An Bord Pleanála

A 10 year planning permission for development at Dublin Airport, east of the existing terminal building adjoining Pier C. The development will consist of the construction of: 1) a passenger terminal (which will be built in two phases) of ca. 92,049 sq.m. in 4 no. interconnecting blocks ranging in height from two to four stories with an overall height of 35m, which partially bridges the access road to the existing passenger terminal building; 2) a three storey Pier Building with an overall height of 18m (ca. 24,052 sq.m.), complete with 19 no. air bridges and associated fixed links. 3) a two storey over basement energy centre containing water storage and plant for power supply, heating and cooling systems (ca. 5,049 sq.m. with total height of 11m and a chimney stack of 38m); 4) external service yard; 5) realignment of existing internal access road infrastructure and provision of new access roads, including pedestrian and cycle routes, all contained within the existing airport campus; 6) Rearrangement of the existing coach park adjacent to the north of the existing terminal building; 7) separate car, taxi and bus set-down areas; 8) associated services connections; site development; and landscaping works, including a feature access area; 9) refurbishment of the existing Pier C; 10) demolition of the following; Corballis House a two storey protected structure with an area of ca. 482 sq.m.; a single storey storage building (ca. 1295 sq.m.); 3 no. single and two storey car hire buildings ca 280 sq.m., 690 sq.m. and 1925 sq.m.); a single storey boiler house building (ca 373 sq.m.); single and two storey DAA Maintenance offices (ca 1,290 sq.m.); a mainly single storey Hanger Building (ca 2,165 sq.m.) and fixed links to Pier C (ca 380 sq.m.). All on an application site of ca. 32,646 ha. The following will be included within the passenger terminal and pier; check-in areas including 58 no. manned desks and 24 no. self-service facilities; passenger services and associated terminal support facilities; departure lounge; baggage processing hall; baggage reclaim area; ca. 5,813 sq.m. of retail (ca. 840 sq.m. landside, ca. 4,973 sq.m. airside); ca 2,730 sq.m. of catering facilities (ca. 643 sq.m. landside, ca. 2,087 sq.m. airside); 2 no. public houses totalling ca. 1,278 sq.m. (1 no. landside of ca. 491 sq.m., 1 no. airside of ca. 787 sq.m.); airline security, immigration and customs offices( ca. 4,625 sq.m. airside); links to a future multi storey car park and the existing passenger terminal; security check-in and arrival areas; associated plant, circulation and toilet space. An Environmental Impact Statement will be submitted to the Planning Authority with the application.

VOLUME 1 – APPLICATION

FILE REFERENCE:PL 06F. 220670

APPLICATION

ApplicantDublin Airport Authority

Planning authorityFingal County Council

P.A. referenceF06A/1248

P.A. decisionTo grant permission

APPEAL

Appeal typeThird party appeal against decision to grant permission

First party appeal against conditions,

Appellants(1)First party -Dublin Airport Authority,

(2)Third party appellants

  • Angela Lawton,
  • Teresa Kavanagh,
  • Maire O’Brien,
  • Bridget Byrne,
  • Portmarnock Community Association (UPROAR),
  • Ryanair Ltd,
  • An Taisce

ObserversDublin Transport Office,

Turnapin Residents Association,

St. Margaret’s concerned residents

Observers to EISMarianne Kennedy (Plane Stupid),

Spurt,

Michael Smith (Heat)

INSPECTORÖznur Yücel-Finn

CONTENTS

VOLUME 1PLANNING APPLICATION5

1.INTRODUCTION

2.PLANNING APPLICATION

VOLUME 2APPEAL44

  1. WRITTEN SUBMISSIONS46
  1. FURTHER INFORMATION REQUEST
  1. REQUEST FOR DOCUMENTS
  1. RELEVANT POLICIES AND GUIDELINES 90

7.ORAL HEARING SUMMARY91

VOLUME 3ASSESSMENT 98

8.INTRODUCTION /DEVELOPMENT DESCRIPTION

  1. ISSUES FOR CONSIDERATION 101

10.ASSESSMENT OF ISSUES ARISING

11.FIRST PARTY APPEAL AGAINST CONDITIONS 256

12.EIS 257

13.LEGAL AND PROCEDURAL MATTERS 268

  1. CONCLUSIONS 278
  1. RECOMMENDATION 292

VOLUME 4PROCEEDINGS 1-223

VOLUME 5APPENDICES

TRANSPORT CONSULTANT’S REPORT

1.0INTRODUCTION

This is an appeal by a number of third parties against the decision of Fingal County Council to grant permission for the above development.

