Policy Statement on Development Management and Access to

<strong>Policy</strong> <strong>Statement</strong>
on
Development Management
and
Access to National Roads
National Roads Authority
St Martin’s House
Waterloo Road
Dublin 4
Tel: +353 1 660 2511 / Fax: +353 1 668 0009
Email: info@nra.ie
Web: www.nra.ie
May, 2006

National Roads Authority <strong>Policy</strong> <strong>Statement</strong> on Development Management and Access to National Roads
Foreword
Part 1 – Introduction.
Index
1.1 About this <strong>Statement</strong> 1
1.2 Statutory Responsibility of the NRA 1
1.3 National Road Development Strategy 1
1.4 Protecting the Operational Efficiency and Capacity of National Roads 2
1.5 Safety of Road Users 3
1.6 Service and Rest Areas 3
Part 2 – National Planning Policies and Guidelines.
2.1 Development Control Advice and Guidelines and <strong>Policy</strong> and Planning
Framework for Roads
5
2.2 Sustainable Rural Housing – Guidelines for Planning Authorities 5
2.3 Retail Planning Guidelines 6
2.4 Official <strong>Policy</strong> Objectives: Summary 7
Part 3 – Development Plans and Planning Applications.
3.1 NRA Approach and Objectives 9
3.2 Development Plans 10
3.2.1 Consultation with Planning Authorities 10
3.2.2 Preparation and Review of Development Plans 10
3.2.3 Impact of Development on Interchanges. 10
3.2.4 Proposed Developments in Urban Areas and Designated Development 11
Centres
3.2.5 Protecting Route Options for New or Improved Road Schemes 11
3.2.6 Exceptional Circumstances 12
3.3 Planning Applications 13
3.3.1 Notification to NRA of Planning Applications 13
3.3.2 NRA Submissions and Observations 13
3.3.3 Access to National Roads 14
3.3.4 Road Safety Audits 14
3.3.5 Traffic and Transport Assessments 15
3.3.6 Financing of Road Upgrading Arising From Approved Development 15
3.3.7 Notification to NRA of Decision to Approve Contrary to NRA
Observations
15
3.3.8 Appeals by NRA to An Bord Pleanála 15
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
<strong>Policy</strong> <strong>Statement</strong> on
Development
Management and
Access to National
Roads
Foreword
By
Fred Barry, Chief Executive
The unprecedented scale and pace of the national road development programme that we
have witnessed in recent years is set to continue for the foreseeable future following the
launch of Transport 21, the Government’s €34.4 billion blueprint for the further development of
Ireland’s land, sea and air transport over the next decade. The Transport 21 strategy will see
some €9.4 million invested every day for the next 10 years in Irish transport. Most importantly
from the Authority’s perspective, the Government’s strategy provides financial assurances to
the Authority that will enable us to plan our development programme well into the future as we
continue our task, in partnership with local authorities, of delivering a modern, safe and
efficient national road network to serve the needs of our expanding economy and improve our
living standards.
Clearly, there is an onus on all of us involved in the national road development programme to
achieve maximum value for money for the investment of the substantial funds being provided
by Government. The new roads that are being constructed throughout the country are being
built to the highest international standards and are typically designed to cater for road traffic
needs over a twenty year horizon, based primarily on anticipated traffic volumes related to the
inter-urban and inter-regional transport function of national roads. It is, therefore, incumbent
upon us to ensure, in so far as is reasonably practicable, that these roads will continue to
serve their intended purpose of providing a safe and efficient national transport network over
the twenty-year design period, at a minimum.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
Promoting good planning strategies and avoiding inappropriate development that negatively
impacts on national roads represent significant challenges to ensuring and maintaining the
operational efficiency and safety of the upgraded national road network. For this reason, the
Authority has published this <strong>Policy</strong> <strong>Statement</strong> with the primary aim of informing developers
and decision makers of the principles guiding the Authority’s approach towards proposed
developments impacting upon national roads.
