National Planning Framework
National Planning Framework: First Revision
The national planning strategy to 2040, as revised in April 2025: where growth goes, and the national policy objectives regional and local plans must be consistent with.
Government of Ireland · April 2025 · 195 pages
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- National Policy Objective 48 Regional, metropolitan and local development plans will take account of and integrate relevant maritime spatial planning issues. 7.2 Maritime Economy As an island nation, the maritime sector performs a critically important function within the economy by facilitating the movement of people and goods between Ireland and its trading partners. Other established ocean and coastal sectors include seafood related enterprise, such as commercial fishing and aquaculture, products of marine biotechnology and bio-discovery, marine tourism, energy exploration and production, maritime transport, shipbuilding and leasing. There are considerable opportunities for the future growth in sustainable jobs and inward investment to our regions and coastal communities in the offshore renewable energy sector and supply chain activities. The seafood sector plays a vital role in the sustainable development of the economic and social fabric of coastal communities. Employment in this sector is particularly impactful as it maintains working populations in remote coastal areas where historically there have been fewer opportunities for commercial or industrial development. The Irish seafood sector supports the economic viability of many such communities, with BIM’s Business of Seafood 2022 Report estimating that over 2,700 people are employed in fisheries and over 15,000 in direct and indirect seafood jobs. In 2022 the seafood sector was valued at approximately €1.3 billion. The Government’s Food Vision 2030 strategic plan foresees the seafood sector continuing on a path of sustainable economic and environmental development. The strategy aims to encourage investment in seafood communities to allow for growth and long term economic and social sustainability. This will support a vibrant and growing local seafood sector and support the economic and demographic vitality of rural coastal communities. Figure 7.2 | Relationships between Planning Policy and Maritime Policy Planning Policy Hierarchy Maritime Policy National National Planning Framework High Level Aims and Objectives National-Focus National Marine Planning Framework Regional Regional Spatial and Economic Strategies Policies of Regional Significance and Focus for co-operation and implementation Designated Maritime Area Plans (DMAPs) Maritime Spatial Planning at a sub- national level. These plans can have a sectoral or geographic focus and will contribute to the planning framework for maritime development. Local Development Plan and Local Area Plan Detailed objectives and locally devised approaches Localised land-sea interaction and the role of coastal local authorities to manage the nearshore (the sea area 5km or 3 nautical miles from shore). DMAPs may be prepared for the specified parts of the nearshore area. National Planning Framework First Revision | Page 99
- As an island nation, Ireland’s ports are key national infrastructure assets and perform an indispensable role in facilitating the movement of both people and goods Ireland’s existing aquaculture industry already derives market benefit from the broad recognition around the globe of our relatively pristine waters and the sustainable practices employed by many growers, but the industry remains small relative to its potential. Spatial planning can enable sustainable growth such that habitat, water quality, and other marine resources are not compromised. Ireland already has a number of strategically important Fishery Harbour Centres such as Killybegs, Castletownbere, Dunmore East, Dingle, Ros an Mhíl and Howth, as well as essential facilities at a range of smaller facilities around the coastline. Continued investment in Fishery Harbour Centres and related land-based infrastructure is required to enhance and further develop their capacity to optimise the contribution of our marine resources to rural and coastal communities. The planning system has an important role in ensuring that this occurs in a sustainable manner cognisant of the need to achieve an equitable balance that also meets the needs of other stakeholders in the maritime area. National Policy Objective 49 Support the sustainable growth and development of the maritime economy and continue to invest in the seafood sector and our Fishery Harbour Centres, particularly in remote rural coastal communities and islands. 41 refer to European Commission Guidance on the implementation of the Birds and Habitats Directive in estuaries and coastal zones https://op.europa.eu/ en/publication-detail/-/publication/7cd07741-de74-11e9-9c4e-01aa75ed71a1/language-en or any updated guidance, as appropriate. 42 National Ports Policy, 2013. The Department of Transport has commenced a review of its National Ports Policy. The objective is to present a new draft policy to the Government in 2025 following consultation. 7.3 Ports The strategic importance of Ireland’s port and shipping services in underpinning international trade and enabling economic growth cannot be overstated, with approximately 90% of our international trade moving by sea. Ports also serve as key logistics and distribution hubs. The role of the ports and shipping sectors came into particular focus with the exit of the United Kingdom from the European Union as the sectors demonstrated their agility and resilience through new route development to continental Europe. Port infrastructure involves development and associated activities on both land and the marine area (nearshore) and often in proximity to areas of environmental sensitivity41. National ports policy42 seeks to facilitate a competitive and effective market for maritime transport services and categorises Ireland’s ports by tier according to the different strategic roles that each plays. As an island nation, we depend on the quality and efficiency of our ports to a far greater extent than many of our trading partners. As a small open economy with a strong focus on international trade and export-led growth, we must be capable of delivering additional port capacity in a timely and predictable manner. National ports policy indicates that the three Tier 1 Ports of National Significance (Dublin, Cork and Shannon Foynes) have clear potential to lead the development of future port capacity in the medium and long term, when and as required. Page 100 | National Planning Framework First Revision
