Waterford City Development Plan 2007-2013
Proposed Variation No. 3
1. THE VISION
“Waterford will realise its potential as an internationally competitive City and the
premier settlement within the South-East Region. The City will provide a range of
employment and educational opportunities and a choice of residential, retail,
leisure, tourist and cultural facilities, where the principles of quality of life,
environmental enhancement, economic development and social equity will be key
drivers of the City’s future”1
2. PREAMBLE
This is proposed Variation Number 3 of the Waterford City Development Plan 20072013. This proposed variation is to facilitate the Core Strategy requirements introduced
by the Planning and Development (Amendment) Act 2010 and as per the revised
population projections as set out in the Regional Planning Guidelines for the South-East
Region 2010-2022 (RPGs) and to ensure that the Development Plan is consistent as far as
practicable with national and regional development objectives set out in the National
Spatial Strategy (NSS) and the RPGs.
Waterford City Development Plan 2007-2013 Core Strategy
3. CORE DEVELOPMENT AIM
Waterford City aims to fulfill its role as the Gateway economic driver of the South East
Region, by developing in a balanced, sustainable, transport friendly and attractive way
with good quality of life and opportunities for all of its citizens.
4. INTRODUCTION
The Planning and Development (Amendment) Act 2010 (P&D 2010) amends Section 10
of the Planning and Development Act 2000 (P&D 2000) by introducing the requirement
for each Planning Authority to prepare a Core Strategy. It states that a “core strategy
shall show 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 and regional planning guidelines”.
The Strategy herein reviews the current City Development Plan 2007-2013 in terms of
demonstrating its consistency, as far as practicable, with both the National Spatial
Strategy (NSS) and Regional Planning Guidelines (RPGs).
1
As articulated in Waterford Planning, Land Use and Transportation Strategy 2004-2020 (PLUTS)
1
5. CITY IN CONTEXT
The Waterford Planning, Land Use and Transportation Strategy 2004 -2020 (PLUTS),
sought to prevent unsustainable development trends occurring in and around Waterford
City and its environs by providing a strong planning framework for the future
development of the area. The PLUTS Strategy provides the strategic planning
framework for the current City Development Plan, which advances a spatial development
framework that includes the “compact city” concept.
Figure 1 National Spatial Strategy – South East Region
The PLUTS Strategy is consistent with the policy direction and requirements of the
National Spatial Strategy. It supports and fosters balanced spatial development at a
national, regional, city and local level. A key element of the Strategy is the achievement
of critical mass to allow the City to reinforce and develop its role as the economic driver
of the South-East Region of Ireland. Consequently, achieving critical mass in the City is a
key aim of the Core Strategy herein.
2
6. ACHIEVING CRITICAL MASS
The City’s Gateway designation under the NDP and NSS places large growth expectations on the
City, particularly with regard to acquiring critical mass in terms of economic and social
development. Critical mass has been identified in the NSS as an essential prerequisite for the
formation and designation of Gateways. It also implies an explicit recognition of the hierarchical
structuring of settlement patterns and the pre- eminence of Cities as drivers in their sub regional
economies.
Accordingly achievement of critical mass is of paramount importance for the City in order for it
to fulfill its role as a magnet for investment and perform as the main economic driver of the South
East region economy.
Considerable capital investment in infrastructure is required to make the City attractive to
investment and deliver economic growth. In this regard a number of major projects have been
delivered for Waterford recently, including the M9 Motorway, the N25 Waterford City By-Pass,
the East Waterford Water Supply Scheme and completion of the city’s Waste Water Treatment
Plant. The transport facilities of Waterford Port and Waterford Regional Airport have also been
significantly enhanced. Further significant investments have been made in such as broadband
infrastructure, educational and health infrastructure as well as substantial investment in the
development of tourism product and social and community infrastructure. This improved
infrastructure finally puts Waterford City in a position to perform its role as a Gateway city in a
more robust fashion. The level of investment is such that achieving the population targets set out
in PLUTS will not require significant further investment
7. PERFORMANCE AS A GATEWAY CITY
The recently-undertaken review of the Regional Planning Guidelines recognized Waterford City’s
poor performance as a Gateway. Across a number of indicators outlined in the Gateway
Development Index, Waterford scored poorly, and regularly scored last, when compared with
other gateways and cities. In particular, Waterford City’s performance in areas such as
population, enterprise and employment, knowledge and innovation as well as transport and
connectivity were well below national average.
