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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- Analysis of development trends undertaken by the Economic and Social Research Institute (ESRI) in preparation of the 2018 NPF in projecting likely future development scenarios to 2040, suggested a range of negative outcomes in the absence of a more sustainable planning strategy for the Country, including:Greater distance between w here people live and w here people w ork, notwithstanding changes in technology, as many businesses are increasingly drawn to create the employment opportunities of the future in close proximity in urban areas.An ongoing shift in population and jobs towards the east and to the counties around Dublin in particular.A degraded environment with, the loss of farmland and habitat to predominantly greenfield development and increased risk of groundwater pollution.Stagnation of inner city and older suburban areas, with missed opportunities for the utilisation of existing infrastructure and services.Further decline of rural areas and towns remote from large urban centres of population.Duplication of new investment in services and infrastructure in rapidly growing areas. € €Continuation of sprawling growth around but mainly outside our cities and larger towns.Social disadvantage and inequality perpetuated by geographic location.Haphazard approaches to planning for infrastructure and climate action, reacting to trends rather than preparing for a low/no carbon future. National Planning Framework First Revision | Page 9
- Some Key Facts and Figures · When economic output and stability are measured, Ireland is firmly within the top ten countries in the world, scoring highly in terms of gross domestic product or GDP per capita4 human development5 democracy6 and foreign direct investment (FDI). · Ireland’s comparison ranking in areas such as quality of life7 and environmental performance8 is not quite as high, placing us just within the top twenty-five countries in the world. · The ESRI9 projects that the population of Ireland will increase by around one million people over 2022 levels, to approximately 6.1 million people by 2040. · The population aged over 65 will more than double to 1.3 million, or to 23% of the total, whilst those aged under 15 will decrease by around 10%, with numbers remaining at just below one million in 2040. · This will give rise to a need for approximately 50,000 additional households per annum to 2040. · Overall demand for school places has currently peaked nationally but there continues to be strong demand for additional school places in areas where there is high population growth. Demand for special education provision also continues to grow strongly, reflecting the increased prevalence of autism. Demand for thirdlevel education places are set to peak later in this decade. · In line with international trends, the ongoing shift to a knowledge economy, growing role of services and the growth of hybrid working models will continue to change the nature of work, sustaining demands for a more highly skilled and educated workforce. · New ways of working, new trade partners and new relationships between producers and consumers will continue to transform the business landscape. 4 World Bank, 2022. 5 UN, 2023. 6 UN, 2023. 7 Economist Intelligence Unit, 2023. 8 Environmental Performance Index, 2022. 9 Bergin, A., and Egan, P. (2024). Population projections, the flow of new households and structural housing demand, ESRI Research Series 190, Dublin: ESRIWhen economic output and stability are measured, Ireland is firmly within the top ten countries in the world, scoring highly in terms of gross domestic product or GDP per capita4 human development5 democracy6 and foreign direct investment (FDI).Ireland’s comparison ranking in areas such as quality of life7 and environmental performance8 is not quite as high, placing us just within the top twenty-five countries in the world.The ESRI9 projects that the population of Ireland will increase by around one million people over 2022 levels, to approximately 6.1 million people by 2040.The population aged over 65 will more than double to 1.3 million, or to 23% of the total, whilst those aged under 15 will decrease by around 10%, with numbers remaining at just below one million in 2040.he r 15 , ustThis will give rise to a need for approximately 50,000 additional households per annum to 2040.Overall demand for school places has currently peaked nationally but there continues to be strong demand for additional school places in areas where there is high population growth. Demand for special education provision also continues to grow strongly, reflecting the increased prevalence of autism. Demand for third-level education places are set to peak later in this decade.In line with international trends, the ongoing shift to a knowledge economy, growing role of services and the growth of hybrid working models will continue to change the nature of work, sustaining demands for a more highly skilled and educated workforce.New ways of working, new trade partners and new relationships between producers and consumers will continue to transform the business landscape.+20%TOP 10 TOP 20 +100% -10% H U M A N D E V EL O P M E N T D E M O C RA C Y GDP FDI Page 10 | National Planning Framework First Revision