There is also an appeal by the First Party against some of the conditions imposed by the planning authority. Some of these were withdrawn during following discussions during the oral hearing.

There are a number of observers to the appeal and to the EIS. The list of appellants and observers is provided in appendix V. The application is accompanied by an EIS.

The report is presented in five volumes.

  • Volume 1application
  • Volume 2appeal
  • Volume 3assessment
  • Volume 4oral hearing proceedings
  • Volume 5appendices

All volumes should be read in conjunction with each other.

I have conducted the oral hearing and inspected the site and its environs on a number of occasions.

2.0PLANNING APPLICATION

2.1THE PROPOSED DEVELOPMENT

The proposed development is described by the first party, in their submission to the planning authority, as a major piece of airport infrastructure.

The application is for a ten year permission with development in two phases.

It would comprise principally:

  • A new passenger terminal (to be built in two phases) over two and four floors and measuring 92,000m2
  • A new aircraft pier (E) accommodating 11 fixed link bridges and 19 air bridges
  • Connection of the new Terminal to the existing terminal and to the future multi-storey car park (subject to future planning application)
  • An energy centre, a service yard
  • Taxi and bus set down areas
  • Improvements and additions to the road infrastructure, new access roads incorporating pedestrian and cycle facilities, realignment of existing coach park
  • Demolition of Corballis House a Protected Structure
  • Demolition of a number of storage and car hire buildings

It is also stated that the existing Pier C will be incorporated into the new building

In describing the rationale for the proposed development it is submitted by the agents for the applicants that the application is made in response to significant and substantial increases in passenger numbers, to the high expectations of discerning travellers in their interface with the airport, the need for competitiveness in the international tourist and business market, and in response to government initiatives for the overhaul of the transportation network in general and to the airport in particular.

Incremental development of the critical infrastructure could no longer satisfy the growing demand which had an annual growth of 6%, (growing more than 1 million passengers per annum). At the end of 2005 18 million passengers used Dublin Airport. It is estimated that this will reach 30 mppa (million passengers per annum) by 2015-2016.

Together with other key pieces such as the second runway and Pier E the proposed Terminal 2 would take the operating capacity to 35 mppa.

DAA is stated to be committed to accommodating the Metro North line within the airport complex and at a location to ensure connectivity from both terminals 1 and 2 and ease of accessibility for passengers.

The submission accompanying the application describes the development brief with specific objectives with respect to the new terminal (T2), new pier (E), and the kerbs and road system. It also gives an outline of the consultation process with stake holders, and consultation with statutory and non-statutory consultees (105) inviting comments on the proposed content of the EIS.

The submission outlines the key principles needed to realise the Master Plan vision, and submits that they are consistent with the principles established in the LAP.

All modes of travel except the proposed Metro would use the external public road network and internal airport roads network. While a final decision on the alignment of Metro North through the airport has not yet been made, contingency planning for the location of a station within the internal road network area including sufficient space to allow for its construction has been co-ordinated in detail with the Railway Procurement Agency.

The building is stated to be designed to provide a passenger experience in a manner reflective of the gateway status of Dublin Airport.

The proposed building design had three main components. The new terminal building, check in hall separated from the former by vehicular route to terminal 1, and Pier E attached to the new terminal building.

The new terminal building would be four storey high and had a curvilinear roof profile which continued into the check in hall. The two would connected by an elevated tube. The facades of the buildings would have full-length glazing. The three storey pier also had large expanses of glazing.

The proposed development is envisaged to be completed in six stages ( indicated on Figs. 5.1-5.6) to ensure access to T1 during construction.