Some of this performance can be attributed to the late arrival of much of the critical infrastructure
outlined above. Other reasons are the lack of a University in the City, traditions of employment,
general social mix and educational attainment. However, a significant factor is also the lack of
Critical Mass alluded to regularly in the NSS and the RPGs, some of which can certainly be
attributed to unsustainable growth in some of the region’s non-gateway towns. The attainment of
critical mass is vital to the City performing on an equal par with the other gateway cities, leading
to more balanced regional development.
Achieving population growth is another key contributor to achieving critical mass. Securing
same implies additional housing, In the context of the NSS, critical mass also implies a
recognition of the need for Gateways to accommodate a range of housing types capable of
embracing the often diverse needs of its residents at different stages of their life cycles and
incomes. Accordingly a variety of housing type and tenures should be available to meet the
needs of an expanding population base. To avoid further leakage to adjacent towns the City must
offer choice in both location and house type.
3
8.
CONSISTENCY OF THE CURRENT DEVELOPMENT PLAN WITH THE
REGIONAL PLANNING GUIDELINES AND WITH THE NATIONAL
SPATIAL STRATEGY
The Development Plan is largely based on the PLUTS strategy, which, in turn, is based on
the key principle enshrined in the National Spatial Strategy and in the Regional Planning
Guidelines, which is the development of Waterford City as a substantial and robust Gateway
City, thereby contributing to the achievement of the key objective outlined in the NSS i.e.
balanced regional development
Across almost all objectives, the Development Plan is consistent with the objectives outlined
in the NSS and in the RPGs. This is particularly true with regard to those objectives which
refer to:
Regional Development
Employment and Economic Opportunity
Infrastructure
Communications and Energy
Community and Social
Heritage and Environment
There are two specific areas where the Development Plan and the RPG objectives are not
consistent:
Population and Housing
Flood Risk Management
8.1 POPULATION AND HOUSING
The population projections outlined in the Development Plan assumed a relatively robust and
on-going demand for housing. The projections, based on the PLUTS projections and on CSO
assumptions envisaged an increase in the population of the City of 5,000 between 2007 and
2013 i.e. from 45,748 to 51,000..This predicted growth in population, combined with the
existing unresolved social housing demand, resulted in a predicted demand for in excess of
3,700 units over the period to 2013.
The economic down-turn has meant a downwardly revised set of projections for population
growth and these figures are enshrined in the RPGs. Actual population in 2011 as per
recently published preliminary Census figures is 46,747 This also means a significantly
diminished demand for, and supply of, housing units.
Settlement
Waterford City
Population increase
2010-2016
(Based on Minimum
Pop Targets)
2,500
4
Total Number of
Residential Units
required over period
2010-2016
961
8.1.1 Population Performance
Critical mass of population is a fundamental pre-requisite for a City to become attractive
to new development. Population growth in the last inter census period for Waterford City
has been unspectacular at 2.6% (2.4 % lower than the previous census period ’96- ’02)
which is also significantly below the average growth levels for other relatively large
urban centres within the region
Population Change 2002-2006 Regional Local Authority Areas
2002
2006
Actual
Waterford City
44594
45748
1154
South Tipp
79121
83221
4100
Waterford Co.
56,952
62213
5261
Kilkenny
80339
87,558
7219
Carlow
46014
50349
4335
Wexford
116,596
131749
15,153
Region Total
423616
460838
37222
%
2.6
5.2
9.2
9.0
9.4
13.0
8.8%
8.1.2. National and Regional Population Targets
The Regional Planning Guidelines Review, Gateway and Hub Population Targets, issued
by the DoEHLG in October 2009, originally sets out population targets for the State and
each of the regions up to 2022. These targets have now been subsumed into the Regional
Planning Guidelines. In accordance with the guidance in the document, the South
Eastern Regional Authority (SERA) allocated the Regional population targets at County,
Gateway and Principal Town level within the South East Region. The targets for the
Waterford City are set out in Table hereunder with the 2013& 2019 figures constitute
disaggregation of 2016-2022 target figures.
Population Targets Waterford City 2006-2022
Year
Population
Increase
2006
45,748
2010
+2752
2013
(+1250)
2016
+1250
2019
(+2000)
2022
+2000
Total
+9252
Source: Regional Planning Guidelines for the South East Region 2010-2022
5
Target
48,500
(49,750)
51,000
(53,000)
55,000
8.1.3. Housing
The City Development Plan housing strategy main aim is to ensure that sufficient land is
zoned for a variety of residential types, sizes and tenures. As the existing housing
strategy does not reflect the revised population and housing projections of the RPG’s, it is
appropriate to revisit the housing strategy and the associated housing land requirement in
light of these new targets. While the appropriate vehicle for undertaking such a review
would be under the statutory development plan review process, the Core Strategy herein
provides an interim picture of the existing statutory development plan’s conformity with
the RPG’s housing land requirements, pending the formal review of the housing strategy
as part of the City Development Plan review commencing June 10th 2011.