- 1.5 UN Sustainable Development Goals Sustainability is at the heart of long term planning and the National Planning Framework seeks to ensure that the decisions we take today, meet our own needs without compromising the ability of future generations to meet their needs. The challenge of creating a more sustainable future for Ireland is a collective responsibility on all of us. Since 2015, Ireland has been a signatory to the United Nations Sustainable Development Goals (SDGs), which frame national agendas and policies to 2030. The SDGs build on the UN Millennium Development Goals (MDGs) and have a broader agenda that applies to all countries. There is significant alignment between the UN SDGs and the National Planning Framework’s National Strategic Outcomes (NSOs) in areas such as climate action, clean energy, sustainable cities and communities, economic growth, reduced inequalities and innovation and infrastructure, as well as education and health. 1.6 Environmental Assessments As part of the preparation of the first Revision to the National Planning Framework, a number of environmental assessments have been carried out. These include Strategic Environmental Assessment (SEA), Appropriate Assessment (AA) and also Strategic Flood Risk Appraisal (SFRA). These assessments are being undertaken so that the high-level impact of the proposed National Policy Objectives and National Strategic Outcomes on the environment can be evaluated and used to inform the direction of the NPF revision. This is to ensure that any objectives respond to the sensitivities and requirements of the wider natural environment i.e. the likely environmental consequences of decisions regarding the future accommodation of growth and development and how negative effects can be reduced, offset or avoided. These three separate assessment reports detailing the legislative and policy background accompany this Revision. As part of an assessment of the Framework, the SEA Environmental Report, AA Natura Impact Statement and Strategic Flood Risk Assessment have proposed mitigation measures and text alterations to the Framework and those NPOs/NSOs which have been identified as having potential impacts on the receiving environment. As part of the preparation of the first Revision to the National Planning Framework, a number of environmental assessments are being carried out. National Planning Framework First Revision | Page 11
- Strategic Environmental Assessment The purpose of the SEA is to evaluate, at an early stage, the range of environmental consequences that may occur as a result of implementing the First Revision of the NPF and to give interested parties an opportunity to comment upon the perceived or actual environmental impacts of the proposal. The European Directive (2001/42/EC) on the Assessment of the Effects of Certain Plans and Programmes on the Environment (the SEA Directive), was transposed into national legislation in Ireland by the European Communities (Environmental Assessment of Certain Plans and Programmes) Regulations 2004 (S.I. 435/2004) and the Planning and Development (Strategic Environmental Assessment) Regulations 2004 (S.I. 436/2004), as amended. As documented in the Directive, the purpose of SEA is “to provide for a high level of protection of the environment and to contribute to the integration of environmental considerations in the preparation and adoption of plans and programmes with a view to promoting sustainable development”. Through the SEA, environmental considerations have been integrated into the Framework by: Development and evaluation of alternatives; Assessment and refinement of National Policy Objectives (NPOs) and National Strategic Outcomes (NSOs); Recommendation of mitigation measures to address the potential impacts arising from the alternatives, NPOs and NSOs considered; and Additional supporting text to strengthen the commitments in the NPF to protection of the environment. In recognition of the potential for transboundary effects with Northern Ireland, through coordinated spatial planning, the Northern Ireland Department of Agriculture, Environment and Rural Affairs (DAERA), which has responsibility for SEA in Northern Ireland, has also been consulted, together with the Northern Ireland Department for Infrastructure, as part of the Framework preparation. Appropriate Assessment Appropriate Assessment (AA) is a process for undertaking a comprehensive ecological impact assessment of a plan or project, examining its implications, on its own or in-combination with other plans and projects, on one or more European Sites in view of the site’s Conservation Objectives, as referred to in Article 6(3) of the EU Habitats Directive. Council Directive 92/43/EEC on the conservation of natural habitats and of wild fauna and flora, known as the Habitats Directive, obliges member states to designate Special Areas of Conservation (SACs) to protect and conserve habitats and species of importance in a European Union context. Special Protection Areas (SPAs) are designated under the Conservation of Wild Birds Directive (79/409/EC) as codified by Directive 2009/147/EC. The Habitats