Roughan & O’Donovan N14 / N15 to A5 Link Consulting Engineers Environmental Impact Statement – Volume 1

Chapter 2

Background to the Project

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Chapter 2 Background to the Proposed Development

This chapter of the EIS sets out the background to the proposed development.

2.1 Strategic Context

County is one of the most peripheral counties on the island. The town of , which is part of the Linked Gateway of Letterkenny – designated in the National Spatial Strategy, is located in the north of . External access to this gateway is via the national primary routes N13, N14 and N15. The A5 in Northern is a key access route for County Donegal and Letterkenny and in recognition of this the Irish Government has committed £400m funding for the upgrade of this route. The authorities have made a similar commitment and this funding is now being used by the Northern Ireland Service to develop the A5 Western Transport Corridor Project (A5 WTC). This is an 85km long strategic road project stretching from Derry City to the border with the Irish Republic south of Aughnacloy in .

2.2 Existing Road Network

County Donegal is situated in the north-west of the . The National Primary Roads form the main links between the County and the rest of the Republic, the N15 to the south-west and the N14 to the south-east of Ireland. The N14 link, however, passes through Northern Ireland where it continues as the A5 from until the border is crossed again at Aughnacloy where it becomes the N2 National Primary Road.

At present the existing N14 meets the N15 at a roundabout near the centre of (refer Plate 2.1 below). A short link from here leads to the existing Lifford Bridge which carries the road over the and into Strabane. In Northern Ireland the road becomes the A38 for a short 600m stretch before culminating in a roundabout junction where it joins the A5 (refer to Figure 2.1, Volume 2).

Currently this single carriageway link carries all the through traffic on the N14, N15 and A5 and all the interurban movements between Lifford and Strabane (refer Plate 2.2).

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Plate 2.1: Existing N14/N15 Roundabout, Lifford

Plate 2.2: Existing Lifford - Strabane Bridge

The N14 / N15 to A5 Link Scheme involves the design of a road linking the A5 Western Transport Corridor in County Tyrone, Northern Ireland to the existing N15 in County Donegal, Republic of Ireland.

The distance between the junction on the A5 Western Transport Corridor and the proposed N15 junction is approximately 500m (refer to Figure 3.1, Volume 2). The scheme includes a crossing of the River Finn candidate Special Area of Conservation (part of the River Foyle and Tributaries Special Area of Conservation in Northern Ireland).

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2.3 Need for the Scheme

The strategic aim of the proposed N14 / N15 to A5 Link is to eliminate the current and future bottleneck at the border between Strabane and Lifford. The Link will increase the capacity of the crossing between the N14 / N15 and the A5 resulting in shorter journey times on the strategic route, Letterkenny to Strabane / Northern Ireland and .

The objectives of this scheme are based on the following five criteria: Economy; Safety ; Environment; Accessibility & Social Inclusion; Integration.

Economy The improved accessibility of County Donegal both through the A5 WTC and the N14/N15 to A5 Link project linking to the N15 is expected to lead to economic growth in the region, particularly in the area of tourism, as County Donegal is a leading tourist destination in the country. The scheme will also stimulate economic growth in the North West region with improved access to the linked gateway of Letterkenny/ Derry and on to the west of the county from Northern Ireland, Dublin and the south of Ireland.

Safety The completion of the N14/N15 to A5 Link project is estimated to lead to a reduction in traffic volumes on other lower standard border crossings with a consequential reduction in the number of accidents.

Environment Air Quality & Climate Pollution from traffic sources increases at low traffic speeds and during congested traffic conditions. An improvement in the road infrastructure is likely to increase traffic speeds and reduce congestion along the proposed scheme, thus leading to a considerable improvement in air quality. The air quality and climate assessment has concluded that the residual impacts of the scheme post mitigation will be negligible.

Noise & Vibration The noise environment in the vicinity of the proposed N14 / N15 to A5 Link has been characterised as being typical of a semi-rural area in the vicinity of a national road. Increases in noise levels are not predicted to warrant any specific mitigation measures.