In publishing this <strong>Statement</strong> the Authority recognises, of course, that a wide range of issues
must be considered by planning authorities and An Bord Pleanála in dealing with each
individual development proposal. National roads represent only one, albeit an important, such
issue. This <strong>Statement</strong> highlights the key policies and issues concerning national roads such
as the protection of the investment made in upgrading the network, maintaining
efficiency/satisfactory level of service, preserving high standards of road safety and avoiding
the premature erosion of these benefits. It is the Authority’s hope that these matters will be
properly taken into account and given due consideration and weighting in the decision-making
process.
Essentially, the primary aim of the <strong>Statement</strong> is to:
• contribute to well informed planning decisions that represent the best option for
sustainable development, taking account of all relevant considerations, and
• achieve consistency of approach nationally to planning and development issues
affecting national roads.
A well-informed and consistent approach to planning and development issues, one that
affords maximum support for the goal of achieving and maintaining a safe and efficient
network of national roads in the broader context of sustainable development strategies, is in
the interests of society generally by facilitating continued economic growth and development
throughout the Regions. While the Authority recognises that decisions in relation to planning
issues are, of course, matters for the relevant planning authorities and An Bord Pleanála, it is
hoped that the issues and policies which we have highlighted in this <strong>Statement</strong> will assist in
the decision making process and ensure that Ireland’s national road infrastructure provides
the highest standards of efficiency and safety for all road users for many years to come.
Fred Barry
Chief Executive
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
Part 1
Introduction
1.1. About this <strong>Statement</strong>.
This <strong>Statement</strong> has been prepared to outline the National Roads Authority’s policy on
the management of developments impacting upon national roads. The policy relates
primarily to proposed developments located on national roads outside the 50 kph
speed limit zones for cities, towns and villages, but also addresses development
proposals planned for other locations which, because of their potential to generate high
volumes of traffic, could have significant implications for national roads in the area
concerned.
1.2. Statutory Responsibility of the NRA.
The National Roads Authority is responsible for securing the provision of a safe and
efficient network of national roads in accordance with section 17 of the Roads Act,
1993.
National roads play a key role in providing access to all regions of the country and
connections between the main centres of population. Although national roads account
for less than 6% of the total length of public roads throughout the country, i.e.
approximately 5,400 km out of 94,600 km, their significance in serving our economic
and social transport needs is reflected in the fact that they carry over 40% of all road
traffic in Ireland.
1.3. National Road Development Strategy.
This <strong>Policy</strong> <strong>Statement</strong> has been prepared having regard to the Government’s strategy
for the development of the network of national roads as set out in the National
Development Plan and Transport 21. This development strategy provides for
unprecedented levels of investment by Government in order to secure, in the shortest
possible timeframe, a modern national road network that will serve to underpin
Ireland’s economic success and competitiveness by providing faster, more efficient
and safer access to and from our major ports, airports, cities and large towns.
A modern economy requires a world-class road transport network that is sustainable
from an economic, social and environmental perspective. Better national roads
improve access to the Regions, enhancing their attractiveness for inward investment
and new employment opportunities. In this way the national road network contributes
to the implementation of the Government’s policy of promoting more balanced
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
development throughout the country and also facilitates implementation of the National
Spatial Strategy.
1.4. Protecting the Operational Efficiency and Capacity of National Roads.
The National Roads Authority, in partnership with local authorities, is working to
provide a high quality national road network by removing inefficiencies such as
bottlenecks and congestion, thereby delivering positive benefits in terms of improved
journey times, reduced environmental impacts and more efficient energy use.
The strategy for the development of the network of national roads is intended to
provide roads of a standard that will give a satisfactory level of service to road users
(as manifested in the average speeds achieved), taking account of the growth in traffic
over a design period of at least 20 years. The traffic carrying capacity of these roads,
the level of service they deliver and the period over which they continue to perform
efficiently will be determined by a range of factors in addition to traffic growth, in
particular:
� the frequency of access points to the network;
� the extent of development adjoining national roads, including interchanges, and
in the environs of such roads, as well as
� the traffic volumes generated by such development.