- The Tier 2 Ports of National Significance (Waterford and Rosslare Europort) have been identified as having demonstrable potential to handle higher volumes of unitised traffic, and have the existing transport links to serve a wider, national marketplace beyond their immediate region. In recent years significant investment has been made to position Ireland’s ports for future growth and this has resulted in significant improvements both in terms of capacity and capability. The ports are largely guided by individual long-term plans and strategic visions which ensures a plan-led approach. The five Ports of Regional Significance identified in the policy have been transferred to local authority control, to ensure that these assets can continue to meet local and regional needs. These ports and harbours play an important role in providing for regional employment and services and many serve rural and island communities. In addition to commercial activity, these facilities also support other marine sectors such as fisheries, renewable energy, and marine tourism. The National Ports Policy indicates that the long-term international trend in ports and shipping is toward increased consolidation of resources in order to achieve optimum efficiencies of scale. This has knock-on effects in terms of vessel size, the depths of water required at ports and the type and scale of port hinterland transport connections. It is anticipated that over the next decade additional environmental, technological, demographic, and geopolitical challenges will arise. Finally, in line with the Climate Action Plan 2024, the transport sector will continue to support plans to facilitate the development of at least 5GW of installed offshore wind capacity by 2030, and the longerterm ambition for over 37GW of offshore renewable energy (ORE) to be delivered before 2050. The Irish Commercial State Ports can act as positive contributors to the ORE Industry. Work to identify and resolve barriers to the delivery of ports infrastructure to facilitate ORE, while ensuring protection of biodiversity in line with national and EU legislation, the National Biodiversity Action Plan and forthcoming National Nature Restoration Plan will be advanced by the Department of Transport. Tier 1 and 2 ports are, in the main, located within close proximity to our cities and the role of these ports will be considered and addressed in tandem with long-term infrastructural requirements as part of the relevant Regional Spatial and Economic Strategy and plan making processes at local level. Strategic plans for relevant Tier 1 and 2 ports and corresponding city growth strategies should align and be consistent with the broader aims and policies for the effective growth and sustainable development of the city regions. Furthermore, naturally occurring deep water at ports in the south and south-west, are capable of receiving the largest ocean going vessels and offer the potential for industrial and energy related developments that depend on the availability of suitable deep water berths. Other ports of regional significance, such as Galway and Drogheda, have an important role for regional employment and services and many smaller harbours serve rural and island communities. In addition to commercial freight, such ports support marine sectors that are dependent of local natural resources, such as fisheries, marine renewable energy, and marine tourism. Given the identification of offshore renewable energy as a key element of the approach to reducing carbon emissions across number of sectors, including transport and electricity generation, ports in our regions have a natural advantage with proximity to potential offshore renewable energy locations and will play a critical role in facilitating the development maintenance and operation of the sector through the accommodation of supporting infrastructure. Government policy supports a multi-port approach to the development of necessary port infrastructure facilities to enable offshore renewable energy (Government’s Policy Statement on the Facilitation of Offshore Renewable Energy by Commercial Ports in Ireland (2021), which is supported by the NPF. National Policy Objective 50 Ensure that the strategic development requirements of Tier 1 and Tier 2 Ports, ports of regional significance, State Fishing Harbours and smaller harbours are addressed as part of Regional Spatial and Economic Strategies, and plans at local level to ensure the effective growth and sustainable development of the city regions and regional and rural areas, in accordance with National Ports Policy. National Planning Framework First Revision | Page 101
