An Bord Pleanála. Inspector s Report. Grangegorman Planning Scheme. Location: St. Brendan s Hospital Grounds, Upper Grangegorman, Dublin 7.

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1 An Bord Pleanála Inspector s Report Board Reference: 29Z.ZD2005 Planning Authority: Dublin City Council Development Agency: Grangegorman Development Agency Proposal: Grangegorman Planning Scheme Location: St. Brendan s Hospital Grounds, Upper Grangegorman, Dublin 7. Appellants: (a) Peter Byrne, Stanley Court 4, Prussia Street. (b) Grangegorman Residents Alliance, C/o Pirooz Daneshmandi, 3 Marne Villas, Rathdown Road. (c) Residents of Grangegorman Villas, C/o Marianne Lee, 7 Grangegorman Road Villas. (d) Bill Gorman, 57 Aughrim Street. PL13.ZD2005 An Bord Pleanála Page 1 of 135

2 Observers: (a) Dublin 7 Educate Together National School, C/o Deirdre Prince, Fitzwilliam Place North, Grangegorman. (b) An Taisce, The Taylor s Hall, Back Lane, Dublin 8. Site Inspection: 12 th & 13 th October and 7th November, 2011 Inspector: Ruairí Somers PL13.ZD2005 An Bord Pleanála Page 2 of 135

3 TABLE OF CONTENTS 1. Background to Strategic Development Zone 2. Strategic Development Zone Lands 3. Grangegorman Planning Scheme 4. Planning Policies 5. Planning History 6. Grounds of Appeal 7. Observers 8. Responses to Appeals and Observations 9. Oral Hearing 10. Assessment 11. Recommendations and Amendments Appendix 1. Format of Oral Hearing PL13.ZD2005 An Bord Pleanála Page 3 of 135

4 1. BACKGROUND TO STRATEGIC DEVELOPMENT ZONE The Grangegorman Development Agency (GDA) was established through the Grangegorman Development Agency Act The title of the Act is as follows: An Act to make provision for the development of an area in Grangegorman, Dublin as a location for education, health and other facilities, and for that purpose to provide for the establishment of a body to be known as the Grangegorman Development Agency. The functions of the Agency as defined in Section 9 include:- promote the development of the Grangegorman site as a location for education, health and other facilities; carry out or facilitate development, redevelopment, renewal or conservation of any land in the Grangegorman site; apply for permission for the development of land in the Grangegorman site to facilitate the future development; prepare a strategic plan, the objectives of which are set out in Section 12; consult with relevant organisations to address the issue of providing adequate public transport to service the Grangegorman site; arrange for a Communications Strategy, to provide for consultation with residents in the Grangegorman neighbourhood, patients and providers of healthcare services, the staff and students of the Dublin Institute of Technology, Trade Union and employers representatives etc. 1.1 Strategic Development Zone In December 2010 the Government designated hectares of land at Grangegorman as a site for a Strategic Development Zone (SDZ) in accordance with Section 166 and Part 1X of the Planning and Development Act 2000 (as amended). The reasons for such designation were as follows: (a) (b) (c) The potential and need for the comprehensive planning and development of the site due to its scale and configuration; The efficient use of public investment in infrastructural facilities; The giving of effect to the policies contained in the Strategic Plan prepared by the GDA in accordance with Section 12 of the Grangegorman Development Agency Act 2005 as well as the Dublin City Development Plan PL13.ZD2005 An Bord Pleanála Page 4 of 135

5 1.2 Planning Scheme In pursuance of Section 168 a Draft Planning Scheme in respect of the SDZ site was submitted to Dublin City Council in April On 25 th July 2011 the City Council adopted the following for the purpose of making the Grangegorman Planning Scheme: the document titled Grangegorman Draft Planning Scheme, the accompanying Environmental Report and Appropriate Assessment Screening Report of the Draft Planning Scheme, the Report of the City Manager on the submissions to the Grangegorman Draft Planning Scheme together with the Manager s recommended changes, as further amended by the Members at the Special City Council Meeting on 25 th July 2011, the Screening Report of all Modifications/Amendments and the SEA Statement. 1.3 Supporting Documentation The primary documentation of the Planning Scheme comprises of the Grangegorman Planning Scheme document itself and the accompanying SEA Statement and Environmental and Appropriate Assessment Screening reports. Other reference documentation provides supporting material and data for the main documents and these are as follows: Arnold P: Photographic Survey, St. Brendan s Hospital, Grangegorman, Dublin 7 (2005) Arnold P: Architectural Appraisal St. Brendan s Hospital, Grangegorman, Dublin 7 (2006) Mandal R: Framework Architectural Conservation Strategy for the Existing Buildings on the Lands of Grangegorman, Dublin 7 (2007) Grangegorman Masterplan and Masterplan Design Guidelines Grangegorman GDA Strategic Plan 2011 Grangegorman Area - Transport Assessment (April 2011) Grangegorman Area - Mobility Management Plan (March 2011) Landscape and Visual Impact Appraisal (April 2011) Daylight and Sunlight Review of proposed Development, Grangegorman, Dublin (March 2011) PL13.ZD2005 An Bord Pleanála Page 5 of 135

