, 2014-2020 and its Retail Strategy, Kilkenny City is not competing successfully from a retail point of view against the other major town in the region such as Carlow, Waterford and Clonmel.
Table 1 below illustrates the catchment of the MacDonagh Junction development, as surveyed in October 2008 compared to March 2012 and demonstrates a fall-off in the percentage of visitors from outside Kilkenny. In 2008, 45% of visitors were from outside Kilkenny, but this had dropped to 24% in March 2012.
Table 1: Percentage of Visitors from Each Part of the MacDonagh Junction Catchment Area
In such circumstance we reiterate our view that the planning focus in terms of the provision of major retail/mixed-use centres should include consolidation of existing centres in the short term, whilst pursuing longer-term prospects on identified expansion sites.
In other words, in addition to the City Centre expansion sites identified in the Draft Plan that will be brought forward in the medium to long term, we believe that planning policy should encourage appropriate new retail/mixed-use development into existing centres, such as at MacDonagh Junction, with a view to regaining and maintaining its viability and vitality.
MacDonagh Junction, whilst actively trading and contributing to the vitality and viability of this urban quarter of Kilkenny City, remains incomplete and requires further retail and other mixed-use development in order to bolster the Centre and ensure it continues to contribute appropriately to the area.
3.0 CAPACITY ASSESSMENT IDENTIFIES SIGNIFICANT COMPARISON RETAIL FLOORSPACE REQUIREMENT
We note that the capacity assessment prepared for the Kilkenny City & Environs Draft Plan states that there is an indicative floorspace requirement of 8,525 sq m comparison retail floorspace for the year 2014. This figure almost doubles to 16,502 sq m by the end of the new Development Plan period to 2020.
We also note that the figures as set out in Table 4.7 of the Draft Plan reflect vacancy at the existing MacDonagh Junction Centre of circa 1,549 sq m according to a 2010 floorspace survey. Much of that floorspace has now been let such that the main mall is now 100% let and only some secondary units remain vacant.
Whilst we acknowledge that a large portion of retail might be provided at the other identified City Centre Expansion sites in the longer-term, we submit that the existing centre at MacDonagh Junction has both the capacity and the identified need to cater for a portion of that retail floor space requirement in the immediate term.
The provision of such comparison retail at MacDonagh Junction would help to both stem retail leakage from Kilkenny City in the short-term, while bolstering the MacDonagh Junction Centre thus allowing significant spin-off benefits to surrounding streets, including John Street, which is in need of rejuvenation.
4.0 EDGE OF CENTRE SITES – MACDONAGH JUNCTION NEEDS TO BE REFERENCED TO SUPPORT DEVELOPMENT AT THE SITE
4.1 Proposed Amendment to Section 4.7.1.2 of the Draft Plan re ‘Edge of Centre’ Sites
Section 4.7.1.2 states that there are two edge of centre sites located in the City which could accommodate mixed use expansion; the former Kilkenny Mart site as identified in the 2008 – 2014 Development Plan and the Smithwick’s Brewery site, which has recently emerged for development.
There is however no mention of the other key edge of centre site – MacDonagh Junction – as referenced in both the 2002 and 2008 Development Plans as well as the Kilkenny City Centre Local Area Plan 2005 as an important site for the expansion of the City Centre and for the provision of additional retail floor space and other City Centre activities and uses. We submit that this key function must be referenced in the new Plan for the City in order to support its continued development.
MacDonagh Junction is a key economic engine for Kilkenny City and Environs. The importance of this site and promotion of its consolidation needs to be reflected in the Plan. Instead of such acknowledgement, the Draft Plan removes the key Plan supports that have enabled it to reach its current stage.
4.2 MacDonagh Junction Plays Significant Role in Rejuvenation of the Area
In this regard we reference Section 2.3 of the Kilkenny City Centre Local Area Plan, 2005 which recognises the significant role played by the MacDonagh Junction Development in bringing spin-off benefits for John Street through increased footfall along the street and a greater impetus for further retail provision on the street.
Section 2.3 – City Centre Development Strategy and Policies – of the Kilkenny City LAP, 2005 states:
“The role of John Street is expected to change and should be enhanced in the future. The approved development at McDonagh Station will result in significantly greater footfall along the street and across the river. Increased pedestrian movement along the street will give greater impetus for further retail provision on the street and to currently vacant ground floor units being brought back into use.”
