An Bord Pleanála Inspector's Report
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An Bord Pleanála Inspector’s Report Reference: PL04.MT0001 Title: State Foreshore Development: East Tip Remediation Project Location: Haulbowline Island, Co. Cork Applicant: Minister for Agriculture, Food and the Marine PA: Cork County Council Date of Site Visit: 18 th March 2014 Inspector: Philip Davis PL04.MT0001 An Bord Pleanála Page 1 of 28 1. Introduction This planning approval is submitted for the approval of the Board under the provisions of 181(3) of the Planning & Development Acts 2000- 2010 for the remediation of East Tip on Haulbowline Island. The request was made by RPS consultants on behalf of Cork County Council. This proposal is also subject to a waste license application to the EPA under Section 40 the Waste Management Acts 1996-2013. Foreshore consents may also be required. An oral hearing into this proposal was heard on the 19 th March 2014 at the Clarion Hotel, Cork. 2. Site Description Photographs of the site and environs are attached in the appendix to this report. Cork Harbour Haulbowline Island is a prominent feature within the Inner Harbour of Cork. The Inner Harbour is roughly the area enclosed by the headland of Ringaskiddy to the south and Cobh to the north. The area is accessed by sea from the Outer Harbour, which is separated from the Inner harbour by Spike Island with a channel on either side – the eastern channel being the main navigable entrance. Passage to Lough Mahon and Cork Harbour is through the Inner Harbour via West Passage, a channel some 300 metres wide. The area has a long maritime history with long established historic moorings at Cobh and Haulbowline Island and modern deepwater harbours at Ringaskiddy and Whitegate. The main navigation channel runs east of Spike Island, around a number of sand banks, and south of the town of Cobh. The harbour sheltered by high ground to the north (Great Island), west and south (Ringaskiddy). Settlement is highly varied with historic 19 th Century towns at Cobh and Monkstown, historic industrial and maritime facilities at Cobh, and extensive modern harbour and industrial facilities at Ringaskiddy. Within the harbour, there are two large prominent islands, both dominated by military instillations – Spike Island with its 19 th Century fort and gun emplacements and small settlement, and Haulbowline Island with historic and existing active Naval facilities and a protected basin used by naval vessels. In addition, the smaller Rocky Island south of Haulbowline has Corks only crematorium. Rocky Island and Haulbowline are connected to the mainland by two bridges. Haulbowline Island originated as a natural limestone outcrop which was used as a naval base since well before the 19 th Century. Land has been progressively reclaimed from the sea to the east (this expansion included the incorporation of a small island sometimes identified as Rat or Rabbit Island on older maps) – this area is predominantly flat and includes areas now used by the Naval Service and a flat cleared area formerly occupied by the ISPAT steel plant. A wharf partly intersects PL04.MT0001 An Bord Pleanála Page 2 of 28 the island – this is still used for mooring naval vessels and there is a small marina for leisure vessels. The eastern edge of the island, representing an area of some 9 hectares is a bare expanse of exposed reclaimed land – this land includes a grassed fenced off area used as a football pitch. The island is connected to the mainland to the south, at Ringaskiddy by way of a double one each way road bridge, which crosses over via a smaller island known as Rocky Island. The road links to the wide single lane each way N28 Ringaskiddy Road, which is the main link to the main highway network around Cork. East Tip, Haulbowline Island The approval site is a bare expanse area of reclaimed land on the east side of Haulbowline Island in Cork Harbour with as site area given as nine hectares. The East Tip area is primarily formed from waste from the steelworks, mostly various types of ash and slag. The surface is bare and undulating with little established vegetation and a number of large slag piles, in addition to an occasionally flooded depression. There is no protection from the sea along the shoreline. The underlying geology is of sand and muds – the area was originally shallow sand banks - the made ground is largely slag and other materials from the steel plant. One small section has been reclaimed as a football pitch used by the Naval Service and there is a three relatively recent buildings in use as a site office with storage, in addition to some derelict plant and machinery associated with previous uses. The site is sealed off via a high fence, and the access road can only be entered via a secured gate where the bridge meets the island. 