6 Grangegorman SDZ Tree Survey Summary (April 2011) Grangegorman Development Waste Management Strategy (October 2009) Foul Effluent Generation and Potable Water Demand Estimates Technical Note (March 2011) Grangegorman Flood Risk Assessment (April 2011) All of the above studies and strategies were commissioned directly by the Grangegorman Development Agency save for Paul Arnold s Photographic Survey and Architectural Appraisal. The Appraisal was commissioned by Dublin City Council Planning Department. 2. STRATEGIC DEVELOPMENT ZONE LANDS The SDZ site is c.800 metres north-west of O Connell Bridge in Dublin City Centre and has an area of hectares. It is bound to the north by the North Circular Road (NCR) and by Grangegorman Upper; to the west by residential and commercial developments which front onto Prussia Street and Manor Street and to the south by residential developments which front onto Kirwan Street, Grangegorman Lower and Brunswick Street. Broadstone and Phibsborough Bus Depot lie to the east of the site. The SDZ site comprises primarily of the grounds of St. Brendan s Hospital but also includes the following: Grangegorman Lower i.e. a public road which bisects the site; HSE properties adjacent to St. Brendan s Hospital that front onto North Circular Road; HSE properties fronting onto Grangegorman Lower (adjacent to Marne Villas), and The former Dublin City Council Cleansing Department now in the ownership of the Dublin Institute of Technology. 2.1 Buildings The site is occupied by a large number of buildings some of which date from the early 19 th century. Three two-storey red bricked houses (Doctors Houses) together with their front and rear gardens address the North Circular Road frontage. St. Elizabeth s Court, a residential home run by the HSE occupies the northern corner of the site and is set back behind one of the Doctor s Houses. A significant group of buildings is located on the west side of the Grangegorman Upper and Lower road frontages and includes, from north to PL13.ZD2005 An Bord Pleanála Page 6 of 135

7 south, the Laundry building, residential wards and out-patients department, the Mortuary building, the former Female House, Female Infirmary and the Church of Ireland and Roman Catholic Churches. The terrace of houses known as Orchard View, the Clock Tower or Penitentiary building and the Former Nurses Home address the east side of Grangegorman Lower. The southern end of the site i.e. located between Grangegorman Lower, Morning Star Avenue and Brunswick Street is occupied by the relatively long Lower House which is in a ruinous condition. South of this building is a modern two-storey temporary structure which accommodates a primary school. There is a small group of buildings just west of the centre of the site including the important Protected Structure known as Top House as well as the GDA offices and two old handball alleys. 2.2 Landscape and Topography There are significant tracks of green space comprising of former gardens and playing fields within the west and south-west parts of the site as well as smaller open areas to the north, south and east. More generally, the east side of the site is brownfield in nature whereas the west is a mixture of amenity space, institutional buildings and hard surfaces used for car parking. The site contains mature trees in pockets and along internal boundaries. An old stone wall typically metres in height or a lower wall combined with railings bound the site for the most part i.e. along the shared property boundaries or at the Grangegorman and North Circular Road frontages. The SDZ land slopes gently down towards the south-east and giving rise to various views out of the site across the City and to the Dublin Mountains. 2.3 Access The main vehicular access is currently provided from Grangegorman Upper/Lower roads where a number of access points and gates are located. A separate vehicular access is also available to St. Elizabeth s Court at the northern corner of the site and at two locations at the southern end of the site off Fitzwilliam Place North and Morning Star Avenue to the west and east respectively. There is a gateway entrance to the former Dublin City Council Cleansing Department off the eastern end of Marne Villas. There are pedestrian accesses to the Doctors Houses from the North Circular Road while there is a blocked-up pedestrian gate located off Fingal Place to the west of the site. Other blocked-up access ways exist along the Grangegorman Lower frontages. 2.4 Adjoining Land Uses The principle surrounding land use is mature residential, which generally is in well-established terraces of one or two storeys especially to the north-east and PL13.ZD2005 An Bord Pleanála Page 7 of 135

8 south. To the north of the site (North Circular Road) it is also mainly residential, occasionally three to four storeys and with some local shopping and one substantial commercial block (Park House, across the NCR at Hanlon s Corner). The character of the area to the west of the SDZ (Prussia Street/Manor Street) is more commercial with a mix of residential, shopping and some offices/car sales and other commercial/employment uses. 3. GRANGEGORMAN PLANNING SCHEME The Planning Scheme envisages a campus environment with very significant areas of open space, key views and major pedestrian routes integrating the new urban quarter into the fabric of the City and has regard to the particular nature of education and healthcare facilities. This philosophy imposes an inherent limit on the quantum seen as desirable; i.e. 380,000 square metres approximately. Table 4.1 from Chapter 4 of the Planning Scheme document provides an indicative breakdown of the development by use category. Development Type Approximate Overall Quantum Approximate Quantum Deliverable without significant Transport Infrastructure Upgrades Healthcare related. and 42,000 sq m 27,000 sq m Educational related. and 270,000 sq m 203,000 sq m Public Bodies (school, library, elderly housing). Mixed use. 8,000 sq m 60,000 sq m 8,000 sq m 0 sq m Total 380,000 sq m 238,000 sq m 3.1 Fixed Elements Certain key elements of the Planning Scheme, which are considered critical to the delivery of a sustainable development, are fixed. These are: - the overall quantum of development as set out in the table above, the Key Structuring Principles and the Urban Form. The Key Structuring Principles are set out PL13.ZD2005 An Bord Pleanála Page 8 of 135