Phase 1 of the proposed new terminal (T2) would be opened in 2009, while the second phase would be completed in 2015 /2016.

2.2EIS

The EIS accompanying the application is presented in four volumes.

Volume 1Non- Technical Summary

Volume 2Main text of EIS

Volume 3A3 Figures

Volume 4Appendices

Also provided is a CD

The written text is presented in group format under a number of headings examining the existing environmental conditions for each element, determining the potential impacts associated with the proposal during construction and operational basis, and providing mitigation measures.

Four scenarios were considered in impact assessment based on ‘do nothing’ and ‘do something’ scenarios for the years 2012 and 2024. The year 2012 was considered to be the worst case scenario.

Introduction

The purpose of the EIS is stated to report the findings of an environmental impact assessment and to accompany the planning application for the development.

The proposed development would comprise two phases.

The first phase would provide a new terminal (Terminal 2), a new Pier (Pier E), a new central plant facility and new kerbs and roadways servicing Terminal 2.

Phase 2 would provide for the expansion of terminal facilities to cater for growing passenger usage approximately seven years after the opening of the initial Terminal 2 facilities, and would include additional check in facilities, further security processing, expanded baggage hall, increased passenger circulation.

Background to the project

Under this section the EIS provided information in relation to the need for the project, the Government policy, and development of the proposed scheme.

The issues of providing airport facilities for the Dublin region at another location has been assessed previously and found not preferable to providing the required infrastructure at Dublin Airport.

The need

Following completion of Terminal 1, extensions and other projects it was recognised by the DAA that the continuing growth in demand at Dublin Airport could no longer be satisfied. DAA undertook annual aircraft traffic forecasting and estimated that annual passenger traffic would reach 30 MPPA in about 2015-2016.

The facilities were significantly overstretched and without major alterations or expansion, the airlines would experience worsening conditions and declining levels of service.

The need for the construction of Terminal 2 was outlined by the Department of Transport with the approval of the Aviation Action Plan on May 2005, which include ‘the building of a Dublin Airport Authority owned new Terminal at Dublin Airport to open in 2009’.

A significant number of studies have been carried out in relation to master planning at Dublin Airport. These included

  • Dublin Airport terminal and Piers development study (2004)
  • Capacity Enhancement Recommendation report for Dublin Airport Sept 2005
  • Dublin Airport LAP including SEA prepared by Fingal County Council adopted in June 2006.

The principle recommendation of the Capacity enhancement Recommendations Report (Sept 2005) was ‘Enhancement option 3’ to provide for the construction of Terminal 2, Pier E and road way improvements. These would meet the 2007 pier and 2009 terminal completion targets set by the Government, provide for good utilisation of existing infrastructure and assets, provide for ordered and logical arrangement of landside, terminal and airside development zones, provide for incremental projects that address and ensure supply meets demand whilst maintaining on-going operational integrity

Together with the parallel runway the Terminal 2 and pier E would take the operating capacity to around 35 MPPA.

In considering the need for a new terminal and pier development analysis of the ‘Air traffic demand forecasts’ were required. The growth in these forecasts together with current levels of congestion in the existing terminal and the constrained number of existing aircraft stands were the key factors driving the need for the new facility.

For capacity purposes the DAA produced unconstrained updated passenger and aircraft movement demand forecasts, adjusting the previous year’s predictions against actual throughput taking into account of the short and long term primary and secondary traffic drivers. The centreline forecast (2006) predicted that the annual traffic at the airport could reach approximately 30MPPA in the year 2016.

For capacity planning purposes the DAA also produced ‘High Growth’ forecast to assess the additional requirements (based on specific plans such as those by Aer Lingus, indicating fleet acquisition, Ryanair indicating additional aircraft at the airport and Open Skies agreement with the United States)

The peak hour flow figures have been used to derive the primary sizing of the kerbside, terminal and pier facilities. It was anticipated that the new terminal would provide on opening in 2009, a one-way peak hour capacity of 4200 passengers per hour. It made provision following construction of second phase, for an additional peak departing capacity of 5,500 per hour at around 2015.