Directive has been transposed into Irish law by the Planning and Development Act 2000 (as amended) and the European Communities (Birds and Natural Habitats) Regulations 2011 to 2021 (as amended). In the context of the draft NPF, the governing legislation is principally Regulation 42A of the Birds and Natural Habitats Regulations 2021, which sets out the duties of public authorities relating to nature conservation. Public authorities are obliged, when exercising their functions, to take appropriate steps to avoid the deterioration of natural habitats and the habitats of species in European Sites, as well as disturbance of species for which a site has been designated insofar as this disturbance could be significant in relation to the objectives of the Habitats Directive. A Natura Impact Statement (NIS) has been prepared in support of the AA process having regard for the legislative requirements of EU and national law. Strategic Flood Risk Assessment Increased flood risk as a result of land use planning has, above all else, been one of the most costly (environmental, social and economic) legacy issues of previous national, regional and local land use decisions. The policy objectives and outcomes identified in the NPF will both assist the legacy issue and future proof future plans such as the Regional Spatial and Economic Strategies and County Development Plans developed under the NPF. Page 12 | National Planning Framework First Revision
- The objective of SFRA is to ensure planning policy takes account of flood risk in catering for future growth and can address planning and infrastructural needs required to facilitate projected growth. The EU Floods Directive and the Planning System and Flood Risk Management Guidelines, 2009 have been key drivers in how Ireland manages flood risk. The Catchment Flood Risk Assessment and Management (CFRAM) programme was developed in response to the requirements of these drivers and has both provided a comprehensive assessment of high flood risk areas and proposed plans to mitigate and reduce flood risk in Ireland. In parallel to the CFRAM programme, and to mitigate further inappropriate development in areas of high flood risk. The Flood Risk Guidelines are core to the development of the SFRA. This key guidance document sets out comprehensive mechanisms for the integration of land use and infrastructure planning with flood risk management best practice. The Guidelines espouse the concept of the ‘sequential approach’ whereby, at all levels of the planning process, the principle of avoiding areas of high flood risk is the first consideration, and should this not be practical, then the consideration of an alternative, less vulnerable land use should be proposed. Where avoidance or substitution is not possible, then a robust justification must be made, accompanied by sustainable mitigation measures, to ensure proposed development will not increase in flood risk both for the present day scenario or in the future, considering fully the predicted effects of climate change. 1.7 Integrating Environmental Considerations into the Planning System The National Planning Framework is a strategic framework document which is supported by a robust tiering of regional and local level plans within an overall hierarchy. As detail is developed down through the hierarchy, further opportunity for focused assessment will be required to inform decision making at a level of granularity which cannot be undertaken at the national scale. It is therefore important that where other strategies and plans undergo review or changes to reflect the national policy objectives and outcomes of the National Planning Framework, they should also consider any relevant environmental requirements. All investigative and feasibility studies to be carried out to support decision making in relation to this Framework should also include an environmental appraisal which considers the potential effects on the wider environment, including specifically, the Natura 2000 Network. At the project level, all applications for development consents for projects emanating from any policies that may give rise to likely significant effects on the environment will need to be accompanied by one or more of the following, as relevant: An Ecological Impact Assessment Report; Environmental Report if deemed relevant and proportionate; Water Framework Directive (WFD) Assessment of projects if deemed relevant and proportionate; An Environmental Impact Assessment Report if deemed necessary under the relevant legislation (statutory document); Natura Impact Statement if deemed necessary under the relevant legislation (statutory document). National Policy Objective 1 Ensure that all plans, projects and activities requiring consent arising from the National Planning Framework are subject to the relevant environmental assessment requirements including SEA, EIA, SFRA and AA, as appropriate. Relationships between the National Planning Framework and other plans/ programmes Key policy areas such as maritime and land use spatial planning, climate change, renewable energy, flooding, agriculture, water and wastewater services, waste and conservation have been explored in terms of relationships and interactions with the NPF. For example, the SFRA for the Framework reinforces the key concepts of the precautionary principle and the sequential approach, and the connection with the National Climate Change Adaption Strategy and the EU Water Framework Directive. In recognition of the potential for transboundary effects with Northern Ireland, through coordinated spatial planning, the Northern Ireland Department of Agriculture, Environment and Rural Affairs (DAERA), which has responsibility for SEA in Northern Ireland, has also been consulted, together with the Northern Ireland Department for Infrastructure, as part of the Framework preparation. National Planning Framework First Revision | Page 13
