Reply - 91724

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 C. Brady, Councillor H. Farrell, Councillor V. Casserly

Motion: Amendment No 3. (Finnstown Castle) Propose: that Amendment No.3 (Finnstown Castle) be withdrawn; that the designation of lands at Finnstown Castle that are the subject of this Material Variation remain zoned OS; that a site specific SLO is an insufficient protective measure for these important green belt lands and; that the status quo (as provided for in the South Dublin County Development Plan 2022-2028) regarding of the zoning designation of the said Finnstown Castle lands be preserved;

Reason: The proposed rezoning is a disproportionate and arbitrary response to the National Planning Framework. The proposed rezoning is wholly premature given the incomplete build out of the Adamstown SDZ and Clonburris SDZ. The proposed rezoning was fully considered, deliberated upon and ultimately rejected during the original County Development Plan process in 2022. The proposed rezoning would be injurious to a protected structure - Finnstown Castle The proposed rezoning (amongst others) places a disproportionate burden on Lucan and the Lucan Electoral Area in terms of the County wide compliance with the National Planning Framework. This proposed rezoning would lead to a catastrophic loss of green space as the subject lands are the last piece of green belt buffer from the N4 to 12th Lock of the Grand Canal along the Newcastle Road corridor. The subject lands have very poor access and egress points, the Newcastle Road (R120) is currently at saturation point, the only other access part is a designated local access road - Old Tandy's Lane The proposed rezoning on the face of it constitutes a de facto alteration to the Adamstown SDZ boundary - it is noted that a large number of submissions have raised legal concerns on this point under the Doctrine of Legitimate Expectations. In the future an opinion from the County Law Agent should be sought to clarify whether this proposal creates a potential legal liability for the County The CE's report concedes that the 'submissions raise consistent and strongly held concerns that the Lucan-Adamstown area is experiencing unsustainable levels of development, characterised by cumulative population growth, a concentration of housing delivery, and infrastructure provision not keeping pace with development' The CE's report also concedes that 'Submissions also raise concerns that a disproportionate quantum of lands identified under the proposed variation are located within the Lucan-Adamstown area and that The Planning Authority acknowledges the perception that a disproportionate share of future development is directed to the Lucan area' The CE's report also concedes that 'the Planning Authority notes the strength and volume of submissions objecting to the principle of rezoning the Finnstown Castle lands from Open Space to Residential, including concerns regarding loss of greenfield land, perceived departure from long-standing planning intent and the role of the lands as an environmental and visual buffer between Adamstown, Lucan village and the road network. The importance of Finnstown Castle as a landscape feature and part of the wider green infrastructure network is acknowledged.' The CE's report 'acknowledges that significant congestion exists along the R120 (Newcastle Road) and surrounding routes, with impacts on accessibility'. The CE's report 'acknowledges the concerns raised in submissions regarding pressure on schools, healthcare provision and wider community and social facilities in the Finnstown-Adamstown-Lucan area. These matters are recognised as fundamental to the creation of sustainable communities

Cllr Vicki Casserly Cllr Caroline Brady Cllr Liona O'Toole

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 the recommendations from the CE Report in bold:

CS7 SLO3

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

Development may not commence until 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, including Clonburris SDZ, are not compromised. To be agreed with Uisce Éireann in advance of submission of a planning application.
Through appropriate studies or 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.

SDZ Not Fully Built Out

It is considered that the approach for this site, and other proposed sites, is in line with the requirements of the Section 28 Guidelines with regard to the implementation of the revised NPF. The location of the sites proposed are based on the parameters and principles of the Compact Settlement Guidelines and grounded in the principles set out within these to ensure sites which are proposed as part of the variation to the plan are sustainable, compact and have access to public transport. The NPF requires additional lands to be zoned to meet a revised housing target, that target will need the build out of key strategic locations, such as Adamstown and Clonburris SDZ, in addition to newly zoned lands, as per the variation. Therefore, the process is not considered disproportionate or arbitrary, but more so a requirement from national government which the Planning Authority is seeking to meet through an evidence-based approach to the identification of sites based on proper planning and sustainable development.