Accordingly, appropriate development plan policies and development management
approaches are required so as to maintain and protect the capacity and efficiency of
national roads, thereby extending their service life as dedicated transport corridors
catering primarily for inter-urban and inter-regional traffic. Effective policies in this
regard will help to achieve value for money from the substantial investment being
made in upgrading national roads and in relation to the protection of the infrastructure
so created for the long term benefit of road users, communities generally and the
economy.
On motorway and dual carriageway sections of the network, grade separated
interchanges complying with the Authority’s Design Manual for Roads and Bridges
provide a safe and efficient solution catering for traffic movements to and from
motorways/dual carriageways and the adjoining local road network. The location,
capacity and frequency of interchanges are determined as part of the road scheme
planning process taking account, in particular, of population distribution patterns, scale
of urban areas and the origin and destination of traffic to be catered for along the
proposed road. The Authority’s approach is to seek to match the interchange strategy
to the road scheme design horizon of at least 20 years based primarily on anticipated
traffic volumes related to the inter-urban and inter-regional transport function of
national roads. In this way every effort is made to match the location and capacity of
interchanges to traffic forecast requirements, thereby avoiding wastage of public
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
expenditure that would occur through either over-design or under-design of
interchanges.
Development plan policies should reflect and safeguard the strategic role of
interchanges in catering for the safe and efficient movement of inter-urban and interregional
traffic. In particular, policies should be adopted so as to avoid the undermining
of the strategic transport function of national roads, including interchanges, by
measures intended to cater for the needs of local traffic which should more
appropriately be addressed within the framework of providing an adequate local road
infrastructure.
1.5. Safety of Road Users.
The National Roads Authority, as already indicated, is responsible for securing a safe
and efficient network of national roads. Newly constructed national roads, designed
and built to best international standards, have significantly lower accident rates and
fewer fatalities than the older, unimproved sections of the network. Motorways perform
best in this regard, followed by dual carriageway standard roads. The situation reflects
the separation of traffic flows and the use of purpose designed slip roads and
interchanges that cater for traffic movements onto and off motorways and dual
carriageways. However, roads of this standard cannot be justified on all sections of
the network having regard to the anticipated traffic volumes into the future and the cost
of such roads.
The performance and safety record of two-lane roads and the 2-plus-1 road type being
piloted by the Authority are strongly influenced by the frequency of junctions with side
roads and the occurrence of entrances to roadside development, including industrial
and commercial enterprises, farms and residential development, as well as once-off
housing. These features and developments give rise to turning movements that entail
significant safety risks to road users joining or leaving the main road and for other
traffic already on the road. An analysis of road accident data indicates that more than
50% (33,665) of all injury accidents reported on Irish roads over the period 1996-2004
occurred at junctions or involved turning movements onto/off roads. The fatalities in
these accidents totalled 964, or 26% of overall road accident fatalities (3,707) recorded
during the period.
The Authority, therefore, supports a strategy that seeks to prevent a proliferation of
roadside developments along national roads to which high speed limits apply, i.e.
greater than 50 kph, as part of a broad based strategy aimed at reducing fatalities on
such roads.
1.6. Service and Rest Areas.
The Authority’s <strong>Policy</strong> <strong>Statement</strong> on the Provision of Service Areas and Rest Areas on
Motorways and High Quality Dual Carriageways recommends the provision of such
facilities at intervals of approximately 50-60 km and 25-30 km respectively. The
strategy for the provision of service areas will entail a combination of facilities located
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
on-line (where proposals are brought forward by local authorities in conjunction with
the Authority) and at or close to interchanges (in the case of proposals promoted by
commercial interests).
Local authorities, acting in conjunction with the Authority, will arrange for a limited
number of on-line motorway and dual carriageway service areas. These service areas
will be provided in accordance with a conceptual design prepared by the Authority so
as to achieve best practice in catering safely for traffic movements to and from such
areas.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
Part 2
National Planning Policies and Guidelines
2.1 “Development Control Advice and Guidelines” (1982) and “<strong>Policy</strong> and
Planning Framework for Roads” (1985).