[Kilkenny City LAP, 2005; page 56.]
The LAP recognises that the vitality and viability of John Street contributes substantially to the overall success of the City Centre and therefore the role of MacDonagh Junction in promoting this should not be overlooked.
It is important that MacDonagh Junction attracts further footfall to ensure both its viability and that of the surrounding area. As currently worded the Draft Plan might be construed as directing future retail development away from this proven site and towards opportunity sites. We fully support the concept of planning for such opportunity sites but we submit that existing sites (such as MacDonagh Junction, which has been developed at significant expense and is a key city employer for circa 500 No. direct jobs) should not be ignored.
4.3 Additional Wording Proposed to the End of Section 4.7.1.2 Edge of Centre
On the basis of the above, and in recognition of the need for the Development Plan to actively support existing development in the City, we propose that a paragraph be added at the end of Section 4.7.1.2 (Edge of Centre) that recognises the importance and function of MacDonagh Junction and supports further development at the site, including modest retail provision.
We suggest that such additional text might follow the section of the Draft Plan that refers to the constraints on the Smithwick’s site, as follows:
“…There are constraints to the Smithwick’s lands such as potential flooding and heritage issues. These will be major considerations and how to harness and maximise the potential of the site and the heritage assets will require an in‐depth examination and analysis (See Section 3.4.3)…
In addition to the two identified expansion sites above, recognition is also given to the role and function of the MacDonagh Junction site, which has created a new urban quarter in the City and contributed significantly to the vitality and viability of the area since the centre opened in 2007. It is envisaged that MacDonagh Junction will continue to play a key role in the enhancement of the City Centre and appropriate development at the site that contributes to the achievement of this goal, including comparison retailing, will be supported. Any new development required to underpin the Centre will be the subject of a detailed Masterplan for the lands and Retail Impact Assessment, where appropriate…”
[Proposed text in bold.]
We submit that such wording (or wording to that effect) in the Development Plan would facilitate a sustainable level of development at the site. This would attract additional footfall to the area, thus further contributing to the vitality and viability of both the Centre and its environs.
In summary, whilst we support the “consolidation and expansion of the city centre, the Bateman Quay area and the Smithwick’s site over the short, medium and long terms” we submit that MacDonagh Junction continues to play a key role in the consolidation and rejuvenation of the City Centre, which needs to be acknowledged and supported by appropriate wording in the new 2014-2020 City and Environs Plan. Such wording would help to prevent any unintended curtailment of appropriate development at the site that could arise if there is no reference in the new Plan to supporting this important edge of centre site.
4.4 The Active Promotion of Further Development at MacDonagh Junction in the Short Term Achieves Other Development Plan Goals
We note that Section 4.8.1.1 of the Draft Plan provides strategic guidance on the location of new retail development and we respectfully submit that MacDonagh Junction is ideally placed to facilitate the achievement of these goals in the immediate future. New retail provision at MacDonagh Junction can:
· Help redress the outflows of comparison expenditure in the immediate term and help to improve the attractiveness of the City’s retail offer;
· Sustain and enhance inflows of comparison expenditures from visitors to the County from neighbouring counties and further afield;
· Sustain and enhance the current strength and importance of Kilkenny City and Environs in the County, Regional and national shopping patterns;
· Deliver quality urban design outcomes;
· Ensure plan led retail development;
· Facilitate a shift toward increased access to retailing by public transport, cycling and walking in accordance with the Smarter Travel strategy;
· Secure competitiveness in retail sector by actively enabling good quality development proposals to come forward in the immediate future; and
· Sustain employment for circa 500 No. direct jobs and a significant number of indirect jobs.
In order to contribute to the achievement of these goals, we believe that as part of a plan-led approach, MacDonagh Junction should be specifically referenced in the new Plan as previously set out.
5.0 ST FRANCIS ABBEY BREWERY SITE HAS SIGNIFICANT SOCIAL AND ECONOMIC POTENTIAL
5.1 Third Level Facility Accompanied by the Proposed Research and Development Hub
The Brewery Site is a major opportunity site that could accommodate a variety of uses. Because it is so unique – in terms of size and location and heritage – we feel that the Plan should seek to encourage only those uses that have the potential to bring significant spin-off benefits, to the City in the first instance, but also to the County and the wider region.
Because of the particular attributes of this site we consider that a Third Level educational use should be actively considered.