- A New Way Forward 2 The purpose of the National Planning Framework is to enable all parts of Ireland, whether rural or urban, to successfully accommodate growth and change, by facilitating a shift towards Ireland’s regions and cities other than Dublin, while also recognising Dublin’s ongoing key role. Page 14 | National Planning Framework First Revision
- 2.1 Realising Ambition and Potential The purpose of the National Planning Framework is to enable all parts of Ireland, whether rural or urban, to successfully accommodate growth and change, by facilitating a shift towards Ireland’s regions and cities, while also recognising Dublin’s ongoing key role as a capital city and an international city of scale. The NPF is a long-term Framework that sets out how Ireland can move away from the ‘business as usual’ pattern of development. This means that it seeks to disrupt trends that have been apparent for the last fifty years and have accelerated over the past twenty-five. Shifting a long-term trend will not be achieved overnight or even in a short number of years. It will require careful balance, that on the one hand is clearly focused, while on the other, enables realisation of the widespread ambition and potential that clearly exists throughout the country. As the largest centres of population, employment and services outside Dublin, the four cities of Cork, Limerick, Galway and Waterford, will continue to provide a focus for their regions. However, it will require the combined potential of all four cities to be realised at an unprecedented rate, to create viable alternatives to Dublin, which itself must also continue to accommodate growth. Given the variety of rural and urban communities throughout Ireland, each with capacity for growth and development that can significantly influence their surrounding areas, this Framework also targets as much potential growth to Ireland’s large and smaller towns, villages and rural areas as it does to the five cities. The four cities and Dublin are geographically distributed, but their influence does not extend to all parts of Ireland, in particular the North-Western and Midland regions. It is critical that those regions also are served by accessible centres of employment and services that can be a focal point for investment and have the widest possible regional influence. On the basis of available evidence, it is apparent that Sligo in the North-West and Athlone in the Midlands, fulfil these roles to a greater extent than elsewhere. It is also the case that there are significant crossborder interactions focused on key settlement networks, specifically Letterkenny-Derry in the context of the North-West Strategic Growth Partnership and Drogheda-Dundalk-Newry in the context of the Dublin-Belfast economic corridor. The growth potential associated with these interrelated networks is also important for regional development. Notwithstanding these considerations, it is emphasised that a settlement that is not specifically identified or for which specific targets are not set in this national Framework, is by no means precluded from future growth or investment. This must be considered at a regional and local scale, for which statutory planning processes exist, taking account of the general context set by the NPF. This allows for decision-making at regional and local level, which will enable investment to be properly aligned with planning, in order to achieve the National Strategic Outcomes identified. This means that an element of future growth must be identified to take place in Ireland’s key regional centres and towns, to lead the development of their regions. The amount prioritised will be related to that targeted elsewhere and will have a knock-on impact, but this Framework also enables significant scope for ambition and balanced rural and urban development, supported by matching investment, throughout Ireland’s, towns, villages and rural areas. Choices therefore need to be made to support our regional centres and towns, and to ensure that there is an effective basis for planning and investment in infrastructure and services. In setting out a context for targeting future growth, this Framework does not seek to cap or limit the potential of places. It does, however, provide a common point of reference and co-ordination, based on the latest available evidence, to be applied nationally. As the largest centres of population, employment and services outside Dublin, the four cities of Cork, Limerick, Galway and Waterford, will continue to provide a focus for their regions. National Planning Framework First Revision | Page 15