9 below and are taken from Section 3.4 of the Grangegorman Planning Scheme document. St. Brendan s Way and Serpentine Walk which are the two principle routes through the site. These act as the primary organising routes for the overall structure for the site and comprise of pedestrian priority ways from east to west. It is envisaged that these principle connections will be punctuated by social gathering spaces and active uses to bring life, vibrancy and activity to the quarter. Quadrangles and Green Fingers comprise of a network of green spaces which serve to create a series of landscaped open spaces (Quadrangles) and pedestrian access routes (Green Fingers) which in turn will reinforce and enhance the creation of a distinct Urban Form and sense of place. The configuration of the buildings on the site will frame a pattern of courtyards and open spaces creating distinct forms with strong individual identities and connecting with St. Brendan s Way and Serpentine Way and the sports and amenity spaces beyond. Two Hearts i.e. two main public spaces and major activity nodes. These are the Academic and Health Heart to the west and the Social and Cultural Heart to the east. These Hearts will be open public plazas which will anchor a broad spectrum of social gathering spaces and active uses. Connecting to Smithfield, North Circular Road and Broadstone and positioning for future connection opportunities is a further Key Structuring Principle which will transform Grangegorman s closed land parcel into an integral part of the life of the City. Opportunities to connect with the surrounding street network will be maximised. The main gateway entrances which offer front doors to the quarter from the surrounding streets are at the North Circular Road, Grangegorman Lower and a future access and gateway from Broadstone. Potential additional access from Smithfield and Prussia Street are identified. The Fields and the Ha Ha concept comprise of a generous portion of consolidated open space and forming a mix of parkland sports pitches with park-like groves of new and existing trees framed by the Serpentine Walk to the north and the historic wall to the south and will also contain a training facility and children s playgrounds. The Ha Ha is a landscape feature running along the northern edge of The Fields and uses the changes in the topography to accommodate a sectional dip that will allow for internal sports facilities with direct visual connection to the external parkland. Only sports/recreational buildings of single storey pavilion design will be allowed in The Fields Protected Structures: The Dublin City Development Plan lists 11 Protected Structures within the SDZ including parts of the boundary wall. Figure 4.3 of PL13.ZD2005 An Bord Pleanála Page 9 of 135

10 the Planning Scheme shows the distribution of Protected Structures around the site. All of these structures will be retained and integrated into the overall development although there will be some breaches in the boundary wall in order to open up the site. In some cases (such as the Top House) the Protected Structure will be incorporated into a feature building (the Library) whereas in other cases the Protected Structures will be set apart (for example, the Laundry Building) to provide a focal point and anchor for the new development in their vicinity. St. Brendan s Way will serve to connect the principle group of Protected Structures and will provide an appropriate level of visibility to them. While the adaption of the buildings to be retained will require intervention and alteration to meet specific use requirements, a considerable portion of the works involve repairs to historic structure and fabric. This work will be carried out in accordance with principles set out in Section 6.7 of the Planning Scheme and include, for example, compliance with the document Guidelines for the Protection of Architectural Heritage issued by the Department of the Environment, Heritage and Local Government and current conservation principles and techniques. The new development will significantly alter the existing setting of the Protected Structures. In line with the Masterplan proposals, new buildings, additions and Public Realm/landscaping works will be planned and designed in such a way as to enhance the architectural and spatial quality of the setting of the Protected Structures. Design Briefs for all building projects within the SDZ area will direct design teams to have regard to, respond to and take on board the existing architectural heritage assessment and research (in particular the Paul Arnold Architectural Appraisal prepared for Dublin City Council and the Robin Mandal Conservation Report prepared for the GDA), which provide substantial architectural historical information as well as inventories and architectural assessments of all buildings and structures Building Heights: Figure 4.6 of the Planning Scheme shows the Minimum and Maximum permissible buildings heights for the site and illustrating that most buildings will be between 4-6 storeys or, where the building is over a podium, 4½-6½ storeys in height. In line with the provisions of the Dublin City Development Plan a number of taller ( mid-rise ) buildings are included. One (the Campanile) will be close to and overlooking The Fields and two others (both mixed use) close to Broadstone. All buildings, including the three mid-rise structures, will be lower than 50 metres. Figure 4.6 also indicates a number of special objectives or conditions in relation to height that have been established as a response to their specific context. These include: edge conditions (near parts of the site boundary for example) adjacent to existing residential areas, at sensitive locations such as adjacent to Protected Structures, and locations where taller buildings are considered appropriate accommodating residential and mixed uses. PL13.ZD2005 An Bord Pleanála Page 10 of 135

