Reply - 91715

COMHAIRLE CONTAE ÁTHA CLIATH THEAS
SOUTH DUBLIN COUNTY COUNCIL

South Dublin County Council Crest

MEETING OF SPECIAL MEETING OF COUNTY COUNCIL

Friday, June 19, 2026

MOTION NO.

MOTION: Councillor L. O'Toole with Councillor F. Timmons, Councillor V. Casserly

Amendment No 3, Pg 104 Finnstown Castle That the Council amends the Chief Executive's Recommendation in respect of Amendment No. 3 Finnstown Castle by deleting the proposed residential zoning and retaining the existing zoning applicable to the lands.

REASONS The Council acknowledges the requirement to provide sufficient zoned land to meet housing demand in accordance with the National Planning Framework and Housing Growth Re-quirements Guidelines. However, the Planning Authority has identified capacity for approximately 16,937 units against a baseline requirement of 11,699 units providing significant additional capacity above the minimum requirement. Accordingly, the rezoning of every proposed site is not necessary to achieve compliance with national housing policy. The Chief Executive's assessment acknowledges the significant level of public interest and submissions received in respect of the Finnstown Castle lands and recognises the heritage sensitivity of the site. Finnstown House (RPS Ref. 112) is a Protected Structure of regional significance and forms part of an historic demesne landscape recognised within the Record of Protected Structures and the National Inventory of Architectural Heritage. Previous planning proposals within the curtilage of Finnstown House were refused by both South Dublin County Council and An Bord Pleanála on the basis of their impact on the pro-tected structure, its curtilage, attendant grounds, historic landscape setting and tree-lined en-trance avenue. The lands represent one of the last remaining undeveloped landscape buffers between the established communities of Adamstown and the Newcastle Road corridor and perform an important heritage, landscape, visual amenity and biodiversity function. The proposed rezoning would facilitate approximately 1,017 residential units in close prox-imity to a Protected Structure and within a sensitive historic demesne landscape. Such a yield would require a significantly intensified form of development that would fundamental-ly alter the character of the lands and diminish the open landscape context which contributes to the significance and appreciation of Finnstown House. The Chief Executive's Report further acknowledges concerns regarding the concentration of future development within the Lucan-Adamstown area together with concerns relating to the capacity of existing social, community and physical infrastructure to support further growth. Having regard to the proper planning and sustainable development of the area, the acknowl-edged heritage sensitivity of the site, the previous planning history of the lands, the im-portance of preserving the remaining landscape buffer between major growth areas, and the availability of alternative lands to meet housing requirements these lands should not be re-zoned for residential development.

CE Response:

This amendment is in relation to the rezoning of lands at Finnstown Castle that are currently zoned Objective OS to RES under Variation No. 2 of the South Dublin County Development Plan 2022-2028. The rezoning went out to public consultation with an accompanying specific local objective (SLO) as follows, with additional text recommended in the CE Report in bold:

CS7 SLO3 - Development on RES zoned lands at Finnstown Castle shall comply with the following:

Development may notcommenceuntil DART+ South West, or an equivalent rail service has commenced construction or operation, as may be relevant.
An infrastructure masterplan shall be submitted to the planning authority as part of a planning application for residential development, addressing the water and wastewater network upgrades as necessary to serve the subject lands while demonstrating that the needs of zoned lands in the surrounding area, includingClonburrisSDZ, are not compromised. To be agreed with Uisce Éireann in advance of submission of a planning application.
Throughappropriate studiesor otherwise and having regard to the cumulative development potential around and including the subject lands, planning applications for residential development on the subject lands shall be informed by and address, inter alia:

a. Retention and enhancement of the hedgerow and tree line on the north-western boundary of the site as recorded on 1st Edition OS maps,

b. A Social Infrastructure Audit and provision within development proposals to address any needs identified,

c. A Transport and Traffic Assessment detailing the impact of the proposed development and measures to alleviate its impact,

d. A Design Statement outlining how the proposal responds to the setting and special interest of the Protected Structure and its curtilage,

e. A Public Open Space Audit to inform proposals for public open space and recreational facilities,

f. Provision for direct active travel connections from the subject lands into Adamstown SDZ; and

g. Demonstrate that adequate educational capacity for residential growth adjacent to Adamstown are catered for, in consultation with the Department of Education and Youth.