- 2.2 Overview of the NPF Strategy The key issue addressed in this Framework is where best to plan for our growing population and economy. In doing so, it is necessary to learn from past experiences and outline a new way forward that can channel future growth. The NPF is aligned with and supported by new and improved investment and governance arrangements. As a strategy, all aspects are to be implemented together and are mutually complementary: Ireland’s Three Regions Targeting a level of growth in the country’s Northern and Western and Southern Regions combined, to at least match that projected in the Eastern and Midlands Region. Improving access from the north-west to Dublin and the east and to Cork, Limerick, Galway and Waterford to the south. Improving access between Cork, Limerick, Galway and Waterford. Recognising the extent to which Sligo in the North-West and Athlone in the Midlands fulfil the role of regional centres. Recognising Letterkenny in the context of the North-West City Region and Drogheda- Dundalk in the context of the Dublin-Belfast economic corridor as important cross border networks for regional development. Enabling, through the Regional Spatial and Economic Strategy process for each Regional Assembly area, regional centres of population and employment growth. Prioritising development where there is existing/ planned infrastructure capacity, focusing on demand management, prioritising and enabling key infrastructure in each region to promote growth where it is required; Recognising and supporting enterprise specialisations and clusters, which can drive economic activity in each region, noting in particular the important role that largescale industrial projects play at a regional level. Ireland’s Capital Supporting the future growth and success of Dublin as Ireland’s leading global city of scale, by better managing Dublin’s growth to ensure that more of it can be accommodated within and close to the city and in the metropolitan area. Enabling significant population and jobs growth in the Dublin metropolitan area, together with better management of the trend towards overspill into surrounding counties. Addressing infrastructural bottlenecks, improving citizens’ quality of life and increasing housing supply in the right locations. Ireland’s Cities Supporting ambitious growth targets to enable the four cities of Cork, Limerick, Galway and Waterford to each grow by at least 50% over 2016 levels to 2040 and to enhance their significant potential to become cities of scale. Enabling the four cities to be regional drivers and to lead in partnership with each other and as partners in regional/ inter-regional networks as viable alternatives to Dublin. Focusing investment to improve the collective ‘offer’ within each of the four cities, i.e. infrastructure, quality of life and choice in terms of housing, employment and amenities. Recognising the impact of digitalisation in terms of city vibrancy, including changed shopping and working patterns, and to promote a responsive policy approach where needed. Ireland’s Rural Fabric Addressing town/village and rural population decline, particularly where it has occurred over time, by encouraging new roles and functions for buildings, streets and sites. Supporting the sustainable growth of rural communities, to include development in rural areas. Implementing a properly planned local authority-led approach to identifying, meeting and managing housing needs arising in countryside areas. Improving local connectivity to principal communication (broadband), energy, transport and water networks. Promoting new economic opportunities arising from digital connectivity, including remote working hubs, indigenous innovation and enterprise, as well as more traditional natural and resource assets (e.g. food, energy, tourism), underpinned by the quality of life offering. In the context of Ireland’s transition towards a climateneutral economy, to ensure just transition, within the wider statutory framework of climate action, enabling new employment and opportunities, while supporting those most negatively impacted. Compact Growth Targeting a greater proportion (40%) of future housing development to be within the existing ‘footprint’ of built-up areas. Making better use of under-utilised land and buildings, including ‘infill’, ‘brownfield’ and publicly owned sites and vacant and under-occupied buildings, with higher housing and jobs densities, better serviced by existing facilities and public transport. Supporting both urban regeneration and rural rejuvenation through the Urban Regeneration and Development Fund (URDF) and Rural Regeneration and Development Fund (RRDF) and other programmes targeted at addressing vacancy, dereliction and supporting brownfield development. Page 16 | National Planning Framework First Revision