11 The residential buildings located along the Serpentine Walk overlooking The Fields are proposed at 6-8 storeys in height with the Campanile of storeys which is intended to serve as a local landmark, being visible from a number of locations around Dublin. The concentration of higher elements at the Broadstone end of the campus will be the focus eventually of the proposed public transport hub and an appropriately high standard of design and finish will be required for these structures. Building heights beside the Clock Tower, the Lower House and the Top House step down to respect the Protected Structures. A maximum of three storeys will be permitted directly adjacent to these Protected Structures to protect the integrity of their settings. A number of indicative street sections are included to illustrate the general height of buildings in relation to each other and their context (see Figures ). These site sections are not final building designs but rather are intended to reflect the vision of the Planning Scheme and will guide the future design of the site. Some further insight into the Scheme can be obtained from the Landscape & Visual Impact Appraisal and the sketch designs and photomontages contained therein Urban Form: The Urban Form diagram set out in Figure 4.2 of the Planning Scheme document is proposed to control the extent of the proposed development on the site and protect the fixed elements of the Protected Structures and the public realm spaces including the main circulation routes, the Green Fingers and the identified View Corridors (see below). The diagram has been derived from the Key Structuring Principles of the site (Figure 4.1) and is designed to respect those elements while delivering the required quantum of development on the site at an appropriate density and height. Figure 4.2 shows the general areas permitted for development (shaded in light green) and external building lines (dark green lines) to define the location of each of the proposed quads or buildings. The diagram is not intended to represent a design solution; its primary function is to define the public spaces outside the indicative building lines. The set building lines define the building edges and also define the edge of the public realm. However setbacks from the building line will be permitted in order to create modulation of buildings to form building entrances or external courts adjacent to the public realm spaces and to protect residential amenity, where necessary. The extent of any proposed building will not extend past the building lines unless it can demonstrate that it will not impinge on the Key Structuring Principles of Figure 4.1. Examples of where this may be permissible include projecting external roofs or canopies, glazed atriums, high level glazed bridges/elements, podium structures, public seating, rain shelters, bicycle parking, public art, security kiosks or landscape features that can be incorporated into the public realm space. Any such structures must be sited so as not to diminish the identified View Corridors or the settings of Protected Structures. The Urban Form diagram envisages that the typology of structures proposed will be predominantly quadrangles. However it is not intended that the Urban Form diagram dictates the configuration of the internal building PL13.ZD2005 An Bord Pleanála Page 11 of 135

12 lines of each building. It is envisaged that most buildings will be designed with a shallow floor plan depth for maximum sustainability View Corridors: The Urban Form set out in Figure 4.2 establishes and protects a number of View Corridors which are illustrated in Figure 4.4. The pattern of View Corridors through the site both east/west and north/south serves to connect the site to the surrounding natural and urban environment Open Space and Other Restrictions: For each quadrangle proposed a minimum of 20% of the space within the external building line shall be allocated as open space and/or winter gardens. More specifically the western element of the quadrangle located directly behind Grangegorman Villas, if used for student residential, shall be designed so that no balconies are provided facing westwards, while ground level changes between the existing housing and the site should seek to minimise the height and visual impact of the western elevation Access Routes and Parking: Figure 4.29 shows the pedestrian and cyclist access routes and the opportunities for access through third party lands. The principle vehicular access points will be from the North Circular Road and from Grangegorman Lower. There will be a subsidiary vehicular access from Morning Star Avenue to an underground/undercroft car park, exiting onto Fitzwilliam Place North. Figure 4.30 shows these accesses and parking locations and opportunities for future vehicular access through third party lands. While the key connections are considered to be fixed insofar as they are necessary for the long-term viability of the project it is acknowledged that delivery of the Broadstone connection is subject to further agreement with the landowners and stakeholders outside the boundary of the SDZ. However, its delivery is considered essential if the upper quantum of development (380,000 square metres) is to be permitted (see also section 3.3 below). Car parking will be mainly underground/undercroft in the positions indicated in Figure 4.30 with limited provision for surface parking to the internal circulation network to allow for disabled parking, loading bays, drop-off positions, short term parking. The total number of car spaces on the site will not exceed 1,150 spaces and will cater for the entire Grangegorman SDZ site. Temporary parking arrangements during construction operations are shown in Figure Future Development in the SDZ: Taken together, the elements of Figure 4.1 of the Planning Scheme document determine where new buildings may occur across the entire site. Based on this overall Urban Form, Figure 4.2 fixes the external building lines of all new buildings on the site. Deviations from the Key Structuring Principles (4.1) or from the Urban Form (4.2) will not be acceptable. The Planning and Development Act 2000 (as amended) requires that development within a Strategic Development Zone be in accordance with the PL13.ZD2005 An Bord Pleanála Page 12 of 135