Context and Process

The NPF Implementation Guidelines requires Councils to identify the lands needed for delivery of the new targets within the Development Plan period. They also included the need for Councils to consider capacity for up to 50% above the baseline housing growth requirements to provide options for delivery.

The Settlement Capacity Audit (SCA) presented to Councillors in October 2025, indicated that by the end of 2028 the current zoned land in the county could deliver 9,613 dwellings based on a business-as-usual model. The NPF Revised baseline housing target for the county to 2028 is 11,699 dwellings, resulting in an identified shortfall of lands to deliver 2,086 units.

Following the full review process Variation No. 2 identifies lands which significantly increase the capacity of the county to deliver the baseline target of 11,699 units to 2028 through providing an additional 156.5 hectares with an equivalent potential for 7,324 dwellings. In total this provides capacity for 16,937 units which incorporates c. 45% additional provision over the baseline requirement.

It should be noted that the approach undertaken by the Planning Authority is directly aligned with key policies underpinning the sustainable policy approach within the National Planning Framework (NPF). This approach places a strong emphasis on compact growth and Transport Orientated Development (TOD). In particular, National Policy Objectives 10, 97 and 99 support the delivery of residential development at appropriate locations within or adjacent to the existing urban footprint, focused on areas served by existing or planned high-capacity public transport.

The process therefore aligns with national policy which requires that planning authorities plan proactively for future growth, including the identification of lands that may contribute to housing delivery within the lifetime of the Development Plan and beyond.

Record of Protected Structure

The motion reason raises concern relating to the historic significance of Finnstown House (RPS 112), a Protected Structure. However, it is important to clarify that the proposed rezoning does not alter or diminish the statutory protection afforded to these structures, their curtilage, or their setting.

The rezoning process establishes the land-use framework at a at a strategic level. Therefore, all lands in proximity or associated with the RPS remain subject to the full rigour of heritage protection policies and objectives set out in the South Dublin County Development Plan 2022–2028.

Furthermore, the Specific Local Objective (SLO) for the Finnstown Castle lands provides a robust mechanism to ensure that any future development proposals respond sensitively and appropriately to the historic context. In particular, it requires the preparation of a Design Statement and supporting heritage documentation to demonstrate how the proposal respects the setting, curtilage and special interest of the Protected Structures. These will include the preparation of Conservation Reports and, where necessary, Architectural Heritage Impact Assessments.

Accordingly, while the historical association of the lands with the wider demesne is recognised, the Planning Authority is satisfied that the combination of statutory protections, Development Plan policies and the site-specific SLO provides a comprehensive and effective framework to safeguard the architectural and landscape heritage of Finnstown Castle.

Landscape Character and Separation from Existing Built Form (buffer)

The motion reason raises concerns regarding the landscape character of the Finnstown Castle lands, including their role as open greenfield lands and as a visual and environmental buffer between Adamstown, Lucan Village and surrounding infrastructure.

The proposed rezoning does not disregard these landscape sensitivities. Instead, it is framed to ensure that landscape character is protected to the degree possible. It is noted that the lands are within a landscape character type described in South Dublin’s Landscape Character Assessment, adopted as part of the County Development Plan, defined as ‘Urban Fringe / Periurban’. Therefore, while the lands are currently open in character, they are within a wider urban character landscape. The Finnstown Castle Specific Local Objective (SLO) requires that the key natural heritage features—particularly historic hedgerows, tree lines and defining features of the demesne landscape—be retained and enhanced, and that development responds to the site’s established character, setting and environmental qualities. This will be dealt with at a detailed level as part of a planning application assessment. Further to this the site also contains an RPS designation (RPS 112), which as outlined above, will require careful consideration and appropriate responses.