The impacts of the recession on the housing construction sector in Waterford City has been
significant. Notwithstanding that in excess of 2000 residential units have been granted
planning permission under the current City Development Plan period to date, circa 900
residential units have only been completed in the last four years. There are some unfinished
housing estates in the City. However, the city recorded the second lowest level of
unfinished estates in the Country with 57 units unfinished.
8.1.4. Housing Land
The following is a table of house completions in the City over the last four years
HOUSE
COMPLETIONS
2007
440
2008
297
2009
146
2010
110
Historically, housing densities in Waterford City have been low compared with the other
Gateway cities. This trend is dictated by architectural constraints which impede the
development of high density City Centre housing, increased suburbanisation and a
traditional aversion to apartment-style living.
Residential permissions since 11th June 2007
Zoning &
No. of
No. of
nature of
Residential permitted
Of which
residential
Planning
residential
Apartments
development Permissions units
Residential
Zoning- Major
residential
permissions(
>10 units)
Mixed use
lands- Major
residential
permissions
(>10 units)
Of which
Dwellings
Avg. Net
Density
where
relevant
18
1088
180
908
23/ha
9
714
621
93
50.05/ha
N.B. calculation excludes replacement dwellings and or change of house type planning permissions
6
Density levels, as evidenced from the table above have remained relatively low at 23 ha. The
levels on Mixed Use land have been better at circa 50 units to the hectare.
As part of the preparation of this Core Strategy the remaining uncommitted housing land in
the City was quantified (GIS based analysis) at the end of March 2011. Uncommitted land is
classified as housing land with no existing permissions thereon.
Quantification of uncommitted housing land Waterford City 2007 & 2011
Location
June 2007
Remaining in March
2011
Opportunity Sites
(BrownField)
56.74 ha
44.95ha
Mixed Use Zoning
( Greenfield) &
General Business
66.57 ha
12.612 ha
infill opportunity
areas
Residential Zoned
Land
334.95 ha
202.83ha
Low density
residential zoned
land( min 20/ha)
78.99 ha
78.99 ha
8.1.5 HOUSING LAND REQUIREMENT 2011-2013 Remaining Plan period
Population increases imply increased housing requirements. The findings of a recent assessment
of the remaining uncommitted housing land capacity with in the city are set out in Table 9
Table 9- Remaining zoned housing land capacity Waterford City as of March 2011
Location
March 2011
Unit Capacity
Pop. Equivalent (2.6
avg. hsed size)
Opportunity Sites
44.95ha
@38% of land area
(BrownField) 50/ha
(854units)
2220
Mixed Use Zoning (
12.61ha
@36% of land area
Greenfield) &
(227 units)
590
General Business
infill opportunity
areas ( avg 50/ha)
Residential Zoned
202.83ha
7099 units
18457
Land ( @ min 35/ha)
low density
78.99 ha
1580 units
4108
residential zoned
land( avg. 20/ha)
TOTAL
339.38 ha
9760 Units
25376
7
The housing yield for opportunity sites and mixed use zoned land of 38% and 36 %
respectively are average yields which have had regard to the mixed use objectives for
these areas, their respective site locations, proximity to public transport, topography and
character of the area. Yields for opportunity sites in the City range between 10%and 70%
depending on location etc. Yields for greenfield mixed use zonings range between 0%
and 80% also depending on location, character of area etc.
Given that the remaining housing land capacity is capable of accommodating a
population equivalent of 25376 based on National Guidance on residential density, while
a population increase of 9252 persons is projected for the City up to 2022 a review of the
existing phasing implicit in the PLUTS is warranted.
The RPG’s have projected ( see table 10 below) total zoned housing land requirement for
Waterford City covering the period 2010-2016 at 72hectares, whereas there is currently
339.38 ha uncommitted housing land remaining in the City.
Table 10 - Waterford City remaining zoned housing land capacity versus projected
housing/zoning requirement as per RPG’s
Remaining Total
RPG projected
RPG project total
zoned housing land total zoned housing zoned housing land
2011
land requirement
requirement 20112010 -2016
2013
Hectares
339.38ha
72ha
36ha
Unit capacity
9760
961 units
480 units
Population
25,376
2500
1250
equivalent
The 72 hectare figure does not coincide with the current development plan period 2007 2013, and following a disaggregation of the RPG figures to the remaining lifespan years
of the current City Development Plan 2011 -2013 a remaining housing land requirement
of 36 hectares would apply. Based on a projected population growth of 1250 persons over
this period, approximately 480 residential would be required to meet the demand of the
envisaged population increase.