13 relevant Planning Scheme and that any proposed development which is deemed to comply with the Planning Scheme must be granted planning permission. Any development proposals which conflict with the fixed elements will be deemed not to be in compliance with the Planning Scheme and therefore cannot be permitted. 3.2 Flexible Elements A degree of flexibility is incorporated into the Planning Scheme in order to allow the development to respond to potential changes in the requirements of the stakeholders (advances in healthcare provision or educational demands for example) and to respond to environmental and market conditions over the timeframe of the Planning Scheme. This flexibility mainly relates to building form and design within the maximum permitted volumetric envelopes which are defined and are fixed elements. Thus, for example the Planning Scheme identifies the external building lines of all blocks, but not the internal building lines. Similarly, building height is stated as a range of four to six storeys, for example, subject to a maximum and minimum height. In reality, it will never be possible to develop all the urban blocks to the maximum extent of their respective volumetric envelopes, as this would greatly exceed the maximum quantum of development proposed for the site (Table 4.1). This flexibility will allow the individual building designers to respond to the brief and context of each package in a responsible manner and at the same time bring an element of diversity into the overall context. The flexibility allows for buildings in sensitive locations, such as adjacent to Protected Structures or existing residential areas, to respect their context and by subtle manipulation of the proposed building, within the parameters set by the Planning Scheme mitigate possible impacts on the Protected Structures and/or existing development in the area. The Planning Scheme therefore includes a series of indicative height sections through the site and a number of indicative floor height diagrams (see Figures ) Design Principles: The Planning Scheme sets out three primary design principles that govern the organisation and character of the open spaces and buildings for the Grangegorman Urban Quarter: connectivity, collegiality and cohesiveness. Connectivity, both physical and visual, will be encouraged to facilitate movement across the quarter as well as to foster a sense of district unity. In relation to collegiality, the project will support a hierarchy of communal spaces that encourage collective interaction among users. Cohesiveness is aimed at promoting visual consistency among architecture and landscapes over the course of development of the Grangegorman Urban Quarter. Collectively, adjacent buildings will maintain similarity by abiding to a consistent massing and basic vertical organisation and surface articulation. Services, for example ancillary telecommunications equipment will, where practical, be integrated with the overall design. All buildings will conform to a range of specified materials and colours. The district landscape would also maintain cohesiveness through the consistent use of specific planting types, paving materials and lighting. PL13.ZD2005 An Bord Pleanála Page 13 of 135

14 3.2.2 Colours and Materials: In determining appropriate colours and materials a balance is sought between individuality and harmony. All colours and materials will be reviewed and selected in consultation with the GDA according to the highest possible standards regarding overall quality, for texture, colour, consistency, durability and performance. Along the major urban path of St. Brendan s Way a strong sense of urban connection, vitality and lifestyle will be promoted, with prominent areas of ground level glazing, arcades and canopies to activate the street edges for pedestrians. The exterior material for buildings along St. Brendan s Way will have an overall lighter colour to maximise exposure to daylight Daylight/Sunlight/Overlooking: The buildings will be principally located on the northern portion of the site, allowing the existing open space to the south ( The Fields ) to remain in an appropriate landscape space and will be positioned to take advantage of natural daylight, reducing the need for artificial light. The design of the building footprints, heights and layouts will be developed to allow maximum daylight to enter buildings, minimise overshadowing of each other, of existing neighbouring buildings, and of landscaped areas as well as to ameliorate existing wind conditions on site. While the urban block layout shown for example in Figures 4.2 and 4.6 defines the maximum extend of each block, there is design flexibility within the urban form guidelines and the maximum height parameters. This flexibility will be utilised to ensure that individual building form has regard to the provisions of the Dublin City Development Plan regarding guidelines for daylight/sunlight and overlooking. Where proposed buildings are adjacent to existing residential building, a sunlight and daylight analysis will be required unless the following conditions are satisfied: all the new development subtends less than 25º to the horizontal in a section through a residential window; the distance of each part of the new development to the residential window is more than three times its height above the window. Where visual impact sensitivities are identified a full visual impact assessment must accompany all relevant planning applications Landuses: In addition to Healthcare and Educational uses the Planning Scheme seeks to provide a range of uses (including residential, both student and private, shops, offices, business incubation, restaurants and leisure facilities) which will support the future users and the wider local community, attract people at different times of the day and night, provide passive supervision, animate the Public Realm and optimise the opportunity offered by the site. All of the landuses proposed are compatible with the Z14 and Z1 zoning of the Dublin City Development Plan. Figure 4.32 of the Planning Scheme shows the distribution of the six Land Use Zones. Apart from the Open Space and Healthcare Related areas, limited PL13.ZD2005 An Bord Pleanála Page 14 of 135