Previous Development Plan Process

The motion notes the process for current CDP 2022-2028, the same plan currently being varied under this section 58 variation process. Since the adoption of the County Development Plan in 2022, a Revised National Planning Framework has been published with revised population and housing targets. The Planning Authority is responding to this need and to the requirements set out in the associated NPF Implementation Guidelines, for which a Report to Councillors was presented at the October 2025 Council Meeting.

It is considered that the site, given its context, and location in proximity to the Adamstown train station, a high frequency bus service, within access of local services and retail, alongside the proposed measures set out in the SLO, is a suitable site for rezoning at a time when housing targets have increased to meet the demands of population growth.

Record of Protected Structures

The motion 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 simply establishes the land-use framework at a strategic level and does not confer development consent or predetermine the acceptability, form or extent of any future development. All lands in proximity to the Protected Structures, including those that may historically have formed part of the wider demesne, 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.

The rezoning places a disproportionate burden on Lucan

The rezoning forms part of a county-wide strategy to meet NPF housing targets, with a focus on transport-oriented development (TOD) in accordance with national policy. The lands are well-located to utilise existing infrastructure, services and transport, as well as planned transport infrastructure ensuring efficient and sustainable growth distribution.

Furthermore, the proposed zoning is consistent with the National Planning Framework and Regional Spatial and Economic Strategy, which promote compact and sequential growth, and the efficient use of serviced land within metropolitan areas. The development of these lands will be supported by existing and planned infrastructure associated with Adamstown SDZ, together with site-specific servicing requirements

Loss of Green Space and Buffer

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, 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.

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

SDZ Boundary

The proposed rezoning is not an alteration to the SDZ or its boundary. It is a standalone proposed variation to the zoning of the site within the context of the current development plan. The proposal has no bearing on the statutory grounding associated with the Adamstown SDZ, and the planning scheme will continue to be applied to the Adamstown SDZ lands. The lands at Finnstown will be required to conform with the SDCC CDP, National Guidelines (Section 28 or as superseded) and the relevant zoning and SLO.

Cumulative Development and Infrastructure Provision

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 zoning of lands at Adamstown West will further support the coordinated planning and delivery of social infrastructure, informed by ongoing engagement with key stakeholders, including the Department of Education and Youth, the Health Service Executive and the National Transport Authority.

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.

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.

Traffic and Transport

The motion raises issues of access and egress, notably on to R120/Newcastle Road and access from Tandy’s Lane, a smaller local lane. A Transport and Traffic Assessment is required as one of the objectives attached to the proposed rezoning. Such an assessment will examine the impact of the proposed development and measures to alleviate its impact for any future development. It is considered that this is an appropriate and enforceable measure to ensure appropriate access and understand needs and requirements of the site, prior to development, allowing a full and robust assessment of any potential application for development on site.

The issues raised relating to traffic and transport will be further supported by active travel routes and future linkages between Adamstown SDZ and site, the delivery of DART+SW, and the existing high capacity bus service in the area.

Further to this, the County Development Plan also provides for the Western Dublin Orbital Route (N7–N4, with potential N81 extension) to improve network resilience, subject to environmental protections and further review, alongside Objective SM6 SLO 1 to assess wider transport needs across the western area. The Council is commissioning an Area-Based Transport Assessment for the western County to identify short-, medium-, and long-term solutions, including interim measures and a full Transport Plan (2026–2028) with public consultation. This approach will further supplement the SLO, existing and planned transport provision for area, and aid the combating of traffic and congestion

Conclusion

Given the approach taken to the Variation, it is considered that South Dublin has clearly identified sufficient and suitable zoned land, including the Finnstown 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.

Finnstown represents a strategically located opportunity to contribute to the required housing targets, compact growth, and transit-oriented development in line with national policy. The SLO, alongside existing County Development Plan policy will ensure that key issues for the site are addressed through a masterplan and other specified measures, including the retention of key hedgerows landscape features, and the protection of the setting of the Protected Structure.

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):