8
8.1.6 STRATEGIC RESPONSE
While the Development Plan must take into account changed economic circumstances and the
resultant changes in housing supply and demand, it must do so in a way which must also
acknowledge the need for the City to achieve the critical mass which will allow it to perform as a
Gateway City. It will do this by:
 Supporting the strengthening of existing neighbourhoods, and the development of new ones, as
strategic development areas
 Supporting the development of housing lands on a phased and sequential basis
The prioritized sequence of supported development will be:
 Lands which are appropriately zoned and which are fully serviced
 Lands which are appropriately zoned and have ready access to services
 Lands which are appropriately zoned but which are currently unserviced
Priority will also be given to those lands which are contiguous to already-developed lands and to
those lands which, as defined by Flood Risk Assessment, are least vulnerable to potential
flooding and least demanding on the need for investment in flood-related infrastructure. A critical
objective of this strategy will also be to stem population/ housing leakage from the City by
providing housing choice to meet market demand.
It is important to recognize that Waterford City now has significant spare capacity in its water
infrastructure which can support population growth without any further investments in capital
works and, therefore, growth will not impinge negatively on the Water Services Capital
Programme. This is also true for other areas of investment. While the strategic approach will
emphasise this phased and sequential approach, the mapping of these lands will be undertaken as
part of the new Development Plan which process will begin in June of this year. In
recommending this approach regard is had to the prudent and restrained approach adopted in the
current and previous development plans which has resulted in Waterford City avoiding any
significant number of unfinished estates or unoccupied housing units which will enable
development to resume earlier in Waterford City than in other areas of the country.
There continue to be a number of constraints which will impede development in Waterford City
such as the historical, architectural and archaeological importance of the City Centre, the City’s
proximity to an SAC, and the fact that the City is bisected by a wide River Estuary, which can be
prone to flooding. Other constraints are the lack of University status for Waterford Institute of
Technology and limited investment in new rail services and the need for further investment in
Waterford Regional Airport. However, the City has also significantly improved infrastructure and
services which can support a substantial increase in population. The main improvements are listed
at Appendix 1.
8.2 FLOOD RISK MANAGEMENT
Flooding events have become more pronounced in Ireland in recent years. Waterford
City, given its location on tidal estuary of the River Suir, is susceptible to both river and
tidal flooding and sometimes a combination of both when certain meteorological
situations arise.
9
8.2.1 STRATEGIC RESPONSE
Waterford City Council has been pro-active in meeting its flood risk management
responsibilities. The Waterford City Flood Alleviation Scheme is well advanced. This
OPW scheme was designed to cater for a 1:200 year flood for both Suir and John’s
Rivers. Financed by the OPW, this scheme is divided into five phases. Construction
began in 2009 and two phases have been completed. The final three phases will extend
the flood defences along John’s River to the Tramore Road and are currently at design
stage. The decision on the Part 10 for the remaining phases was received in April 2011
and subject to funding work will commence by Spring 2012.
Also the OPW’s initial pilot study ‘River Suir Catchment and Flood Risk Assessment and
Management Study’ (CFRAM) and its associated River Suir Catchment Flood Risk
Management Plan (CRFMP) are nearing completion (due to be finalized in November
2011). Waterford City Council was a participating local authority in the study and
preparation of the subsequent Plan. The CFRAM studies are developed to meet the EU
Directive requirement on the assessment and management of flood risks which was
adopted in October 2007 (the ‘Floods Directive’). This directive was transposed into Irish
law in March 2010 (S.I. No. 122 of 2010). The ‘Floods Directive’, which is aimed at
reducing and managing flood-related risks to human health and life, the environment,
cultural heritage, economic activity and infrastructure, links closely to the
implementation of the Water Framework Directive, which also requires EU Member
States to develop a preliminary Flood Risk Assessment including flood risk maps for all
river basins/catchments.
Notwithstanding the River Suir CFRAM Study, in November 2009 Mr. John Gormley,
T.D., Minister for the Environment, Heritage and Local Government published statutory
planning guidelines entitled ‘The Planning System and Flood Risk Management
Guidelines for Planning Authorities’ which is aimed at providing a more consistent,
rigorous and systematic approach to the avoidance and minimisation of potential future
flood risk and to fully incorporate flood risk assessment and management into the
planning system. The guidelines require flood risk assessment to be undertaken.
