An Bord Pleanála Inspector’s Report Ref.: PL04G.ZD2012 Development: Monard Strategic Development Zone (SDZ) Planning Scheme Location: Monard, Rathpeacon, Co. Cork. Development Agency: Cork County Council Appellant(s): Monard Concerned Residents Group Scoil Náisiúnta Mhuire Ráthpéacáin (Rathpeacon NS) Board of Management Tadhg O’Leary & Jer Buckley Patrick J., Anne, Padraig, Colm, Colette & Brendan Sheehan Monard Community Association O’Flynn Construction Tim and Dan Quill Observers: An Taisce Patrick O’Sullivan Tom O’Byrne Prescribed Bodies: The Office of Public Works Health Service Executive (South) National Parks and Wildlife Service Bord Gais Energy Transport Infrastructure Ireland National Transport Authority PL04G. ZD2012 An Bord Pleanala Page 1 of 244 INSPECTOR: Robert Speer Date of Site Inspection: 20th November, 2015 Date of Oral Hearing: 24th - 27th November, 2015, 2nd December, 2015 & 14th January, 2016 PL04G. ZD2012 An Bord Pleanala Page 2 of 244 Contents: 1.0 Introduction 2.0 The Monard Strategic Development Zone 3.0 Site Location and Description 4.0 Relevant Planning History 5.0 The Planning Scheme 6.0 Appeals 7.0 Observations 8.0 Response to Grounds of Appeal 9.0 Policy Context 10.0 Oral Hearing 11.0 Assessment 12.0 Conclusions and Recommendation PL04G. ZD2012 An Bord Pleanala Page 3 of 244 1.0 INTRODUCTION: 1.1 This report relates to 7 No. appeals lodged under Section 169 of the Planning and Development Act, 2000, as amended, against the adoption of the Planning Scheme for the Monard Strategic Development Zone pursuant to the provisions of Section 169(4)(b) of the Act. In this respect it should be noted that although a Draft Planning Scheme for the Monard Strategic Development Zone was published by the Development Agency in April, 2015, on the basis that Cork County Council decided by resolution on 27th July, 2015 not to make a formal decision on the Draft Planning Scheme under the provisions of Section 169(4) of the Act, the Scheme was deemed to have been made on 11th August, 2015 by way of a legislative ‘default mechanism’. 1.2 By way of background, the Board is advised that the Monard Strategic Development Zone Planning Scheme (August, 2015) provides for the proposed development of a new town at Monard as part of the wider strategy envisaged in the Cork Area Strategic Plan, 2001-2020 (CASP) which seeks to ensure a more sustainable form of spatial development within the Cork area through a series of measures, including the strengthening of the City Centre and the development of a major growth corridor in the northern and eastern part of the Metropolitan area between Blarney, Carrigtwohill, Cobh and Midleton, based upon and linked with the upgrading and re-instatement of the rail lines. Central to this strategy is the upgrading and better utilisation of the rail system, and the location of development to avail of the rail infrastructure. Accordingly, the proposed new town of Monard will be located along the suburban rail line (Mallow – Cork) and it is envisaged that it will accommodate approximately 5,000 No. new homes and a population of c. 13,000 No. 1.3 Having regard to the scale and long term nature of the scheme which is for a new strategic settlement on largely undeveloped lands, the nature of the concerns raised in the submitted appeals, and the scope of the reasons for refusal in the Board’s previous determination of ABP Ref. No. PL04G.ZD2008, the Board considered that an oral hearing was necessary and justified in order to explore the planning matters arising in respect of this case. Accordingly, an oral hearing was held in the Metropole Hotel, MacCurtain Street, Cork City, on 24th - 27th November, 2015, 2nd December, 2015 & 14th January, 2016. 1.4 An inspection of the SDZ lands was undertaken on 20th November, 2015 and a series of photographs taken on those dates is appended to this report although PL04G. ZD2012 An Bord Pleanala Page 4 of 244 these should not be construed as amounting to a comprehensive photographic survey of the lands in question. 2.0 THE MONARD STRATEGIC DEVELOPMENT ZONE: 2.1 The Monard Strategic Development Zone was established on 25th May, 2010 pursuant to the Planning and Development Act, 2000 (Designation of Strategic Development Zone: Monard, Cork County) Order, 2010 (S.I. No. 540 of 2010) with the designation by Government having been made in response to a proposal by the Minister for the Environment, Heritage and Local Government upon which the opinion was formed that the specified development was of economic and social importance to the State. In this respect the specified development in question is described in the Statutory Instrument as follows: ‘residential development and the provision of schools and other educational facilities, commercial activities, including office, hotel, leisure and retail facilities, rail infrastructure, emergency services, and the provision of community facilities as referred to in Part III of the First Schedule to the Act, including health and childcare services’. 