15 retail, café and restaurant uses, for example, will be permitted within the Healthcare, Educational, Educational Related and Mixed Use Zones. Limited private residential will be permitted within the remaining Healthcare Related and Mixed Use areas. The provision of new HSE facilities, a DIT campus and a mixed use development zone will create a demand for shops and services. A maximum of 5,000 square metres of retail space (including convenience and comparison) will be provided throughout the site. Non-retail services which are considered appropriate include (but are not limited to) post offices, financial services (including banks), dry cleaners, health and beauty services and supporting facilities such as sandwich shops, cafes, restaurants, take-aways and a campus bar. Retail and non-retail services will generally be concentrated at ground floor level across the Urban Quarter along St. Brendan s Way and the Serpentine Walk. A public transport facility will be permitted within Zone 3 i.e. Mixed Use to facilitate bus stops/turning/parking and to support a light rail/bus interchange Additional/Flexible Accesses: Figure 4.29 includes a number of additional pedestrian access opportunities and Figure 4.30 a smaller number of additional vehicular access opportunities. Similar to the Broadstone site as discussed at above, these will be reliant on the Grangegorman Development Agency working together with other third Parties to achieve the aspirations to allow more opportunities to connect with Prussia Street, Stoneybatter, Smithfield, and the Broadstone site. As these opportunities all involve negotiations with third party landowners outside the SDZ boundary, it is considered that these, while considered of strategic importance are flexible elements and as such have been discounted in all transportation modelling. If these were to become available then they would open the site more to the surrounding community and provide a more permeable site and at the same time offer a greater degree of flexibility for visitors to access the site or connect with the surrounding public transport network. 3.3 Access, Traffic and Parking St. Brendan s Way is a wide pedestrian priority boulevard curving through the site from east to west with a link north to the North Circular Road. Some limited vehicular access will be allowed as follows: Service vehicles and maintenance vehicles; Emergency vehicle access; Vehicular access for mobility impaired; Limited taxi drop-off in selected locations, and Some out of hours/night-time parking for private vehicles to allow for animation of the route, to optimise use of social outlets such as sports PL13.ZD2005 An Bord Pleanála Page 15 of 135

16 facilities and café/restaurant/bars and to assist in the provision of passive security. Pedestrian (including mobility impaired) movement and access are the priority throughout the Serpentine Walk. Bicycle access will be allowed on the eastern portion of the route together with emergency vehicle access. Some service vehicle access will also be allowed on the eastern portion of the route with a minimum width of 3.75 metres and local widening to accommodate the passage of opposing traffic, setdown/loading bay spaces and turning movements. Ivy Avenue running primarily parallel and north of St. Brendan s Way will have a traditional street character with greater vehicular use allowed and separation between vehicular traffic and pedestrians. A traditional street made up of pavements, kerbs and vehicular carriageway (5.5 metres wide) will be created on Ivy Avenue but the use of traffic calming measures will occasionally reduce the carriageway width Transport Infrastructure: The core HSE, DIT, community and ancillary elements can be supported by the existing transport infrastructure (subject to improved access and some upgrades to existing transport infrastructure). These elements amount to c.238,000 square metres of development. As additional public transport capacity becomes available there will be potential for appropriate expansion to c.380,000 square metres. In order to ensure good planning and sustainable development any planning applications for the site must demonstrate that sufficient transportation capacity is available to serve the development. The Planning Authority will reserve the power to make its own independent determination of the adequacy of transportation infrastructure and to refuse permission or phase of development (on transport infrastructure grounds) as it deems appropriate. Traffic using the two car parks on the south-eastern part of the site will be required through signage and junction build out to exit to the north/south as appropriate, to discourage traffic exiting/entering the car parks passing along the most narrow part of the road at Grangegorman Lower. Grangegorman Lower will be the only available through route for external traffic and it will be traffic-calmed along its length. Secondary links into the site include Ivy Avenue, the access to the car parks as well as servicing and maintenance roads along the periphery of the site. These secondary links are intended to be used by limited traffic volumes mainly related to servicing, maintenance and disabled access Parking: Table 5.3 outlines the car parking provision based on Dublin City Development Plan The proposed parking provision for each landuse is set out in Table 5.4. This shows a car park allocation of 1,150 as compared to the 878 spaces permitted in accordance with Development Plan standards. The principle reason for the parking provision in excess of the Development Plan standards is the allocation of 350 spaces for DIT s core educational facilities. There is no specific requirement for third level PL13.ZD2005 An Bord Pleanála Page 16 of 135

17 educational facilities in the Development Plan. However, this quantum is deemed appropriate due to the nature of the development, the majority of which is a replacement facility. On-site parking will be introduced on a prorata basis in line with the proposed provision outlined in Table 5.4 and the quantum of development completed. The proposed car parking areas will be managed and designated for different aspects of the proposed uses so as to control and limit vehicular access to the site, thereby managing the traffic impact of the development. 3.4 Removal and Demolition The Planning Scheme for the Grangegorman site proposes the removal of several buildings including the residential wards and outpatients building constructed in the 1970s, the recreational building dating from the 1980 s and the transport depot which dates from the 1920s. Appendix 2B of the Planning Scheme outlines these buildings or groups of buildings. All such structures prior to demolition will be recorded fully in dimensional/measured format and also photographically. These records will be retained by the GDA and also will be lodged with the Irish Architectural Archive, Dublin City Archives etc., for future reference, all as per the general guidelines for removal of structures. While most of the structures in Appendix 2B are of little architectural value, six are identified in the accompanying Architectural Conservation Strategy (Robin Mandal) as being of local importance though their replacement could be considered. These are: the surviving fragment of the former Richmond District Lunatic Asylum (currently the GDA offices), the 1938 Nurses Home (currently part occupied by the HSE), the three 1936 former Doctors Houses on the North Circular Road, and the two handball alleys have been identified. The Scheme states at Section 6.5 that in order to mitigate the loss, the removal of important or decorative elements (e.g. the stone window surrounds of the Former Nurses Home), will only be permitted when the items have been recorded prior to dismantling and their future use in close proximity to the original location identified and specified. It will be a requirement to tag and store these salvaged materials on site. 3.5 Other Matters Landscaping: The landscape concept for the site has been based on the Key Structuring Principles which respects the existing topography of the site and allows for the retention of a significant number of mature trees. These will be augmented by an extensive planting plan to be prepared for the Public Realm and include the use of native species. Figure 4.20 illustrates the overall landscaping concept for the site. Figures 4.21 and 4.22 illustrate the proposed trees in good condition with a medium to long-life expectancy that are proposed to be retained and the proposed planting structure to complement the existing trees. PL13.ZD2005 An Bord Pleanála Page 17 of 135