Official policy concerning developments involving access to national roads and
developments along such roads, including ribbon development, is set out in the
publications “Development Control Advice and Guidelines” and “<strong>Policy</strong> and Planning
Framework for Roads” which were issued respectively in 1982 and 1985 by the
Department of the Environment. The policy is given practical expression in the
Department’s 1982 document which stipulates that “As a general policy, the location
of new means of access to the National Primary Roads, or residential,
commercial, industrial or other development dependent on such means of access,
should not be permitted except in areas where a speed limit of 30-40 mph
[equivalent to 50-60 kph] applies, or in the case of infilling, in the existing built-up
areas”. The document points out that the same considerations also apply to National
Secondary Roads.
The 1985 <strong>Policy</strong> and Framework document states that it is “Government policy that
this investment (in national roads) should be safeguarded by preventing the
premature obsolescence of those roads as a result of inadequate control on
frontage development. Experience and research has shown that failure to
effectively control frontage development reduces traffic capacity of a particular
road, shortens its useful life and requires its earlier than necessary replacement.
This reduces the benefits to be derived from road investment, places an increased
burden on taxpayers and diverts resources from other essential road works.
Inadequate control of frontage development also adversely affects road safety.
This leads to an increased road accident and casualty rate, which has a direct
impact both in terms of the personal loss to families and the economic loss to the
country”.
2.2 “Sustainable Rural Housing – Guidelines for Planning Authorities”.
The national policies set out in “Development Control Advice and Guidelines” and
“<strong>Policy</strong> and Planning Framework for Roads” were reiterated in the document
“Sustainable Rural Housing – Guidelines for Planning Authorities” which was published
by the Department of the Environment, Heritage and Local Government in April, 2005.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
Included in these Guidelines is a requirement that “the objectives and policies of
development plans should make it clear that direct access from future
development should not be permitted to national roads outside the speed limit
zones for towns and villages”. The Guidelines also state that, “Key objectives and
policies to be included in the development plan should focus on the efficient
ongoing development and safe operation of roads, with particular emphasis on
the national primary, national secondary (and regional) road network.” To this end,
the Guidelines recommend that “Development control policy should, in the first
instance, seek to channel traffic from new development onto existing local roads
and in this way use established access points to gain entry onto national roads”.
The 2005 Guidelines indicate that, in dealing with the issue of housing in rural areas,
local authority development plans need to include objectives in relation to the future
development and safe operation of transport infrastructure. It is noted that many
development plans already contain objectives regarding the need to protect the routes
of future roads from development and the Guidelines recommend that this practice
should continue.
Planning authorities and An Bord Pleanála must have regard to the Ministerial
Guidelines on Sustainable Rural Housing in the performance of their functions in
accordance with the provisions of section 28 of the Planning and Development Act,
2000.
2.3 Retail Planning Guidelines.
Section 28 of the 2000 Act has also been used by the Minister for the Environment,
Heritage and Local Government when issuing Retail Planning Guidelines (January,
2005) to planning authorities. Those Guidelines noted (paragraph 21) that “The
challenge to be faced is how to accommodate the additional [retail] development
that is projected to be required in a way which is efficient, equitable and
sustainable. It is important to establish the optimum location for new retail
development which is accessible to all sections of society and is of a scale which
allows the continued prosperity of traditional town centres and existing retail
centres. This can only be achieved if strategic retail policies and proposals are
incorporated in the development plan system.”
Three of five key objectives identified in the Retail Planning Guidelines concern issues
of accessibility and location in the context of the continuing role of town and district
centres and proximity to existing, new or planned national roads/motorways. In dealing
with these matters the Guidelines stated:
“24. Retail development is most accessible to customers where it is well located
within its catchment area and is accessed both by public transport and the
private car. The third objective of policy, therefore, is to promote forms of
development which are easily accessible – particularly by public transport
– in a location which encourages multi-purpose shopping, business and
leisure trips on the same journey.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
25. Consequently, the fourth objective is to support the continuing role of
town and district centres. This will assist in reinforcing the investment in
urban renewal which has been made already. These established centres
should be the preferred locations for developments that attract many trips.
This policy will also support their role as centres of social and business
interaction in the community. In order to achieve this objective the
preferred location for retain development should be within town centres,
consistent with the requirement to achieve good access especially by
public transport. If there are no development sites available within a town
centre then the next preference should be a location on the edge of the
town centre. Only where there are no sites, or potential sites, within a town
centre or on its edge, or satisfactory transport accessibility (including park
and ride) realistically cannot be ensured within a reasonable period of time,
should out of centre development be contemplated.
26. The fifth, and final objective is a presumption against large retail centres
located adjacent or close to existing, new or planned national
roads/motorways. Such centres can lead to an inefficient use of costly and
valuable infrastructure and may have the potential to undermine the
regional/national transport role of the roads concerned. However, as a
limited exception, large retail warehouses may be considered for locations
close to such road networks where the proposed development would be
situated in an Integrated Area Plan area in a Gateway (designated by the
National Spatial Strategy) and where the road network has sufficient
capacity to cater for the scale of development proposed.”
According to the Guidelines, the stipulation concerning road network capacity
requirements for large retail warehouse developments, i.e. individual developments with a
floorspace in excess of 6,000 square metres gross, in an Integrated Area Plan Gateway
area would, in practice, necessitate the location of such developments close to a high
capacity motorway or dual carriageway network and associated interchange. The
planning process applying to such retail warehouses requires that proposals are
accompanied by traffic impact assessments demonstrating compliance, inter alia, with the
criterion on road network capacity and as regards access by existing or planned public
transport services in order to be acceptable from a planning viewpoint (paragraph 84d).
2.4 Official <strong>Policy</strong> Objectives: Summary.
In summary, the objectives of the various official policies and guidelines already outlined
are to:
� protect the substantial investment being made by Government in upgrading
national roads;
� maintain the intended transport function, traffic carrying capacity and efficiency of
the network of national roads;
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
� ensure high standards of safety for road users and that these standards are not
compromised by risks arising from traffic movements associated with multiple
access points to the network;
� extend the service life of the national road network, thereby deferring to the longer
term the need to reinvest in further road improvements and the construction of new
roads which would have implications for landowners, local communities, the
environment and public expenditure;
� protect the routes of future roads, including road upgrades, from development;
� strongly advocate the use of established town and district centres as the preferred
locations for new retail developments that attract many trips, and
� establish a presumption against large retail centres being located adjacent or close
to existing, new or planned national roads/motorways as such centres can lead to
an inefficient use of costly infrastructure, may undermine the regional/national
transport role of the roads concerned and could conflict with the official policy
preference for locations in established town and district centres.
(However, as a limited exception, large retail warehouses may be considered for
locations close to such road networks if situated in an Integrated Area Plan area in
a Gateway designated by the National Spatial Strategy, provided the road network
has sufficient capacity to cater for the development proposed).
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
Part 3
Development Plans and
Planning Applications
3.1. NRA Approach and Objectives.
The approach to be adopted by the Authority in relation to, (i) proposals by planning
authorities to amend their development plans and (ii) planning applications for
development that could affect the safety and efficiency of national roads, will seek to
uphold official policy and guidelines, as outlined in Part 2, for the management of
development and access to national roads.
In line with that policy, the Authority will seek to limit accesses to/from motorways
and dual carriageways to:
� approved interchanges,
� on-line service areas and rest areas provided at the instigation of local
authorities in conjunction with the Authority, and
� Garda enforcement platforms.
Save in exceptional circumstances, the Authority will generally adopt a restrictive
approach in the case of other national roads to which speed limits greater than
50 kph apply as regards development proposals involving new accesses or the
generation of increased traffic from existing operations and activities on such roads.