- National Policy Objective 51 Support the sustainable delivery of port and harbour infrastructure to facilitate the development, maintenance and operation of off-shore renewable electricity generating developments. 7.4 Coastal Environment and Planning for Climate Change Given Ireland’s cities and largest towns are located in coastal locations, a very significant proportion of the national population lives in close proximity to the sea. This presents opportunities for recreation, and interaction with the natural environment, which are important for wellbeing and quality of life. However, the Government’s Climate Action Plan 2024 identify that increases in sea levels and storm surge will result in increased frequency of coastal flooding and erosion, with potential for significant impacts for coastal and heritage sites situated in proximity to the coast and on estuaries. The current evidence points to a gradual sea level rise of up to 1 metre to the year 2100 due to climate change. This will further and significantly change our coastline and could adversely impact on our coastal economy, society, biodiversity, heritage, culture and environment, if such change is not managed appropriately. Ireland’s major cities, almost all populated coastal communities as well as infrastructure, protected habitats and species, amenities, industry and utilities are at risk from future coastal change. Responding to the impact of climate change on Ireland’s coastal areas requires, broadly, a dual approach of both mitigation (tackling the cause) and adaptation measures (reduce the impacts and increase adaptive capacity and resilience). Given the nature of the risks arising, the broad range of stakeholders with responsibilities to manage these risks, and the complex legal and regulatory framework within which this must be achieved, there is a requirement for an integrated and co-ordinated response which includes spatial planning. In particular, as a result of climate change, sea levels 43 Recommendation 9 - Report of the Inter-Departmental Group on National Coastal Change Management Strategy 44 Recommendation 11 - Report of the Inter-Departmental Group on National Coastal Change Management Strategy 45 Recommendation 6 (c) - Report of the Inter-Departmental Group on National Coastal Change Management Strategy and patterns of accretion and erosion are key issues for planning and flood risk assessment, especially in managing the ongoing development of our urban areas and with respect to infrastructure located along our coastline. Such climate change adaptation responses will entail plan-led interventions. The Report of the Inter-Departmental Group on National Coastal Change Management Strategy identifies key recommendations for the preparation of an Irish Coastal Change Strategy including the development of Coastal Change Management Plans43, the promotion of Nature-based Solutions44 as a means for managing coastal change and the undertaking of an assessment45 to identify the communities and coastal areas at potentially significant risk from coastal change, both now and in the future, including the identification of the habitats, cultural heritage and other sectoral assets at risk from coastal change. National Policy Objective 52 Ensure that Ireland’s coastal resource is managed to sustain its physical character and environmental quality. National Policy Objective 53 In line with the collective aims of national policy regarding climate adaptation and the associated legislative provisions, to take account of the effects of sea level changes and coastal erosion in planning and development management and to support the implementation of adaptation responses to limit risks to communities and coastal ecosystems from the impacts of coastal change. National Policy Objective 54 Support the development of coastal change management plans to address the likely effects of sea level changes and coastal erosion and to support the implementation of adaptation responses. Page 102 | National Planning Framework First Revision
- The Department of the Environment, Climate and Communications has prepared the South Coast Designated Maritime Area Plan (SC-DMAP) for Offshore Renewable Energy (ORE). The SC-DMAP is Ireland’s first sub-national forward spatial plan under the Maritime Area Planning Act 2021. As the first sub-national forward spatial plan created under the State’s new regime for plan-led future ORE development in Ireland, the establishment of the SC-DMAP marks a significant milestone in Ireland’s continued energy transition. The SC-DMAP designates marine areas off Ireland’s South Coast for sustainable and managed future deployments of fixed offshore wind. This will enable the accelerated realisation of Ireland’s renewable energy potential, and provide a long-term secure, sustainable and cost-effective source of indigenous energy for future generations of Irish households and businesses. Harnessing the full economic potential of ORE and the marine economy is a significant opportunity for economic growth across the coastal counties on the south coast. Features of the SC-DMAP process include the ecosystem-based approach with full consideration for the protection of marine environment and biodiversity and existing marine users and activities, including commercial fishing and tourism. Public consultation is central to the establishment of the SC-DMAP. Its development has been informed by a wide-reaching and meaningful process of public engagement since summer 2023. A Public Participation Statement outlining anticipated opportunities for public engagement throughout establishment of the plan has been published and is regularly updated. The SC-DMAP supports the co-ordination of terrestrial and marine planning. The integration and alignment of land and sea planning will aid in delivering the onshore infrastructure and activity required to implement the plan, such as facilities for ORE in ports and harbours, transmission grid connections and supply chain enterprise activity. This will enable the full potential of the marine economy and renewable energy in a sustainable manner. Following establishment of the SC-DMAP, Government will seek to procure up to 900 MW of fixed bottom offshore wind capacity within the SC-DMAP area via Ireland’s next competitive offshore wind auction, to be connected to the onshore electricity transmission system. This project will be developed by the winner of Ireland’s second offshore wind auction – known as ORESS 2.1 – to commence in 2024/25, and will aim for deployment by 2030, or as soon as possible thereafter, contingent on successfully achieving the required consents and planning approval. South Coast DMAP Case Study National Planning Framework First Revision | Page 103