18 3.5.2 Security: Some access points will be secured outside core hours for security reasons. It is the intention that the Public Realm areas of Grangegorman Campus will be accessible through the day and evening, consistent with the need to provide a safe and secure environment for students, staff, residents, the general public and visitors. This will necessitate active management of individual access points, particularly at night. The design and management of pedestrian and cycle access points adjoining residential streets will in particular ensure appropriate measures to remove the potential for anti-social behaviour and nuisance for adjoining residential amenity and include adequate access control (particularly at night-time), good lighting, good visibility and options for CCTV facilities as part of an effective management system, which will be subject to monitoring and review (see Section 4.6). An integrated digital based CCTV and security system will eventually be installed throughout the site Mechanical and Electrical Services: The Grangegorman Development Agency proposes a Central Energy Centre, incorporating a Central Heat Generation plant, Electrical Mains Switch Room and a Data Centre. The Central Energy Centre will be provided for new and refurbished buildings within the SDZ area. The Grangegorman Campus will be developed in phases, with the Central Energy Centre currently scheduled for construction within the earlier phases. There will be a requirement to provide interim solutions for the provision of heat, power and telecommunications to those phases that are completed prior to the Energy Centre. 4. PLANNING POLICIES With regard to Grangegorman the National Development Plan states that over this period a major project which will see the development of a large site in Grangegorman, Dublin as a location for education, health and other facilities will be progressed. The site will house the new Dublin Institute of Technology community campus. 4.1 Transport Planning Transport 21 (2005) has various different transport proposals planned that will improve access to the site. Within the local vicinity of the site, the planned Metro North and the LUAS Line BXD will directly improve rail services providing high capacity public links to the site. In June 2011 the National Transport Authority published its Draft Transport Strategy for the Greater Dublin Area. The Strategy is part of a hierarchy of transport plans for the Greater Dublin Area that will include an Implementation Plan and Strategic Traffic Management Plan to be published by the Authority after the draft Strategy is fully adopted. The Strategy states the following in its executive summary: PL13.ZD2005 An Bord Pleanála Page 18 of 135

19 The unprecedented economic circumstances prevailing in Ireland at the time of the adoption of this Strategy, means that the level of investment in transport provision will be significantly curtailed from that anticipated under prior investment plans and programmes. Accordingly, the delivery of many of the capital intensive projects in the strategy is unlikely to occur in the shortterm 4.2 National Spatial Strategy The NSS emphasises the importance of Dublin and outlines measures to achieve a consolidated City including effective integration of land use and transportation policy; maximising the opportunity of brownfield, underutilised lands and maintaining and investing in quality of life attractions of the city particularly in terms of education, health care, childcare, cultural and entertainment facilities. 4.3 Regional Guidelines The Regional Planning Guidelines for the Greater Dublin Area stress the need to consolidate the Dublin Metropolitan Area with an enhanced public transportation system. Given the limited supply of undeveloped lands in the city, the Guidelines emphasise the need to increase densities and deliver well designed urban environments which enhance quality of life within the City. 4.4 Development Plan The SDZ is identified as the Grangegorman Strategic Development and Regeneration Area (SDRA) in the Dublin City Development Plan It is deemed capable of significant mixed use development and requiring physical and social infrastructure/facilities. Section 16.3 of the Plan sets out the following nine principles for the Grangegorman/Broadstone SDRA. 1. To ensure that the development framework for Grangegorman/Broadstone provides for a high quality character area/urban district with strong physical linkage to the HARP Area/Smithfield, Phibsborough, Manor Street and to the City Centre through Henrietta Street. 2. To create a highly sustainable urban campus at Grangegorman as a new home for Dublin Institute of Technology with the capacity to develop strong links with other knowledge sector engines located elsewhere in the Inner City. 3. To develop a legible, attractive spatial and urban character which marries the provision of new urban space with high quality contemporary architecture and with the integration and re-use of protected historic structures and other buildings of architectural/artistic merit. PL13.ZD2005 An Bord Pleanála Page 19 of 135