Sections of national roads on the approaches to or exits from urban centres may be
subject to a speed limit of 60 kph. These sections are intended to act as zones of
transition between areas to which higher (in the outward direction) and lower (in the
inward direction) speed limits apply. Zones of transition should be preserved free
from development entailing direct access to the sections of national road concerned
in the interests of safety.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
3.2. Development Plans.
3.2.1. Consultation with Planning Authorities.
The Authority will seek to engage proactively with planning authorities on those
aspects of development plans that concern or could impact on national roads
with a view to establishing appropriate strategies and provisions that can cater
for future sustainable development while simultaneously respecting to the
extent possible the official policy objectives set out in Part 2.
3.2.2. Preparation and Review of Development Plans.
Section 22 of the Roads Act, 1993, enables the Authority to make
recommendations to a planning authority regarding the content of that
authority’s development plan. The planning authority is obliged to consider any
recommendation made. In addition, the Authority is consulted by planning
authorities on their proposals to amend their development plans. Aspects of
particular interest from the national roads perspective would include proposed
changes, including rezoning, with implications for access to national roads and
for the traffic carrying capacity and operational efficiency of such roads,
including interchanges, as well as effects on road scheme costs as a
consequence of increased land values linked to rezoning. In the event of the
Authority deciding to make recommendations on proposed amendments to a
development plan it would be guided by the policies and objectives set out in
Part 2.
As part of the process for the review of development plans, planning authorities
are required under section 11(3)(c) of the Planning and Development Act,
2000, to consult with the Authority so as to ascertain any long-term plans in
respect of the provision and upgrading of national roads in their areas. This
provides a valuable mechanism whereby potential routes for new roads or
planned significant improvements to existing roads can be notified to planning
authorities and appropriate provision made in development plans so as to
facilitate the future delivery of the road schemes concerned.
3.2.3. Impact of Development on Interchanges.
As indicated in section 1.4, the location and capacity of interchanges on
national roads are determined during the road planning process having regard
to a range of factors and taking account, in particular, of anticipated inter-urban
and inter-regional traffic volumes over a design horizon of at least 20 years. A
key objective of the approach to road planning is to achieve a satisfactory level
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
of service for road users and to protect and maintain that service over the
design period applying to the mainline road and associated interchanges. In
the circumstances, it will be necessary for planning authorities to exercise
particular care in their assessment and management of development proposals
relating to the rezoning of locations at or close to interchanges where such
development could generate significant additional traffic, thereby potentially
compromising the capacity and efficiency of the national road/associated
interchanges and possibly leading to the premature and unacceptable
reduction in the level of service available to road users. Planning authorities, in
considering proposals for rezonings adjacent or close to existing or planned
national roads/motorways and interchanges, should give special attention to
the preference expressed in the Retail Planning Guidelines for locating
developments that attract many trips within established towns and district
centres. The Authority would welcome dialogue with planning authorities on all
rezoning proposals of this nature with a view to adopting an agreed
methodology to assess traffic and transport implications and impacts on the
operation and performance of relevant interchanges and national roads as an
aid to devising appropriate and sustainable development strategies.
3.2.4. Proposed Developments in Urban Areas and Designated
Development Centres.
The Authority can support practices aimed at concentrating development in
established urban areas and designated development centres. Consolidation
and, as appropriate, expansion of such locations might ideally be pursued
within an integrated land use and transportation strategy informed by
sustainable development considerations.
3.2.5. Protecting Route Options for New or Improved Road Schemes.
Planning for new roads typically involves the identification and evaluation of a
number of route options taking account of environmental, engineering, traffic
and cost factors. Some time is required to complete this process and to identify
the preferred route option, which, on balance, is assessed as representing the
optimum solution. The selected route is subsequently subjected to more
detailed evaluation, including, where appropriate, the preparation of an
Environmental Impact Assessment and a Motorway Scheme/Compulsory
Purchase Order which provide the basis for seeking the approval of An Bord
Pleanála to the proposed road as well as the acquisition of the necessary lands
upon which to construct the road. Ideally, planning authority proposals to
rezone land should not compromise the road planning and route option
evaluation process in circumstances where road scheme planning is underway
and potential routes have been identified and brought to the attention of the
planning authority. Similarly, rezoning proposals should not have the effect of
increasing the cost of land to be acquired or under active consideration as a
route option for a national road scheme. Such proposals, while potentially
bringing major financial gains to the property owners involved, would be at
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
variance with the broader public interest and would, by significantly increasing
the cost of the land to be acquired for road schemes, reduce the funding
available to the Authority for road construction and improvement work
generally. Accordingly, where circumstances warrant, the Authority will make
recommendations to planning authorities concerning amendments to
development plans with a view to maintaining road scheme route options while
planning proceeds and avoiding unnecessary increases in the cost of land
required for road related purposes.