- 7.5 Offshore Renewable Energy Over the period to 2040, it is likely that technological advances will accelerate the commercial application, development and deployment of a marine renewable energy sector to assist Ireland to meet its commitments under the Climate Action Plan 2024. Under the Climate Action Plan 2024, Government has committed to generating 80% of our electricity demand from renewable sources by 2030, which includes achieving at least 5 GW of offshore renewable energy capacity by that date. Offshore renewable energy represents an emerging sectoral opportunity for coastal regions with the potential to support the delivery of Ireland’s offshore wind ambitions being a particular economic development opportunity. Enabling infrastructure will be required to ensure that these regions are positioned to harness this growth potential. As major capital infrastructure projects, offshore renewable energy developments, and offshore wind, in particular, typically have long lead-in times of several years from design to commissioning stages. The National Marine Planning Framework, as Ireland’s first comprehensive marine spatial plan, provides a comprehensive policy framework to guide future development in this area. The Maritime Area Planning Act 2021 also provided for a new licensing and development management regime in the maritime area, including the creation of a new type of consent known as a Maritime Area Consent (MAC), to be administered by the Maritime Area Regulatory Authority (MARA) and planning authorities. A MAC provides a right to occupy the maritime area subject to the necessary consents including planning permission, where required. In line with the Maritime Area Planning Act 2021, future offshore wind developments will be located within Designated Maritime Area Plans (DMAPs) established by Government. Page 104 | National Planning Framework First Revision
- The development of offshore renewable energy is critically dependent on the development of enabling infrastructure, including grid facilities to bring the energy ashore and connect to major sources of energy demand as well as port infrastructure for the marshalling and assembly of wind turbine components. The Future Framework for Offshore Renewable Energy Policy Statement46, setting the longer-term model and vision for achieving offshore renewable energy targets of 20GW by 2040 and 37GW by 2050, was published by Government in 2024. An Offshore Transmission Strategy will be prepared by the Department of the Environment, Climate and Communications. Under the Future Framework for Offshore Renewable Energy Policy Statement, Government is committed to the sustainable development and deployment of marine renewable energy and supports the continued advances across fixed and floating turbine, wave and tidal renewable energy technologies to meet our Climate Action Plan renewable energy targets. Complementing these is Powering Prosperity – Ireland’s Offshore Wind Industrial Strategy which has been developed by the Department of Enterprise, Trade, and Employment to ensure that Ireland maximises the economic benefit associated with the Government’s offshore renewable energy targets. This Strategy includes a focus on the potential to develop new industrial demand for renewable energy, for which infrastructural development will be a key enabler. Furthermore, the National Smart Specialisation Strategy for Innovation 2022-2027 identified the significant importance and potential of offshore renewable energy and decarbonisation in the context of the wider maritime economy. National Policy Objective 55 To support, the progressive development of Ireland’s offshore renewable energy potential, the sustainable development of enabling onshore and offshore infrastructure including domestic and international grid connectivity enhancements, non-grid transmission infrastructure, as well as port infrastructure for the marshalling and assembly of wind turbine components and for the operation and maintenance of offshore renewable energy projects. 46 Future Framework for Offshore Renewable Energy National Planning Framework First Revision | Page 105
- Working with Our Neighbours8 Page 106 | National Planning Framework First Revision
- 8.1 Ireland and the European Union Implementation of the National Planning Framework must take account of and address Ireland’s changing position in a European and global context. The world is getting more diverse and more interconnected. Ireland is one of the most globalised economies in the world, with established trade and investment links with European, US, Asian and wider world markets. This has resulted in a transformation and rapid transition of our economy in terms of jobs, skills and innovation. Ireland’s membership of the European Union has greatly facilitated this transformation to an economy largely driven by hi-tech industry and global exports. Ireland is now a major investment destination into the EU from both US and wider global contexts because of our strategic position, economic agility, improving infrastructure and an English-speaking businessfriendly environment. Being an open economy means that Ireland is dependent on trade with our major trading partners and exports are a key component of economic growth. We will need to continue to improve the resilience of the economy to deal with potential changes in the global financial environment and interest rates, greater competition for foreign investment, and changes in the operating conditions of multinationals. To do this, we will need to position Ireland to be flexible to change and external influences. How we interact with our partners in the EU as well as our nearest neighbours in Northern Ireland, England, Scotland and Wales, will also have a major bearing on our shared prospects for progression and development. Ireland’s direct links with other EU Member States by both air and sea and subsea energy connections are increasingly important, given their advantages in terms of resilience and ease of movement across internal borders. As a result, ports and airports facilitating faster transit times between Ireland and the EU need to be effectively connected into our land-based transport