3. Proposal The proposal is set out in detail in the public notice. In summary, it is to: • Demolish and clear existing structures (including 3 no. buildings on site) • Re-profile the site; • Construct a perimeter engineered structure (PES) and an engineered capping system with surface water drainage system – the PES would include a rock arbour on the sea side. • The provision of a public park on the site. • The provision of a playing pitch to replace the existing naval facility. • 2 no. 2-lane access roadways to provide segregated access from Haulbowline Bridge to the proposed public park and to the naval dockyard, with associated revised security arrangements. • Provision of new footpaths. PL04.MT0001 An Bord Pleanála Page 3 of 28 4. Planning Context Planning permissions – East Tip There is just one permission on file for the site – in 1997 Irish Ispat Ltd., was granted permission for the construction of a rock armour faced sea wall on the north, south and east side ( 97/4031 ). No works were carried out. In addition to this permission, the main steelworks complex was granted permission for upgrading and expansion in January 1979 (77/1907 ). Although the Board requested full details of this permission, it seems that the original plans are not available. From the description of the development it appears that the tipping on the sandbank was originally part of the permission. Development Plan Haulbowline Island is included within the area of the Carragaline Local Area Plan, but there are no specific policies or zoning designations relating to it. The site is indicated as prone to flooding. There are a number of designated EU sites within Cork Harbour, both SPA and SAC, but none directly adjoining the site. 5. Technical reports The submission for approval includes a full Environmental Impact Statement and Natura Impact Statement, including two responses to requests for further information by the Board. In addition, further information was submitted during the Oral Hearing. The submission information also includes a supporting letter and letters indicating support from the Department of Defence (as adjoining landowner) and Cork County Council. Subsequent correspondence from the applicant also outlines consultations with the OPW and NTA regarding the road access. I note that there are extensive reports, both contemporary and historic, in addition to risk assessments, technical proposals and monitoring information on the Cork County Council website and on the Department of Environment, Community and Local Government website. 6. Responses to Consultation Inland Fisheries Ireland In a letter dated 29 th November 2013, the IFI notes that there are 33 main species of fish and shellfish harvested commercially in Cork Harbour. The remediation works are welcomed, subject to the ongoing assessment of escapement from the tip, regular sampling and analysis, PL04.MT0001 An Bord Pleanála Page 4 of 28 appropriate control measures during construction works, and an assessment of the impact of the construction phase on local usage of the fishery. DoAHG A number of issues with the NIA were submitted in a letter of the 10 th December 2013. These primarily relate to the protection of cetaceans during construction works, monitoring, and issues relating to archaeology. These were addressed in subsequent correspondence between the Board and the applicant, and was also subject to further discussion in the oral hearing. Health Service Executive (North Lee) It is recommended that a complaints line is set up for the construction period. It is also recommended that an additional air quality monitoring point be located in the village of Shanbally. Health Service Executive (South) The proposals are welcomed, although it is noted that it is HSE practice to date to provide specialist public health and medical input if it requested to do so. Environmental Protection Agency. It is noted that a waste licence application was made with regard to the application. It is considered that the EIS submitted appears to be the same as submitted with the waste licence. It is considered that it appears to address the key points in relation to the environmental aspects of the proposed activity which relate to matters that come within the functions of the Agency. Cork County Council It is considered that the works are consistent with policy as set out in the County Development Plan, Local Area Plan and the draft Cork Harbour Study (the latter is non-statutory). The proposal is stated to be in accordance with the overall policy context for the area, will address a significant environmental issue affecting Cork Harbour, and is so welcomed. Office of Public Works It is noted that the site is considered to be at risk of flood. The OPW Floor Risk Management Guidelines for Planning Authorities is referenced. It is recommended that additional information be set out with reference to the outcomes from its flood risk assessment.