Such a strategic use on the Brewery Site would enliven both the daytime and night-time economy and would add a new dimension to the marketing potential of the City. A Third Level Facility at the Brewery Site would also greatly support the trade in the Core Retail Area of the City Centre particularly outside of the peak summer periods.
6.0 INTRODUCTION OF INCENTIVES FOR DEVELOPMENT OF BROWNFIELD LANDS
In order to promote the development of brownfield sites in the town centre sites and assist in the completion of City streets, we believe that certain incentives should be introduced that will bring the development of these sites into fruition.
In this respect, we submit that a reduction in development levies for example should be considered.
7.0 PROMOTION OF PERMEABLE LINKAGES AT MACDONAGH JUNCTION
The position of the new Railway Station has generated the possibility for the creation of new pedestrian linkages with MacDonagh Junction, which has strong potential for engendering social urban activity and greatly improving permeability in the area.
We submit that the Draft Plan should actively seek to promote the creation of such new linkages making specific reference to the potential for improved linkages between the railway/ bus station and MacDonagh Junction Shopping Centre.
This would accord with the provision in Section 4.8.1.1 of the Draft Plan which seeks to facilitate a shift toward increased access to retailing by public transport, cycling and walking in accordance with the Smarter Travel Strategy.
Permeable linkages between the train/ bus station and the MacDonagh Junction Centre could be added to the new Plan at the end of relevant sections, as follows:
“10.2 Public Transport
The development of public transport is critical in achieving more sustainable travel patterns and a reduced reliance on the car. The local authority does not provide any public transport services but can facilitate their provision through infrastructural works.
The Council will co‐operate with the various public and private agencies responsible for transport services within the County in the provision of new services and supporting infrastructure.
The Council will also seek to encourage the creation of new permeable linkages between key public transport nodes and surrounding areas in order to improve connectivity.”
[Proposed text in bold.]
and
“10.2.2.2 Hinterland and Intercity Services
The City is presently served by a number of bus connections to various towns within the county and by a number of inter‐city services. In the main, these services set down and pick up passengers at the bus stop on Ormonde Road and at MacDonagh Junction. Bus Éireann operates from MacDonagh Railway station and at the bus stop on Ormonde Road.
Bus shelters are proposed for Ormonde Road and MacDonagh Junction. The Council will support the provision of new pedestrian linkages between MacDonagh Railway Station and the MacDonagh Junction Centre.”
[Proposed text in bold.]
9.0 SUMMARY & CONCLUSION
Recognition and Supports for Appropriate Development of MacDonagh Junction
This Submission seeks that the Kilkenny City & Environs Development Plan, 2014-2020 give adequate and appropriate recognition of the existing MacDonagh Junction Site and acknowledge the role it has played and continues to play in the enhancement of City Centre facilities and the vitality and viability of surrounding areas.
Whilst we support the development of other ‘edge of centre’ sites in the medium to long-term, we submit that there is a distinct requirement for additional retail provision at MacDonagh Junction – which remains incomplete – and that this can be provided to the benefit of the Centre, surrounding streets and Kilkenny City as a whole in the short-term.
However, appropriate wording is required in the Development Plan to support the provision of new comparison retail and other city centre uses at the site. Any such wording would help to ensure that there is a plan-led approach to development in the area, which would then be the subject of detailed assessment and analysis through the planning application process.
MacDonagh Junction requires and deserves appropriate recognition in the City & Environs Plan and we respectfully request that this recognition be provided in an amendment to the Plan that supports the strengthening and consolidation of the Centre. As an employer of circa 500 No. people, its importance cannot be overlooked.
Third Level Facility at Brewery Site
In addition, the Brewery Site has particular attributes that could lead to a development that would transcend the local scale and bring very significant benefits to the City, particularly outside the peak summer period.
Incentives for Development of Brownfield Lands and Promotion of New Pedestrian Linkages with MacDonagh Station
We submit that the Council should consider schemes, such as reduced development levies in certain circumstances, which will actively encourage the development of Brownfield lands and assist in the completion of the City’s streets.
MacDonagh Railway/ Bus Station is a key transport node in the City and promoting access to the site through the creation of new pedestrian linkages should be actively encouraged and supported in the Plan.
If you have any queries or comments with regard to this submission we would be happy to discuss this matter further or furnish the Council with any information that may be required.
