University College Dublin National University of Ireland Dublin

University College Dublin National University of Ireland, Dublin Connecting rural dwellings with rural development Dr Mark Scott Department of Planning and Environmental Policy University College Dublin Mark. Scott@ucd. ie

University College Dublin National University of Ireland, Dublin Introduction § Growing emphasis in the EU is being given to the objectives of rural sustainable development § Reconciling 3 deeply held set of values: economic growth; social vitality; ecological integrity § Shift in rural policy from sectoral support policies (agriculture) to integrated, territorial and spatial development § However, rural sustainable development remains a deeply contested area of policy formulation

University College Dublin National University of Ireland, Dublin Introduction § § At present there exists a vexed relationship between planning policy and many rural communities Managing rural housing is a complex and multi-dimensional issue Issues: Ø Ø Ø Distribution and intensity Siting and design issues Environmental costs Public health and safety Infrastructural implications Settlement patterns and community vitality

University College Dublin National University of Ireland, Dublin Introduction § Presentation will examine linkages between 2 spatially defined policy instruments, which are both concerned with delivering rural sustainable development: Ø Ø Local rural development strategies Statutory land-use planning § Limited integration of processes and goals § Disconnect between physical and environmental goals and social and economic issues § Impact of new governance initiatives

University College Dublin National University of Ireland, Dublin Presentation outline § § Rural governance and the regulation of rural space The role of planning in managing rural spatial change Local case studies and research findings Policy development and conclusions

University College Dublin National University of Ireland, Dublin Rural governance and the regulation of rural space 1. Local rural development in 1990 s: 1. 2. Area-based, community-driven, integrative Partnership governance 2. Public policy commitment to sustainable rural development 1. 2. Republic of Ireland: Rural Development White Paper Northern Ireland: Rural Development Programme Strategy

University College Dublin National University of Ireland, Dublin Rural governance and the regulation of rural space § § § Fundamental changes have taken place in Europe’s rural economy and society (Marsden, 1999): The decline in agricultural employment The emergence of environmentalism as a powerful ethic and political force Emergence of new uses for rural space Increased personal mobility – commuting, migration, tourism The emergence of new winners and losers from change processes – social exclusion § Shift from productivist to post-productivist era § The consumption countryside

University College Dublin National University of Ireland, Dublin Rural governance and the regulation of rural space § The role of planning policy in managing rural spatial change § In theory, development plans could provide a key statutory framework for rural development programmes: § § § Allocation of resources receptive to the plight of rural areas Public participation and consensus-driven strategies Mediate between conflicting conservation and development goals ‘Place-making’ Involvement of elected representatives

University College Dublin National University of Ireland, Dublin Local case studies Co Mayo & Co Donegal

University College Dublin National University of Ireland, Dublin Local case studies § Research approach 1. Inter-related topics 1. Framing rural problems/issues 2. Policy outcomes 3. The statutory Development Plan as an arena for policymaking 4. The Development Plan as a tool for rural sustainable development 5. Policy coordination

University College Dublin National University of Ireland, Dublin 1. Framing rural problems/issues § § § Planning policy: Central theme: landscape quality ‘Constant threat from inappropriate pressures’ Linked to the tourism economy Local development perspective on landscape: § § § Landscape protection aimed at tourists, not locals ‘Living and working countryside’ Conflict over new demands for rural space (residential versus recreation uses) § Local development - Central narrative of the rural § Depopulation and out-migration

University College Dublin National University of Ireland, Dublin 1. Framing rural problems/issues Conflicting constructions of rurality

University College Dublin National University of Ireland, Dublin 2. Policy outcomes § Tensions in policy goals related to ‘framing’ of rural issues § Local development interests: § § § § Countering out-migration provided the key policy direction Planning policy described as a ‘barrier’ to local development Planners and rural housing: In one example, the Draft plan contained policies for restricting housing in the countryside in favour of clusters and villages Restrictive policies replaced by more liberal guidelines in final plan – pressure from councillors In second example, rural housing policy is based solely on landscape considerations Perceived ‘urban bias’ of planning officials

University College Dublin National University of Ireland, Dublin 3. The Development Plan as an arena for policy-making 1. Development plan process as an arena for developing rural sustainable development goals? 1. 2. 3. 4. Community meetings Non-attendance of key stakeholders Style of meetings Councillor involvement

University College Dublin National University of Ireland, Dublin 4. The Development Plan as a tool for rural sustainable development § § § § Majority of local development programmes had a clear spatial emphasis, however… The local authority development plan viewed as irrelevant Development plan perceived as a negative and technical document and as a regulatory instrument Conflict between environmental goals and social and economic development e. g. rural housing Marginalisation of planning: Limited spatial vision Preoccupation with incremental development ‘Muddling through’

University College Dublin National University of Ireland, Dublin 5. Policy coordination New local governance structures 1. Strategic Policy Committees (local government) 1. 2. Low profile and limited commitment Unclear role 2. County Development Boards 1. 2. 3. 4. 5. High profile Extensive strategic planning process Environmental dimension largely ignored Limited integration with development plan Disconnect between spatial/physical/environmental objectives and social/economic/cultural goals

University College Dublin National University of Ireland, Dublin Policy development § Recognise that non-agricultural interests have moved central in shaping rural space § Contrasting narratives of the rural – key to policy development § Developing holistic approaches to rural sustainable development § § § A need to consider the economic and social health of rural settlements as aspects of sustainability alongside environmental dimensions Social vitality/sustainable livelihoods/employment-led regeneration Addressing the disconnect between environmental and spatial goals and economic and social issues in local policy making

University College Dublin National University of Ireland, Dublin Policy development § Developing interactive styles of statutory plan-making § Developing and supporting innovative approaches to community participation Planning in partnership with rural communities Consensus-driven development strategies § § § Environmental management rather than development control § An evidence-based approach to policy development § § Policy debate has been undertaken in the absence of any research or limited empirical understanding of key issues Economic, environmental or community impacts

University College Dublin National University of Ireland, Dublin Final thoughts: § A productivist to a post-productivist era in the countryside § Public policy commitment to ensuring vibrant sustainable rural communities (Rural White Paper) – rural development context for settlement planning § Misleading to portray a singular rural housing debate § Planning policy viewed as a technical and regulatory instrument, with planners as ‘gatekeepers’ of change in rural areas § Addressing research deficit should be a key priority § Rural planning encompasses more than ‘one-off’ housing!