2.2 The S.I. further states that the site was designated for the establishment of a strategic development zone for the development specified following consideration of its scale and configuration, the efficient use of public investment in infrastructural facilities, including public transport, water, waste water and roads, and as the development of the site will help to give effect to the policies of the Regional Planning Guidelines for the South West Area 2004-2016 and the Cork Area Strategic Plan jointly adopted by Cork City Council and Cork County Council. 2.3 The Statutory Instrument also specified that the development agency for the purposes of Section 168 of the Act was to be Cork County Council. The area covered by the SDZ designation is shown on a map appended to the Statutory Instrument. 3.0 SITE LOCATION AND DESCRIPTION: 3.1 The Monard Strategic Development Zone is located to the northwest of Cork City, approximately 4km northwest of Blackpool and 4km northeast of Blarney village, and extends to an overall site area of 391 hectares / 966 acres. It is predominantly characterised by undeveloped ‘greenfield’ agricultural lands PL04G. ZD2012 An Bord Pleanala Page 5 of 244 interspersed with clusters of one-off rural housing and individual farmsteads although there is also an existing distribution / warehouse operation located on the south-western part of the lands which is accessed off the Old Mallow Road. The overall extent of the lands in question is generally defined by the main Cork – Dublin railway line (which runs along the southern boundary of the lands), the Whitechurch Road to the east, and the Blarney River Valley to the west, although the Old Mallow Road effectively serves as the westernmost limit of the built-up area of the proposed new town development. Access to the SDZ lands can be obtained from the south primarily via the Old Mallow Road which extends north- westwards from the N20 (Cork – Limerick) National Primary Road that runs between Blarney and Monard, although alterative routes are also available via Rathpeacon Lane and Sheehan’s Lane. The northern extent of the SDZ lands can be accessed via the Old Mallow Road and the Whitechurch Road whilst access is also available to some extent from the west via Rosses Lane which extends from the N20 National Road. 3.2 The SDZ comprises a total of 23 No. separate landholdings, some of which are of considerable size, and the Planning Scheme also states that there are approximately 70 No. existing dwelling houses within the developable area. Notably, the prevailing settlement pattern in this rural area is concentrated along the existing poorly aligned road network, with particular reference to Boreen Dearg / Monard Boreen and Kilcronan Lane which respectively traverse the southern and northern extents of SDZ lands. 3.3 Topographically, the area is characterised by low hills and shallow river valleys with the upper parts of same forming part of the backdrop to Cork City. The lands generally rise on travelling eastwards from the Blarney River Valley to an approximate elevation of 140m on the eastern side of the SDZ although there is also a notable fall from north to south towards the railway line. A trunk transmission gas main runs east-west across the southern part of the site whilst a 110kV overhead electricity line extends northwest-southeast through the eastern extent of the lands. 4.0 RELEVANT PLANNING HISTORY: 4.1 On Site: ABP Ref. No. PL04G.ZD2008. Was determined on 4th September, 2013 wherein the Board refused to approve the making of the “Monard Strategic Development Zone, Draft Planning Scheme” for the following reasons: PL04G. ZD2012 An Bord Pleanala Page 6 of 244 • Notwithstanding the long-term commitment of Cork County Council to the development of land at Monard as a new town, having regard to the lack of certainty in relation to essential elements underpinning the proposed planning scheme which are not within the control of the applicant, in particular the delivery of future national road infrastructure and operational railway links, it is considered that in the absence of these critical transportation elements, the development of the strategic development zone would be reliant on limited improvement of the local road network only, which would give rise to serious traffic congestion in the surrounding area, would endanger public safety by reason of traffic hazard and obstruction of road users. The proposed planning scheme would, therefore, be contrary to proper planning and sustainable development. • The purposes of the Monard Strategic Development Zone, as designated under statutory instrument, is to establish a zone for residential development, schools, commercial development, rail infrastructure and community facilities. These developments are to be provided for by the efficient use of public investment in infrastructural facilities, including public transport, water, waste water and roads.