- Ireland’s Cities Supporting ambitious growth targets to enable the four cities of Cork, Limerick, Galway and Waterford to each grow by at least 50% to 2040 and to enhance their significant potential to become cities of scale. Ireland’s Three Regions Targeting a level of growth in the country’s Northern and Western and Southern Regions combined, to at least match that projected in the Eastern and Midland Region. Ireland’s Rural Fabric Reversing town/village and rural population decline, by encouraging new roles and functions for buildings, streets and sites. Compact Growth Targeting a greater proportion (40%) of future housing development to be within and close to the existing ‘footprint’ of built-up areas. Ireland’s Capital Supporting the future growth and success of Dublin as Ireland’s leading global city of scale, by better managing Dublin’s growth to ensure that more of it can be accommodated within and close to the City. DUBLIN WATERFORD CORK LIMERICK GALWAY ATHLONE SLIGO LETTERKENNY DERRY/ LONDONDERRY BELFAST DROGHEDA DUNDALK NEWRY REGIONAL CENTRES CROSS BORDER NETWORK CITIESNorthern and Western Regional Assembly AreaNorthern IrelandEastern and Midland Regional Assembly AreaSouthern Regional Assembly Area National Planning Framework First Revision | Page 17
- The various policies of this Framework are structured under National Policy objectives (NPOs). Most NPOs are retained under the revised NPF, some have been updated and amended and a number of new NPOs have been inserted. They were developed as a result of extensive analysis and consultation and set a way forward for regional and local planning and sustainable development policy in Ireland. They are highlighted throughout the Document and are listed together in Appendix 1. Integrating the Environment into Planning for the Future In developing and revising the National Planning Framework there has been a strong recognition of the need to integrate environmental considerations into land use planning in a way that responds to the sensitivities and requirements of the wider natural environment. The delivery of the vision outlined in this Framework will give rise to development and infrastructure which has the potential to impact on the receiving environment. To ensure that these potential impacts are considered at this strategic level and to signpost the requirements for lower tiers of planning, Strategic Environmental Assessment (SEA), Appropriate Assessment (AA) and Strategic Flood Risk Appraisal (SFRA) has been carried out as part of the preparation of this revised Framework and the results have been incorporated into the process. These integrated environmental assessment processes have included the development and appraisal of a number of strategic options and the assessment of each of the National Policy Objectives that follow. The assessments are referenced in the accompanying SEA Environmental Report, which is published as a separate document together with the Natura Impact Statement and the Strategic Flood Risk Assessment Report. 10 Bergin, A., and Egan, P. (2024). Population projections, the flow of new households and structural housing demand, ESRI Research Series 190, Dublin: ESRI. 2.3 Strategy Development Projections Projecting how Ireland’s population will grow and change between now and 2040, based on demographic and econometric modelling undertaken by the Economic and Social Research Institute (ESRI)10, is a core element of this Framework. The 2018 NPF planned for population growth of 1.1 million people, and a total population of 5.85 million by 2040. Census 2022 recorded a population of 5.15 million (CSO) in Ireland. The ESRI has updated its national and regional population projections to account for Census 2022 and to take account of up to date economic, fertility, mortality and migration data. The updated projection is that the population of Ireland will increase to approximately 5.7 million by 2030 and to 6.1 million by 2040. Given the key role of international migration in shaping population growth in Ireland, the ESRI have also modelled a higher international migration scenario with a projected population of 6.3 million people by 2040 (baseline + 200,000). The ESRI projections form the basis for the revised NPF. This means that the NPF will now need to plan for a population of 6.1 million by 2040, an additional 250,000 people over that planned for in 2018. To account for the possibility of higher net inmigration over the period to 2040, an allowance is made in the NPF to enable ambition and flexibility in planning for future growth. In effect, the Framework needs to plan to accommodate around 950,000 additional people in Ireland between 2022 and 2040, while also making provision for a higher in-migration scenario. Progress towards these targets will be subject to review and further detail on phasing is set out in Chapter 10. In setting overall targets for future growth, it is a pattern of development that is being targeted, rather than precise numbers. From a long-term, national perspective, the targeted location, relative scale and proportionality of growth will assist in monitoring and assessing delivery and performance. 950,000 additional people in Ireland between 2022 and 2040 Page 18 | National Planning Framework First Revision
Source Government of Ireland: National Planning Framework: First Revision (April 2025) · Licence the publisher's termsText read from the publisher’s PDF; tables, maps and drawings do not survive as text, and page numbers are the PDF’s (its first page is 1). Check the original before relying on a passage.