The Authority is conscious of the uncertainty created as a consequence of the
time taken to progress the road scheme route selection process and the
implications this has for potential development and related planning
applications on the various route options under investigation. The Authority is,
however, committed to completing the route selection process within the
shortest feasible timeframe, thereby bringing certainty to the situation and
allowing interested parties and individuals to make planning applications in
respect of route options other than the selected route.
3.2.6. Exceptional Circumstances.
The restrictive approach to development on national roads to which speed
limits greater than 50 kph apply (paragraph 3.1) may be reviewed as part of the
interface between the Authority and planning authorities so as to take account
of any relevant exceptional circumstances. Such reviews would be undertaken
as part of the development plan revision process. Exceptional circumstances
could potentially involve developments of strategic importance which by their
nature are most appropriately located outside urban areas and where the
locations concerned have specific characteristics that make them particularly
suitable for the developments proposed. Developments which could potentially
be catered for in this manner might include large retain warehouses to be
situated in an Integrated Area Plan area in a Gateway where the road network
has sufficient capacity to cater for the scale of development proposed.
In considering whether exceptional circumstances warrant special attention, the
Authority would take into account matters such as:
� the relevance and appropriateness of the proposed development in
supporting the aims and objectives of the National Spatial Strategy and
Regional Planning Guidelines;
� relevant official policies on development management, including <strong>Policy</strong> and
Planning Framework for Roads (1985), Sustainable Rural Housing -
Guidelines for Planning Authorities (2005) and Retail Planning Guidelines
(2005);
� nature of proposed development and the volume of traffic to be generated
by it;
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
� implications for the safe and efficient operation of the national road as well
as for proposed upgrades or routes for new roads;
� implications for the traffic carrying capacity and service life of the road;
� suitability of the location vis a vis alternative locations;
� existing development in the area, and
� the precedent that could be created for follow-on development of a similar
nature and the potential implications involved for national roads.
3.3. Planning Applications.
3.3.1. Notification to NRA of Planning Applications.
The Authority has the status of a statutory consultee under planning legislation
and, accordingly, planning authorities must notify the Authority of planning
applications which involve a new access or material widening of an access to an
existing or planned national road, or where the proposed development might give
rise to a significant increase in the volume of traffic using a national road.
3.3.2. NRA Submissions and Observations .
Article 29 of the Planning and Development Regulations, 2001, enables the
Authority to make submissions or observations to the planning authority in
respect of planning applications notified to the N.R.A.
The decision as to whether or not the Authority makes a submission or
observations is determined on a case-by-case basis. In examining the planning
application, the Authority assesses the location proposed, the potential road
safety issues arising, the volume of traffic to be generated by the development
and the implications for the traffic carrying capacity and efficiency of the national
road in the vicinity of the proposed development. Where relevant, the evaluation
will also address wider national road network implications and the interrelationship
with the surrounding local roads, including the possible need for
junction improvements or, in the case of major development proposals generating
significant additional traffic, new interchanges.
The primary concern of the Authority, in responding to planning applications, is to
ensure that the proposed development does not contravene the official policy
and guidelines outlined in Part 2. Accordingly, the Authority will, as a general
rule, object to planning applications for development that would have
unacceptable consequences for the capacity, operation, efficiency or safety of
national roads or which relate to locations on the inter-urban national road
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
network outside of areas to which a speed limit of 50 kph applies. The Authority
recognises that this approach has implications for certain landowners and
classes of development. However, these implications must be set against the
broader public interest and the substantial benefits, including higher road safety
standards, that will result from achieving the objectives set out in paragraph
2.4 through the exercise of appropriate development management controls.