The scheme will lead to reduced traffic speeds in the vicinity of the new roundabout on the N15 and will also move the mainline of the N15 away from a number of residential dwellings; both of which will benefit residents through lower traffic noise and vibration in the vicinity of the existing route. The noise and vibration assessment has concluded that the residual impacts of the scheme post mitigation will be negligible.

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Landscape & Visual The N14/N15 to A5 Link project is planned to tie in with the A5 WTC project in Northern Ireland. While the N14/N15 to A5 Link will have a landscape and visual impact in its own right it will still be viewed in the context of the much larger A5 WTC project. It is concluded that following mitigation the N14/N15 to A5 Link scheme will give rise to no more than a slight to moderate residual impact.

Hydrogeology, Geology & Soils The hydrogeological assessment has concluded that there are no significant hydrogeological impacts associated with the proposed Scheme and thus no specific mitigation measures are proposed.

The geology and soils assessment has concluded that post mitigation no significant residual impacts on soils or geology is anticipated as a result of the scheme.

Cultural Heritage The cultural heritage assessment has concluded that post mitigation no significant residual impacts are anticipated as a result of the scheme.

Material Assets – Agricultural Properties Three farms will be affected by the scheme and post mitigation the predicted impact is estimated to be moderate in two cases and negligible impact for the remaining case. Impacts on property (commercial & residential) are expected to be negligible.

Water Quality & Fisheries The catchment affected by this scheme is small, as is the area of road surface proposed to be drained. SuDS are proposed for the drainage systems which will eliminate the risk of pollution of the River Finn. Strict mitigation and control measures will be required during construction, particularly when work is being carried out in the flood plain, however provided adequate measures are put in place the potential risk to water quality and fisheries is expected to be minor.

The proposal is to construct a multi-span structure across the flood plain. This structure has been selected to minimize the impact on flood flows. There is expected to be a negligible residual impact on the flow of flood waters as a result of the scheme.

Ecology Following the implementation of the mitigation measures outlined in the EIS/ES, the residual impacts of the proposed scheme will be localised and primarily temporary in nature. The proposed scheme will not affect the conservation status of the various Annex listed species or the integrity of the River Finn and River Foyle and Tributaries SAC‟s. There will be a temporary impact on the wet grassland habitat within the River Finn SAC which will be allowed to revegetate naturally on completion of the works. The fragmentation of linear features including hedgerows, treelines and linear scrub along the south bank of the river will be mitigated for by landscaping design and will be reconnected in a short to medium timescale.

The accommodation of mammal passage for otter and badger under the proposed multi-span bridge and associated mammal fencing will minimise the risks of mortality for these species. The measures employed to avoid any siltation or pollution of the River Finn during the construction and operation phases of the scheme will avoid any impacts on water quality and on all aquatic species.

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Human Environment The scheme is expected to have an imperceptible to slight negative impact on the residents on the section of the N15 between the Link road roundabout and the existing Lifford roundabout. This impact is offset by the positive impacts which the scheme will have on the local and regional connectivity and the longer term improvements this will have on the economy and population.

Accessibility and Social Inclusion County Donegal is one of the most peripheral counties on the island. Economic indicators point to a region that continues to lag considerably behind other regions. The unemployment rate in County Donegal is approximately twice the national average prompting the Government to set up an Interdepartmental Group to advise on measures to address this problem. The quality of infrastructure in the county was cited as a major contributing factor. The A5 WTC will represent a major improvement in the accessibility of the county and the N14 / N15 to A5 Link will further improve connectivity between the A5 WTC and the national road network in County Donegal. The national road network serves as the primary access to the gateway town of Letterkenny and onward to northwest Donegal. This will enhance the road access to the towns of the region for people from remote areas and/or deprived communities (see Plate 2.3 below - CLÁR map for Donegal).

Plate 2.3: CLÁR Map for County Donegal

Integration Transportation The A5 WTC in Northern Ireland is being funded by the Irish Government to improve access from the northwest of the island to the main population centers of Dublin and . This scheme passes close to the border at Strabane and envisages a new strategic road link to County Donegal. The constraints at the existing A38 Lifford Bridge render this location unsuitable to accommodate a high quality road link. The

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N14/N15 to A5 Link scheme will allow maximum benefit to be had from the large investment by the Irish Government in the A5 WTC scheme.