In accordance with these guidelines Waterford City Council is currently in the process of
undertaking flood risk assessment of the City and the preparation of associated flood
zone maps. Flood Risk Assessment will form part part of the review of the forthcoming
City Development Plan which commenced on June 10th 2011.
The outcome of this assessment will contribute to the prioritisation of lands for
development.
10
9. REVIEW OF CURRENT CITY DEVELOPMENT 2007-2013
Nowithstanding the disparity in the figures between the remaining uncommitted housing
zoned land in the current City Development Plan and the projected Housing Zoned land
requirement of the RPG’s which is based on minimum population growth, given that the
formal review period of the current Waterford City Development Plan commences June
10th 2011, it is appropriate to defer the review of housing land zoning and or any
necessary revised phasing to the formal Development Plan Review period.
10. CORE STRATEGY POLICY
It is the policy of the Council to:














Ensure that all policies comply with RPG population targets
Meet the housing needs of the Citizens of Waterford in an environmentally
sustainable manner and support the neighbourhood strategy.
Ensure that housing development takes place sequentially in accordance with the
priorities laid out in Section 8.1.1 above
Ensure all development takes place in tandem with the provision of adequate
infrastructure and services;
Maintain and where possible enhance the vibrancy and vitality of the City Centre.
Continue to facilitate improved access to the City.
Continue to apply appropriate development management measures when
assessing new retail proposals.
Protect designated areas and high amenity value areas in the City as important
elements ensuring that any plan or project associated with the provision of new
housing which has the potential to significantly affect a Natura 2000 site is
appropriately assessed in accordance with Article 6 of the Habitats Directive in
order to avoid adverse impacts on the integrity of the site.;
Promote increased residential densities where appropriate having regard to
Sustainable Residential Developments in Urban Areas (2009) but conscious of the
need to meet market demand for housing choice.
Apply appropriate development management measures to ensure that growth is
appropriate and compatible with the Regional Planning Guidelines for the South
East Region 2010.
Continue to encourage and promote the development of a range of quality tourism
facilities, attractions and accommodation within the City.
Adopt a climate change strategy for Waterford City
Ensure that sufficient land is zoned for the educational requirements of 1st , 2nd
and 3rd level educational establishments.
Implement the Ministerial Guidance ‘The Planning System and Flood Risk
Management Guidelines for Planning Authorities’ by undertaking flood risk
assessment of the City and fully incorporating flood risk assessment and
management into the planning system.
11
11. CONCLUSION
Waterford is an underdeveloped Gateway and the lack of growth in the urban population
of Waterford City and environs is a matter for concern. It is important that the Core
Strategy and the Development Plan policies adopted do not further impede population
growth within the city. The stated intention is to continue City Council’s responsible
approach to planning and provide for the sustainable growth of the city. It is the intention
to deliver on the objectives of the Development Plan to provide for population growth
through the promotion of sustainable neighbourhoods within a compact city. While
recognising the RPG targets, we also stress, however, that, in the context of Gateway
cities, the population targets are minimum targets and are intended to promote the
consolidation and sustainable growth of the city
Appendix One
Significant Recent Improvements in Infrastructure













The M9 motorway, the N25 Waterford City By-Pass and the Outer Ring Road
The East Waterford Water Supply Scheme which increased the capacity by
65% and secures the City’s water supply into the future
The completion of the Waste Water Treatment Plant providing significant
capacity for future housing and industrial development
The provision of a virtually limitless bandwidth as provided by the MAN
Broadband infrastructure.
The delivery of major building programmes at Waterford Institute of
Technology and Waterford Regional Hospital
The carrying out of significant urban renewal and conservation projects in the
city centre
House of Waterford Crystal Visitor Centre
Viking Triangle Project
The provision of significant recreational, cultural and community facilities,
including new parks, the redevelopment of the Regional Sports Centre,
refurbishment of the Theatre Royal and Garter Lane Arts Centre and the
provision of neighbourhood based childcare facilities
Provision of pumping and transfer wastewater networks between city and new
WWTP and sewerage collection system for City and environs (Co. Kilkenny),
Kilbarry and Killure at Belview
New water supply system for south city and north-west city area
Water conservation rehabilitation works.
Improved public transport services and facilities as recommended by the
Waterford City Public transport Feasibility Study 2010.
12