systems. The withdrawal of the United Kingdom from the European Union presented a range of challenges for Ireland but continued support of North-South cooperation and the all-island economy, as well as maintenance of an effective trading and cooperation relationship with Great Britain, has been at the core of the cross-Government approach to managing the implications of Brexit. This presents both significant opportunities and challenges, including the potential for increased economic investment into Ireland, while at the same time continuing to harness the potential of 47 Refer to ‘Looking to 2040’ section, page 161 the all-island economy and maintaining the trade, infrastructural and many other linkages with our nearest neighbours. Ireland’s direct links with other EU Member States by both air and sea and subsea energy connections are increasingly important, given their advantages in terms of resilience and ease of movement across internal borders. As a result, ports and airports facilitating faster transit times between Ireland and the EU need to be effectively connected into our land-based transport systems. Transport infrastructure across all regions of Ireland is part of the wider trans-European transport (TEN-T) network. Regulation EU 2024/1679, known as the TEN-T Regulation, sets out the components of the network and the requirements for infrastructure included on the network. The TEN-T core network is to be completed by 2030 and the comprehensive network by 2050. Ireland is also included on two of the network’s high-priority ‘European Transport Corridors’ – the Atlantic Corridor and the North Sea- Rhine-Mediterranean Corridor – which link Ireland to the passenger and freight transport networks on continental Europe. The Alternative Fuels Infrastructure Regulation (EU 2023/1804 – ‘AFIR’) mandates minimum infrastructure requirements on the European Ten-T transport network, which will ensure that there are sufficient, interoperable recharging and alternative fuel refuelling stations. These measures will directly support the transition of our cars, vans, buses and trucks to electric vehicles, and ensure that our ports and airports can provide alternatives to using on-board fossil-fuelled engines for vessels at berth or stationary aircraft. The implementation of these Regulations will be essential in providing climate neutral connectivity on our major road networks and will require close integration between the transport, electricity and planning sectors to ensure that network development strategies and investments meet the requirements necessary for compliance, not least the extensive power output requirements mandated by AFIR. 8.2 Ireland and Northern Ireland The National Planning Framework and National Development Plan set out a positive vision for the future of the island of Ireland. In 2021, the revised National Development Plan47 set an enhanced level of ambition for collaborative cross-border investment, to build a more connected, prosperous and sustainable island. National Planning Framework First Revision | Page 107
- The Government is working through all-island partnerships to co-design, co-fund and co-deliver investments to enhance the shared island and address common strategic concerns. Partnership approaches with the Northern Ireland Executive and UK Government, through the PEACEPLUS programme, and working with local authority, education and civil society partners across the island, provide a strong basis for delivery on strategic planning and investment objectives. For 2021-2030, there is a total all-island investment commitment of more than €4billion through the Shared Island Fund, the Project Ireland 2040 funds, the Government’s annual funding for North/South cooperation and the PEACEPLUS programme, delivered with the European Union, UK Government and Northern Ireland Executive. Just over 7 million people live on the island of Ireland, 5.15 million people in Ireland (73% of total) and 1.9 million people in Northern Ireland (27% of total) (Census 2022, CSO and NISRA48). By 2040, the island we share will be home to around 8 million people. Planning for nearly 1.4 million extra people, their homes and places of work and the infrastructure required to support this growth, while at the same time ensuring good outcomes in terms of physical and community development and environmental quality, poses shared challenges and opportunities, including: 48 Northern Ireland Statistics and Research Agency Managing our growth strategically for long term benefit in terms of economic and social development and environmental quality; and Working together for mutual advantage in areas such as economic development and promotion, co-ordination of social and physical infrastructure provision, climate action, biodiversity conservation and other environmental management. Implementation of the National Planning Framework in tandem with the Regional Development Strategy (RDS) for Northern Ireland assists in addressing these challenges. This collaborative work is supported by the Framework for Co-operation on Spatial Strategies between Ireland and Northern Ireland, which will be updated and reviewed as required. In the context of ongoing North-South cooperation across a wide range of policy areas, including through the North South Ministerial Council and North South Implementation Bodies, there are three key categories of practical co-operation between relevant Departments and local authorities in Ireland and Northern Ireland that will both support and be supported by the continued implementation of the NPF. Figure 8.1 | Shared Planning Challenges in Ireland and Northern Ireland Community Development Housing and other Developments Physical and Social Infrastructure Environmental Management Innovation and Learning Tourism Economic Opportunities Project Ireland 2040 | Building Ireland’s Future | National Planning Framework Figure 8.1 | Shared Planning Challenges in Ireland and Northern Ireland Page 108 | National Planning Framework First Revision
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