The N14/N15 to A5 Link has been located to also accommodate future connections with other strategic roads projects in Donegal, i.e. N14 Letterkenny to Lifford/Strabane and N15 Lifford to /.

2.4 Strategic Fit and Priority

The proposed scheme is consistent and compatible with local and national policy documents including those for Northern Ireland, details of which are outlined hereunder.

All Island Infrastructure Co-Operation At a meeting of the North South Ministerial Council in July 2007, the Irish Government indicated its intention to provide £400m to help fund major infrastructure programmes in Northern Ireland, in particular the upgrading of the A5 Western Transport Corridor and the A8 Eastern Seaboard Corridor (Belfast – Larne) to status. The Northern Ireland Executive agreed in principle to taking forward these two major road projects which have been included in the Investment Delivery Plan (IDP) for Roads which was published in April 2008.

At a North South Ministerial Council Meeting on 21 January 2011 the then Taoiseach Brian Cowen again confirmed the Irish Government‟s commitment to the £400m funding. On 27th May 2011, at a speech at the annual conference of the Institute for British-Irish Studies in UCD, the current Taoiseach Enda Kenny confirmed that the new government would honour this commitment. Authorities in both jurisdictions remain committed to the A5 WTC project.

Transport 21 In November 2005, the Minister for Transport announced Transport 21, the government's capital investment framework, for developing the transport system in Ireland over the period 2006 to 2015. This framework was intended to address the twin challenges of past investment backlogs and continuing growth in transport demand. As a result of the economic downturn the Transport 21 programme has now been suspended however the improvements of links with Northern Ireland and the northwest gateway was a key priority in the programme, particularly improvements to the N2. The A5 WTC in Northern Ireland continues from the N2 and provides connectivity to Donegal. The N14/N15 to A5 Link scheme is a key element of A5 WTC ensuring that a high quality link between the A5 WTC and the existing and planned national roads network in Donegal.

Irish National Development 2007 - 2013 In January 2007, the Irish Government published Ireland National Development Plan 2007 - 2013. In relation to the National Road Network, the new NDP seeks to achieve the objectives set out in relation to National Roads in both the National Spatial Strategy and Transport 21.

The NDP sets the investment framework to be made in support of five key elements of the government‟s regional policy framework. Two of the elements of the investment framework are: County and other town structure: capitalizing on the important regional and local roles of Ireland‟s network of towns so that they can attract investment and

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act as engines of local growth within a wider revitalized and diversifying rural economy; and Vibrant and diversified rural areas: sustaining the continuing process of growth and diversification in the rural economy through enhanced accessibility, communications infrastructure and activation of local development potential in areas such as local enterprise and services, tourism and the natural resource sectors.

In considering Regional Development the NDP also sets out transport priorities and notes that:

“National and international access will be central to the competitiveness of the Gateways”.

Amongst its general goals, the NDP set out to "Decisively tackle structural infrastructure deficits that continue to impact on competitiveness, regional development and general quality of life and to meet the demands of the increasing population" and "Integrate regional development within the National Spatial Strategy Framework of Gateway cities and Hub towns to achieve the goals of economic growth in the regions and provide major investment in the rural economy."

Having regard to the National Spatial Strategy (NSS), the NDP states: "The Letterkenny-Derry Gateway is the critical Gateway for the North West region. The government will continue to pursue opportunities to underpin the development of this Gateway through cross-border co-operation under the North West Gateway Initiative. Priorities include: the implementation of an integrated spatial planning strategy for the Gateway; further improvements in road links to the region…”.

With particular reference to roads and public transport, the new NDP states that "it is vital for rural communities that weaknesses in transport infrastructure and services continue to be addressed in this NDP... The implementation over the period 2006- 2015 of the measures in Transport 21, which will be encompassed in this Plan, will contribute greatly to achieving this goal. These include the upgrading of national primary and secondary routes with particular regard to enhancing connectivity for rural areas within the Gateway Hub town catchments."