20 4. To ensure that the existing open space is developed both for the benefit of the new campus and for adjacent existing communities. 5. To co-operate with existing stakeholders in Broadstone to promote the development of a range of higher value economic uses that would be complementary to the campus uses at Grangegorman. 6. To provide for the physical integration of Grangegorman and Broadstone with each other and the City Centre through the development of a series of physical connections including pedestrian and cycle linkages and new transport infrastructure. 7. To ensure that the requirements of the North Area Health Board in the provision of healthcare facilities shall be accommodated in any future development of Grangegorman. 8. To examine in conjunction with the relevant educational agencies including Educate Together the primary and secondary education uses to support this third level campus. 9. To have regard to the physical integration and regeneration potential of Manor Street/Stoneybatter as important streets/radial routes in the redevelopment proposals for this area Key Development Area: Map K of the Plan indicates that the site is located within a Key Developing Area the key district centre for which is located some distance to the north-east close to the junction of the Phibsborough and Cabra Roads. Higher densities will be promoted within Key Development Areas (Section ). Section sets out the key development principles for Grangegorman/Broadstone as follows: To create a high quality educational campus and healthcare facilities at Grangegorman, with strong linkages to Phibsborough, Manor Street and the City Centre through Henrietta Street. To promote the physical integration of Grangegorman and Broadstone with each other and to the City Centre. To promote the identity and character of this new educational campus by the location of an elegant mid-rise building towards the centre of the main site on elevated ground overlooking a large open space and the city. To signify the main gateway to the campus by the use of one or two midrise buildings on the proposed main entrance from Constitution Hill/Broadstone Zoning: The bulk of the site is zoned Z14 in the City Development Plan. The objective of this zone is to seek the social, economic and physical PL13.ZD2005 An Bord Pleanála Page 20 of 135

21 development and/or rejuvenation of an area with mixed use, of which residential and Z6 would be the predominant uses. A small rectangular area at the northern end of the site and fronting onto North Circular Road is zoned Z1. The objective for this zone is to protect, provide and improve residential amenities. Zones Z1 and Z2 surround much of the site to the north, east, south and west. The objective for the Z2 zone is to protect and/or improve the amenities of residential conservation areas. The neighbouring CIE Broadstone lands are zoned Z10 Inner Suburban. The objective of this zone is: to consolidate and facilitate the development of inner city and inner suburban sites for mixed-use development of which office, retail and residential would be the predominant uses. Lands to the south of the site are zoned (City Centre) Z5 i.e. to consolidate and facilitate the development of the central area, and to identify, reinforce and strengthen and protect its civic design character and dignity Protected Structures and Conservation: Map E of the Plan identifies 11 Protected Structures within the site and including the boundary wall and entrance gates at Grangegorman Lower and Morning Star Avenue. In addition there are a number of Protected Structures close to or bounding the site, including St. Dympna s (also known as Connolly Norman House) on North Circular Road, No. 29 Prussia Street, 232 North Circular Road and the Broadstone terminus and bus depot buildings. Under the heading Works to Protected Structures Section of the Plan states the following: In determining applications which relate to Protected Structures or their setting the authority will take into account: The importance of the building, its intrinsic special architectural and/or historic interest and rarity Particular physical features of the building, external and internal The extent and impact of interventions and alterations proposed and that which have already taken place, excluding any unauthorised development Setting and contribution to streetscape Extent to which the proposed works would bring substantial benefits to the community In the case of change of usage regard will be had to the compatibility of such use in terms of its impact on the Protected Structure. PL13.ZD2005 An Bord Pleanála Page 21 of 135

22 A detailed conservation method statement shall accompany planning applications for works to Protected Structures. This report shall: Outline the significance of the building Include a detailed survey of the building, including a photographic survey Detail the proposed works it is intended to carry out Contain a full assessment on the materials and method proposed to carry out these works, their impact on the character of the building/feature and the reversibility of the proposed works. Section states that an insistence on quality will be a foremost consideration when assessing proposals for development within the curtilage of Protected Structures, with particular emphasis on siting, building lines, proportions, scale, massing, height, roof treatment and materials. However, innovative contemporary buildings which can contribute to the richness of the historical context are not precluded. The Section continues: Development proposals should include an appraisal of the wider context of the site or structure. This appraisal should examine the visual impact and design of the proposal and should address issues including the grain of historic settings, sensitivity to scale and context, views and the design of innovative quality architecture which would complement the setting of the Protected Structure. Conservation Area: The southern end of the site i.e. south of the Lower House is defined as a Conservation Area (i.e. in terms of architectural conservation as opposed to environmental conservation) on Map E of the Plan. Section states in this regard that: The special value of conservation areas lies in the architectural design and scale of these areas and is of sufficient importance to require special care in dealing with development proposals and works by the private and public sector alike. Dublin City Council will thus seek to ensure that development proposals within all conservation areas complement the character of the area, including the setting of Protected Structures, and comply with development standards. Building Conservation: Section states in relation to the retention and re-use of older buildings of significance which are not protected that: In assessing applications to demolish older buildings which are not protected, the Planning Authority will actively seek the retention and re-use of buildings/structures of historic, architectural, cultural, artistic and/or local interest or buildings which make a positive contribution to the character and identity of streetscapes and a sustainable development of the city. PL13.ZD2005 An Bord Pleanála Page 22 of 135