In addition, the Development Plan includes clear objectives to protect landscape character and safeguard green infrastructure networks, requiring that development avoids fragmentation and maintains ecological connectivity. Proposals must demonstrate a sensitive approach to future designs, ensuring that open space provision, layout and built form are informed by the existing landscape framework.

While currently zoned open space, the site is located within a broader urban context, adjoining established and planned communities with significant existing services and public transport connectivity. National and regional policy supports compact growth and consolidation in such locations. In this regard, the lands have the capacity to accommodate development in a manner that aligns with sustainable planning principles while still protecting defining features within the landscape.

Overall, the Planning Authority is satisfied that the combination of Development Plan policies, SEA-informed mitigation measures within the SLO provides a strong and enforceable framework to ensure that landscape character, visual amenity and green infrastructure functions are protected and enhanced as part of any future development.

Previous Applications and Assessments

In relation to concerns regarding previous refusals on the subject lands by An Coimisiún Pleanála (ACP), formerly An Bord Pleanála (ABP), it is noted that each application is assessed on its own individual merits, having regard to the relevant policy context from the relevant development plan, and material considerations at time of determination. The decisions and outcome of the various assessment do not in themselves prejudice the rezoning of the lands.

The refusals were generally related to the RPS and the impact of the proposals on the RPS. It is noted that none of the refusals were located in the lands north of the main avenue. Notwithstanding the proposed change in zoning, as per the variation, any future proposal on the lands would be required to address all the items as per the previous refusals, including issues relating to the RPS and impact upon the receiving environment which can be assessed at planning application stage. It is considered that the parameters of any previous application(s) do not invoke a sterilisation of the lands from alternative uses and/or access arrangements under a revised zoning objective.

It is considered that a development proposal of an appropriate scale and design, having regard to its receiving environment and the protection of Finnstown Castle, will be supported by robust technical assessment. It is also noted that there are many examples throughout the county and elsewhere, of successful development on lands around protected structures.

Having regard to the above, it is considered appropriate to retain the proposed ‘RES’ zoning objective, with detailed matters to be addressed at planning application stage, in consultation with the relevant aforementioned statutory bodies.

Cumulative Infrastructure Impacts

The motion refers to the concentration of future development around the Lucan / Adamstown area. The Planning Authority notes that Adamstown SDZ has been comprehensively planned and delivered with a broad range of community and social infrastructure. This includes a Primary Care Centre, district and neighbourhood centres with retail and service uses, larger shopping facilities, cafés, a veterinary practice, and a permitted library and enterprise/community facility. Adamstown also benefits from strong rail connectivity to Dublin City Centre, providing access to higher-order services, employment and amenities. Both Adamstown and Clonburris SDZs incorporate, or will provide, dedicated community centres as development progresses, to which Finnstown will have direct access to, in addition to the existing services and facilities on the Newcastle Road.

At a wider level, the Council has recently enhanced social infrastructure across Lucan, including the Lucan Leisure Campus and swimming pool, public realm upgrades in Lucan Village, the opening of Lucan House, and the ongoing development of Griffeen Park.

The proposed rezoning of Finnstown Castle is subject to a robust Specific Local Objective (SLO), which directly addresses concerns regarding cumulative infrastructure impacts and quality of life. The SLO requires that any residential development be informed by a Social Infrastructure Audit to assess existing capacity and identify additional requirements arising from the proposal, with appropriate provision to be incorporated within the development. This ensures that infrastructure needs are identified and addressed at the earliest stage, taking account of cumulative growth across the wider area.