In relation to the N14/N15 to A5 Link, the NDP lays out the government‟s priorities for New Strategic Projects one of these priorities is:

The completion by 2013 of a high quality road network on the inter-urban routes linking the major population centres of Dublin, Belfast and the North West (especially the Letterkenny-Derry Gateway).

The NDP also sets out a strategy for each of the 9 Gateways and the projects indicated are seen as key to the development of each of the gateways. In relation to the Letterkenny-Derry linked Gateway and the national roads network the following highlights the need for the N14/ N15 to A5 link scheme. Enhancement of the road links to other Gateways along the Atlantic Road Corridor. Further improvements on the N2 route, in co-operation with the Northern Ireland Authorities, to greatly improve the road link to Dublin.

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The development of strategic cross-border road links generally in the will be a priority for the Government over the period of the NDP. Key strategic cross- border routes include: Dublin-Derry/Letterkenny

"The key strategic objective of the Transport Programme, consistent with the policy goals set out in the Transport 21 Programme launched in 2005, is the creation of a road network that will promote regional, national and international competitiveness....

The principal objectives of the Roads Sub-Programme will be the: Improvement of road links between the main NSS Gateways Ongoing development of the Atlantic Road Corridor from Letterkenny through Sligo, , , and Continued upgrading of road links to Northern Ireland

The construction of this scheme will be consistent with the key objectives of the National Development Plan, as it will: 1. Directly provide for improved connectivity between the Letterkenny Gateway/ County Donegal and the main international access hubs of Belfast and Dublin; 2. Improve the accessibility of the rural areas of Donegal through improved accessibility to the county generally; 3. Directly enhance cross border infrastructural links and co-operation with Northern Ireland (the N14/N15 to A5 Link is being developed in partnership with the Northern Ireland Roads Service); 4. Complement the objective of further improvements to the N2 route in consultation with the Northern Ireland Authorities in providing for a high quality link between the N2/A5 and the national roads network in Donegal.

National Spatial Strategy for Ireland 2002 - 2020 One of the strategic roles recognized by the National Spatial Strategy for Ireland, 2002-2020 includes co-operating in an all-island context by “supporting the development of the all-island economic and spatial context by improved north-south interaction, with towns such as …Letterkenny”. The NSS identifies Strategic Radial Corridors, and identifies the Corridors to the North West (x2) as requiring a “good quality road and public transport connections between Dublin and Derry, Letterkenny and the North West”. Beyond completion of the main road inter-urban links, the priorities identified include the “improved integration of the Letterkenny/Derry Gateway into an all-island transportation framework”. The construction of the N14/N15 to A5 Link will directly enhance north/south transport connections and ensure both continue to be effectively linked.

Section 3.7 of the NSS deals with Key Infrastructure requirements: "Achieving spatial balance by developing the potential of areas will depend on enhancing capacity for the movement of people, goods, energy and information between different places. Improvements in terms of time and cost can reduce the disadvantages of distance. Physical networks of infrastructure such as roads, public transport, energy and communications are of particular relevance to the NSS, since they themselves have a spatial impact and also influence the location, timing and extent of development." In achieving this objective, the NSS identifies three principal types of transport corridors, namely radial corridors, linking corridors and international access points.

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The N15/N14/N13 National Roads have been identified as Strategic Linking Corridors. Having regard to the existing Road Network, the NSS states that "improvements will be needed in the quality of connections between cities and towns which are developing as linked-centre gateways or development hubs."

The implication of the strategic transport framework for roads is; Implementation of the road investment programme under NDP is a key element in enhancing regional accessibility and thereby underpinning better regional development; Achieving more spatially balanced patterns of development suggests that improved interaction between the gateways will be required, through enhanced road links between particular cities and towns; Improvement will be needed in the quality of connections between cities and towns which are developing as linked-centre gateways or development hubs.

The construction of the N14/N15 to A5 Link scheme will improve the quality of connections between the linked Gateway of Letterkenny and Co. Donegal with Northern Ireland, Belfast and Dublin.

Border Regional Planning Guidelines The BRPG sets out as its main objective …. “to provide a long-term strategic planning framework for the development of the Border Region.”

A number of key areas have been identified as critical to the development of the Region, one of which is economic infrastructure (access and connectivity). A priority for the Border Region is the development of a clear understanding, north and south of the border, of the main transport corridors that must be developed. Integration with the Regional Development Strategy for Northern Ireland (RDSNI) is a fundamental consideration in the development of strategies for the Region.

The strategic road network in the Border Region is set out in terms of Radial Corridors and Links. The development of these routes are seen as fundamental to improving intra and inter regional connectivity and mobility throughout the Region in addition to providing access to the international hubs.

The N2/A5 is identified as a strategic radial corridor and the N14 from Strabane to Letterkenny is identified as a strategic link.

Regional Development Strategy for Northern Ireland The RDSNI was published in 2002 with the objective of “providing an overarching strategic framework to help achieve a strong spatially balanced economy, a healthy environment and an inclusive society…” The RDSNI was amended in 2008 and is currently under review.

The RDSNI recognizes the importance of strong transportation links with the Republic of Ireland and the UK and maps out its future strategic road network. Those roads of primary strategic importance are termed „Key Transport Corridors‟ and include the A5/N2 and a link to Donegal at Strabane. The 85km long A5 Western Transport Corridor project is currently being developed in Northern Ireland underlining the strategic importance of this route.

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Regional Strategic Transport Network Transport Plan 2015 The Regional Strategic Transport Network Transport Plan 2015 (RSTN TP) has been prepared by the Department for Regional Development (NI). It is based on the guidance set out in the Regional Development Strategy (RDS) and the Regional Transportation Strategy (RTS).

The RSTN TP has eight primary objectives including the need “to examine access to regional gateways and cross border links with an emphasis on improving connections from the five key transport and four link corridors”.

One such corridor identified in the RSTN TP is the Western Transport Corridor (WTC) which runs from Derry to Aughnacloy. This corridor is also an important all island route as it forms part of the main route from Dublin to the North West. At a meeting of the North South Ministerial Council in July 2007, the Irish Government indicated its intention to help fund major infrastructure programmes in Northern Ireland and in particular the upgrading of the A5 Western Transport Corridor and the A8 Eastern Seaboard Corridor (Belfast – Larne) to dual carriageway status. The Northern Ireland Executive agreed in principle to taking forward these two major road projects which have been included in the Investment Delivery Plan (IDP) for Roads which was published in April 2008.

Interdepartmental Group County Donegal has one of the highest unemployment rates in the country and this was recognised by Government when in response to ongoing job losses in the county they decided in 2005 that:

“In consultation with Minister for Agriculture and Food, Ministers to consider what can be done to expedite/improve issues such as: decentralisation to and Donegal town, roads, broadband, electricity supply, education. Also, in the context of the Good Friday Agreement, take up with the British authorities the possibility of developing complementary initiatives for the Donegal/Derry region.”

To assist in progressing the above Government decision, an Interdepartmental Group (IDG) chaired by the Department of Enterprise, Trade and Employment was established to report to the Minister for Enterprise, Trade and Employment.

In their report, the IDG noted the following: the unemployment rate in Donegal was approx. twice the national average “….. Government intervention, in particular through a commitment to fund the necessary infrastructure …………, is required if the fundamental development needs of the county are to be addressed.” One of the region specific challenges identified by the IDG was “The critical need to enhance longstanding infrastructural deficiencies of the county, which are restricting both indigenous economic development and the ability to attract foreign investment to Co Donegal.” “Proposed infrastructural developments for Donegal and the North West in general - particularly road and air access – which will ease access to and within the region will be of significant benefit to the tourism industry in Donegal.”

“Because of its peripheral location, access to Donegal from Dublin and Belfast is considered, in particular by IDA Ireland, to be the single biggest impediment to

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attracting foreign direct investment to the county. This concerns both road and air access. Unlike almost all other counties, Donegal has no rail network thus increasing the importance of the road network, not just to and from the county but also within the county.”