Alternatives

When assessing the main alternatives the option of developing airport facilities at another location instead of the proposed Terminal 2 was not considered, because the proposed development was founded on the Aviation Action Plan prepared by the Department of Transport (May 2005), which included for ‘the building of a DAA owned new terminal (Terminal 2 ) at Dublin Airport to open in 2009’. Therefore, the Government policy envisaged that the second terminal be built at Dublin Airport.

The EIS for the northern parallel runway did include an Alternatives Report by consultants where alternative options for providing runway capacity (increased use of other airports, provision of single runway elsewhere in the GDA, and replacement of Dublin Airport on a new site) were examined. Therefore the examination of alternatives in this proposal was confined to location of the terminal within the airport campus.

A significant number of studies had been carried out in relation to master planning at Dublin Airport which lead to the recommendation that eastern terminal facilities be developed.

The consultants study identified four development options (east, west, east/west, north) which were then critically evaluated, including sensitivity analysis under the criteria of functionality (operations, technical and design features), deliverability (overall deliverability to 2019, and deliverability of 20MPPA capacity by 2010), and cost (construction, operation and maintenance).

The recommendation for the preferred option (east for terminal and pier facilities) was made on the basis that it rank highest overall for its combination of robust functionality and the highest potential to achieve five year capacity milestone, with lowest overall capital cost to complete.

A number of alternative schemes were considered by the design team for the specific location, functional layout and architectural treatment of the terminal building. Initially seven options were developed fully, which was increased to 9 following presentation to the DAA Board. The preferred option was option 9 as it was considered to have achieved appropriate operational performance while bringing particular benefits with regard to minimising disturbance to passengers and airport users and responding best to the constraints presented by the current operation and buildings.

For the pier building four options were evaluated against a range of criteria, which included, passenger and staff experience, environmental performance, maintainability and buildability. Option four was chosen.

A number of alternatives were considered for the treatment of Corballis House including its retention within the scheme, its relocation, its deconstruction and reconstruction, and its demolition. After careful consideration of the various options, conservation assessment and findings of the archaeological impact assessment the planning application included demolition of the Protected Structure. In their view the strategic national importance of the Terminal 2 project constituted ‘exceptional circumstances’ as detailed in the Act.

The proposed scheme

Once operational Terminal 2 would allow for access via multiple modes of public and private transportation including proposed Metro North, public buses, coaches, taxis and private cars and vehicles including bicycles.

For the pedestrian the design philosophy promoted an ease of movement through the campus, impressing in terms of generosity of space and volume created and clear signage to direct the passenger to the required destination along covered well lit walkways and spaces.

Within the terminal the passenger experience for the arriving passenger was direct and functionally simple from pier E through immigration, baggage claim to customs with exit into arrivals hall, all on one level.

The departing passenger had a variety of check-in modes, with ample queuing spaces. From check-in they would ascend to upper levels to the link bridge and to security check areas and into departure lounges with duty free at second level and bulk of catering at the mezzanine level above departures lounge. The journey from departures lounge to the pier by means of escalators descending through a glazed tube, offerred mid-distance views of the airfield and Hills south of Dublin.

The design principles were completely consistent with the principles set out in the Fingal LAP in terms of urban design character, continuity and enclosure, legibility, ease of movement, quality of public realm, diversity, and adaptability .

Planning and policy context

The proposed development was examined in the context of following policy documents: European Spatial Development perspective (ESDP), NDP (2000-2006), NSS (2002-2020), DTO Strategy 2000-2016: A platform for Change, Public Safety Zones: Cork, Dublin and Shannon airports- Draft Report (2002), RPG for the Greater Dublin Area (2004-2016).

Also reviewed were Fingal County Development Plan (2005-2011), The South Fingal Planning Study and Dublin Airport LAP.

The proposed development complimented the County Development Plan policies. The use was complimentary to the operation of the airport in conjunction with future development of public transportation proposals and the planning was consistent with the zoning objective. All uses were permitted in principle. The South Fingal Planning Study (2004) recognised the need to ensure that the airport continued its contribution to the economy of the County.