3.3.3. Access to National Roads.
The Authority is proactive on measures intended to achieve high standards of
road safety and the efficient movement of traffic on national roads. As part of this
approach, the Authority seeks to provide alternative means of access from
existing development to local roads in circumstances where the access to a
national road is closed as a result of the construction of a motorway, dual
carriageway or other major national road improvement scheme. Such access
may be catered for by providing purpose designed service roads or other
appropriate means of connection to the local road network. The significant road
safety and operational efficiency benefits derived from eliminating multi-point
accesses would be undermined by practices that permitted access to national
roads from future development. Accordingly, when dealing with planning
applications for development to be located in rural areas outside of the 50 kph
speed limit zone, the Authority will apply the official development management
policy (see paragraph 2.2) whereby efforts should be made in the first instance to
channel traffic from new development onto existing local roads and, in this way,
make use of established access points to gain entry to national roads.
3.3.4. Road Safety Audits.
The Authority generally requires that planning applications involving a new
entrance to a national road or changes to an existing entrance layout must be
accompanied by a road safety audit so as to better inform the assessment of the
safety implications of the proposed development and to aid the identification of
appropriate measures required to maintain safety standards. The local planning
authority may, however, decide to dispense with the requirement for a road safety
audit in the case of applications for single residential developments.
Safety audits relating to developments affecting national roads may only be
carried out by safety audit teams, the members of which have been approved by
the NRA. Such approvals should be obtained from the Authority (requests to be
sent by e-mail to roadsafetyaudits@nra.ie or forwarded to the Road Safety
Section, National Roads Authority, St. Martin’s House, Waterloo Road, Dublin 4)
before audits are undertaken.
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National Roads Authority <strong>Policy</strong> on Development Control and Access to National Roads
3.3.5. Traffic and Transport Assessments.
Certain development proposals will generate significant additional trips/travel,
including road traffic, with potentially serious implications for national roads and
adjoining local roads. This could, in some circumstances, necessitate changes to
the road and/or junction layout and capacity in order to address road safety
concerns and maintain a satisfactory level of service for road users. Large scale
development may also have significant implications for public transport services.
The Authority favours the preparation of a traffic and transport assessment in
such cases so as to fully address the implications arising and to assist the
evaluation of the planning application. The local planning authority will advise as
to the need for such an assessment to accompany the planning application taking
account of the nature, scale and location of the proposed development and its
potential to generate additional trips/travel, including road traffic.
3.3.6. Financing of Road Upgrading Arising From Approved Development.
In circumstances where the planning applications relating to a national road or an
area served by such a road (whether subject to 50 kph or other speed limit) is
acceptable in principle and the additional traffic to be generated by the proposed
development requires the upgrading of national roads so as to cater for the traffic
concerned and maintain the traffic carrying capacity and efficiency of the national
road network, the costs of appropriate upgrades should be met by the developer.
The Authority will seek a condition in this regard as part of any approval to be
issued by the planning authority in respect of such development so as to protect
the taxpayer from the cost of inappropriate subsidisation of private development
and to retain the Exchequer funding available to the Authority for investment in
national road projects that serve the public interest.
3.3.7. Notification to NRA of Decision to Approve Contrary to NRA
Observations.
In cases where the decision of the planning authority is to grant permission for
development, and where that decision is at variance with the observations
previously furnished by the Authority, planning authorities are required to forward
a report to the Authority on the matter, including a copy of the full decision and
any conditions imposed.
3.3.8. Appeals by NRA to An Bord Pleanála.
It is open to the Authority to appeal to An Bord Pleanála any decisions made by
planning authorities to approve planning applications in respect of which the
Authority had recommended refusal or in relation to the terms of the approval,
including any conditions attached. The Authority has exercised this right in the
past and will continue to do so, where appropriate, taking account of all of the
circumstances involved, including the national planning policies and guidelines
set out in Part 2 of this <strong>Statement</strong>.
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