2.5 County and Local Planning Policy

County Donegal Development Plan 2006 - 2012 The County Donegal Development Plan 2006-2012 sets out objectives and policies for National Routes in the county which include the following objectives: To provide good access to the locations of major economic activity. To remove bottlenecks and to reduce journey times and journey variances.

At policy number TC1: Strategic Road Network Development the Plan provides a number of measures through which the strategic road network development in the county will be progressed by the Council one of which is by: Improving and safeguarding the national roads network in the County by reserving the routes and acquiring the lands necessary to implement the National Roads Programme as outlined in Appendix A Development Guidelines and Technical Standards.

In Appendix A a number of specific road needs are identified which include the N14/A5 Manorcunningham to Strabane project which includes a new cross border link at Lifford.

West Tyrone Area Plan 2019 The preparation of the West Tyrone Area Plan 2019 (The Plan) for the and Strabane Districts is part of an on-going programme by the Northern Ireland Planning Service to provide full coverage of contemporary plans for all Council areas in Northern Ireland.

This Plan is currently at „Issues‟ stage and a consultation paper has been published. As such there is as yet no substantive policy. However the Issues Paper recognises Strabane as a gateway to Donegal and confirms the importance of cross border communications as being crucial to the economy.

Lifford Local Area Plan 2007 - 2013 The Lifford LAP sets out policies and objectives to ensure the proper planning and sustainable development of the area. Section 2 refers to the Plan‟s aims and objectives, where Specific Objective (SO) 7 of the plan states “to protect the proposed N14/A5 (Manorcunningham - Lifford/Strabane) Realignment”.

As part of the Landuse Zoning Objectives of the Lifford LAP, the N14 Lifford/Manorcunnigham draft realignment corridor “will remain protected for the delivery of the National Primary Road” and the following specific planning policies are in place to support this:

RT3 - To prohibit all new accesses onto the proposed N14/A5 Manorcunningham to Strabane, National Primary Route Realignment.

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RT4 - To maintain the development free buffer corridor as indicated on the land use map, located alongside the N14 Manorcunningham – Lifford/Strabane Draft Realignment Corridor.

Strabane Area Plan 1986 – 2001 The Strabane Area Plan was adopted in 1991 and despite being out of date remains in place as planning policy covering the Strabane District Council Area.

With respect to Transportation it is a broad policy of this plan „to improve and extend the existing roads system throughout the District to facilitate the safe and convenient movement of people and goods’.

The statement on the Transportation Strategy recognises the Omagh-Strabane- Londonderry as being of strategic importance to the District and the whole region and as such improvements to this route are recognised as critical.

2.6 Development of the Scheme

In parallel to the development of the N14 and N15 scheme proposals in the Republic of Ireland, the Roads Service in Northern Ireland has been developing the planning and design of the A5 Western Transport Corridor.

As a consequence of the development of the above three schemes it was perceived that any improvement would be greatly enhanced by upgrading the link between the N14 and N15 in Lifford and the A5 in Strabane.

A Constraints Study was undertaken by Mott MacDonald on behalf of Donegal National Roads Design Office. Subsequently a Route Selection Report, published in April 2006, examined 8 possible crossing points. This assessment resulted in the selection of Route Option Link 4 as the preferred crossing point as it scored the highest of the eight options in environmental, economic and engineering impacts. This route linked in to the existing A5 Strabane Bypass considerably to the north east of the current proposed crossing point.

The subsequent development, route selection and preliminary design of the A5 Western Transport Corridor (A5 WTC) directed the need to re-examine the route options assessment. The location of a roundabout on the A5 WTC directly south of the proposed N14/N15 roundabout has had the outcome of dictating the proposed crossing point. Any other crossing point and link road would have substantially greater impact and would not be acceptable to the Department for Regional Development, Roads Service, Northern Ireland.

Roughan & O‟Donovan Consulting Engineers were appointed in August 2010 to complete the Design and the Environmental Impact Assessment Report and Statutory Processes for the N14/N15 to A5 Link.

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