The Planning Authority is satisfied that strong, plan-led frameworks are in place to deliver on sustainable development. The combination of significant existing and committed infrastructure within Adamstown and Clonburris SDZs, recent and ongoing investment in the wider Lucan area, the integration requirements of the amended Finnstown Castle SLO, and continued inter-agency coordination provides a robust basis to accommodate future population growth. Accordingly, the Planning Authority is satisfied that development at Finnstown Castle can be delivered in a manner that is aligned with infrastructure capacity and integrated within a well-served and accessible community.

NPF Requirements

As mentioned above, the full review process Variation No. 2 identifies lands which significantly increase the capacity of the county to deliver the baseline target of 11,699 units to 2028 through providing an additional 156.5 hectares with an equivalent potential for 7,324 dwellings. In total this provides capacity for 16,937 units which incorporates c. 45% additional provision over the baseline requirement.

The Section 28 Guidelines state as follows:

‘....planning authorities should address the scope for additional provision of up to 50% in excess of the baseline housing growth requirement set out in Appendix 1, in light of the urgent need to increase housing delivery and to optimise the ability to deliver on the housing requirements of the Revised NPF. ‘Additional provision’ recognises the fact that, for a variety of reasons, a relatively significant proportion of zoned lands are not activated over the period of a development plan’.

SDCC have sought to comply with the section 28 guidelines by zoning 45% additional provision. This approach is consistent with the NPF Implementation Guidelines (2025), which require Planning Authorities not only to meet baseline housing targets but also to provide a sufficient surplus of zoned land to ensure flexibility, choice and delivery over the lifetime of the Development Plan.

In this regard, the identification of a range of sites of varying scale and characteristics is necessary to ensure that housing delivery is not reliant on a limited number of sites and can respond to infrastructure, phasing and market constraints. It is therefore not considered appropriate to exclude individual sites, such as Finnstown Castle, on the basis that capacity exists elsewhere, as this would undermine the robustness and resilience of the identified overall land supply.

Conclusion

Given the approach taken to the Variation, it is considered that South Dublin has clearly identified sufficient and suitable zoned land, including the Finstown lands, to meet the housing shortfall for 2028 with built-in additional capacity consistent with the achievement of the shared goals in the NPF, RSES and County Development Plan in relation to compact growth, accessibility, sustainable mobility and climate action.

The issues raised in motion regarding infrastructure capacity, cumulative growth, heritage sensitivity, and community provision have been comprehensively considered and are addressed through CS7 SLO3 and the existing County Development Plan framework. While Finnstown represents a strategically located opportunity to contribute to housing targets, compact growth, and transit-oriented development, any potential development is subject to stringent requirements. These include the commencement of DART+ South West, the preparation of an agreed infrastructure masterplan, and the submission of detailed assessments covering social infrastructure, transport, open space, heritage protection, and educational capacity. The SLO further ensures the retention of key landscape features, including hedgerows, and the protection of the setting of the Protected Structure. Accordingly, while the lands have potential in principle, their suitability for development is strictly contingent on demonstrable compliance with these robust criteria at planning stage, ensuring that all previously identified issues are fully addressed in the interests of proper planning and sustainable development.

It is noted that the OPR has recommended progression of the Variation amendments 1-16.

CE Recommendation

To adopt Amendment No. 3 Finnstown Castle with the following amendment to CS7 SLO3 to reflect the recommendations in the CE Report (changes in bold):

CS7 SLO3

Development on RES zoned lands at Finnstown Castle shall comply with the following:

Development may notcommence until Dart+ Southwest has commenced construction or an equivalent rail service to the Dart+SW is operational, as may be relevant.
An infrastructure masterplan shall be submitted to the planning authority as part of a planning application for residential development, addressing the water and wastewater network upgrades as necessary to serve the subject lands while demonstrating that the needs of zoned lands in the surrounding area, includingClonburrisSDZ, are not compromised. To be agreed with Uisce Éireann in advance of submission of a planning application.
Throughappropriate studiesor otherwise and having regard to the cumulative development potential around and including the subject lands, planning applications for residential development on the subject lands shall be informed by and address, inter alia: