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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- 8.5 Managing our Shared Environment Responsibly 52 Strategic investment priorities for a more sustainable island are set out on page 167, National Development Plan 2021 – 2030. The island of Ireland is a single ecological entity. Well-coordinated cross-border approaches are essential for effective planning and investment actions, in addressing the generational challenges of climate breakdown and the biodiversity crisis, and protecting the common environmental resources of the island. The European Green Deal will continue to shape Ireland’s approach to addressing climate change and environmental degradation, and the Government will work with the Executive through the North South Ministerial Council and with the UK Government to coordinate and optimise approaches for the island of Ireland as a whole. The Environmental Protection Agency, Marine Institute, the National Parks and Wildlife Service and other agencies will continue to work in close partnership with their Northern Ireland counterparts. Wider engagement - including by researchers, environmental, economic and civil society stakeholders on the island - is also critical for the necessary whole of society action on tackling climate change and environmental conservation and will be supported. Coordinated planning and cooperation on delivery of sustainable transport networks and renewable energy infrastructure are strategic priorities. Ireland is a Party to the UNECE Convention on Environmental Impact Assessment in a Transboundary Context (the Espoo Convention), which, places an obligation on contracting Parties to consult each other on proposed development that may have transboundary environmental impacts. The Espoo Convention is a key tool for placing a greater emphasis on environmental protection by focusing on transparency, public participation, mitigation and monitoring of environmental effects. Ireland has a longstanding transboundary environmental impact assessment (EIA) relationship with the UK as our nearest neighbour. Since the UK left the European Union, the relevance of the Espoo Convention has increased, as the UK is also a Party to the Convention, meaning that it is the main legal mechanism underpinning a continued transboundary EIA consultation relationship, which was previously underpinned by the EU EIA Directive. The island-wide context for climate action, air and water quality and biodiversity conservation and the protection of our shared heritage assets needs to be supported for the necessary whole of society action on tackling climate change and environmental conservation. Delivery of island-wide electric vehicle and other sustainable transport networks and renewable energy infrastructure are critical in tackling climate change. It is also necessary to pursue coordinated all-island approaches to the circular economy, protection of our shared marine and coastal environment and biodiversity protection52. Catchment- based strategies require management by both jurisdictions and a number of jointly funded North-South Implementation Bodies have roles and responsibilities in these areas in addition to co-ordination through the North South Ministerial Council. With the withdrawal of the United Kingdom from the European Union there is no longer a requirement, as stated in the EU Water Framework Directive (WFD), to coordinate efforts between both jurisdictions in relation to international river basin districts with the aim of producing a single management plan. However, both jurisdictions are committed through their respective river basin management plans to carrying full responsibility for the implementation of all measures in their national territory, including any part of an International River Basin District that lies within their national territory. The island of Ireland is recognised as a single environmental unit where: substantial areas lie within cross-border river basins; some waters in each jurisdiction flow into or through the other jurisdiction; the rivers and lakes of the island of Ireland are designated as being within a single eco-region (eco-region 17) requiring a high degree of coordination between the authorities in both jurisdictions, to ensure consistent management of the entire aquatic environment; all coastal and transitional waters surrounding the island of Ireland are also included in one ecoregion (eco-region 1) and their management must be closely coordinated; and there are also 37 cross-border groundwater bodies which are shared between the two jurisdictions and require coordinated management. National Planning Framework First Revision | Page 119
- In supporting environmental responsibilities under the National Planning Framework, shared action on our shared environment will ensure coordination between the two jurisdictions by: Aligning planning policies and river basin catchment management plans for whole river systems under the Water Framework Directive; Co-ordination in landscape character assessment including management and marketing of world heritage sites and candidate world heritage sites; Protection and enhancement of nationally important habitats including adjoining and crossborder protected sites; Co-ordination of relevant planning policies affecting shared coastal waters and seas; and Co-ordinated investment to conserve crossborder region peatlands to support biodiversity, provide valuable ecosystem services and act as carbon sinks. National Policy Objective 64 In co-operation with relevant Departments in Northern Ireland, ensuring effective management of shared landscapes, heritage, water catchments, habitats, species and trans-boundary issues in relation to environmental policy. 8.6 Ireland and England, Scotland and Wales Further to the European Spatial Development Perspective in 1999, Ireland was one of the first countries in Europe to publish a national-scale spatial plan through the National Spatial Strategy in 2002. Since then, such an approach to national planning has become the norm across Europe. Each of our closest neighbours in the UK has spatial plans for their constituent administrative areas or is in the process of producing new plans. These include the Regional Development Strategy in Northern Ireland, and Planning Frameworks in Scotland, Wales and England. In the face of multiple global challenges, crossborder working is of importance to greater territorial cohesion and highlighting opportunities for future growth and development. At a national level, the Irish Government is committed to working with our neighbours on national issues of common interest. From a national planning perspective, the work of the British-Irish Councilprovides an important forum through which practical co-operation and information sharing amongst the respective Governments and devolved administrations is helping to co-ordinate development in areas such as spatial planning, infrastructure connectivity, transboundary environmental issues and renewable energy. National Policy Objective 65 In co-operation with the United Kingdom Government and devolved Governments of Northern Ireland, Scotland and Wales, Ireland will support mutually beneficial policy development and activity in the areas of spatial and infrastructure planning and other related sphere. In the face of multiple global challenges, cross- border working is of importance to greater territorial cohesion and highlighting opportunities for future growth and development. Page 120 | National Planning Framework First Revision
- National Planning Framework First Revision | Page 121
- Climate Transition and Our Environment 9 Ireland’s environment and its diverse landscapes form part of our ‘green’ persona and we have much to be proud of. Page 122 | National Planning Framework First Revision
- 9.1 Climate and Environmental Capacity53 Ireland’s environment and its diverse landscapes form part of our ‘green’ persona and we have much to be proud of. 53 The carrying or environmental capacity of an environment can be interpreted as is the maximum population size of a biological species that can be sustained by that specific environment, given the food, habitat, water, and other resources available. Environmental carrying capacity is analysed through the SEA process as part of plan-making at each level. 54 Please refer to https://www.epa.ie/publications/monitoring--assessment/assessment/state-of-the-environment/irelands-state-of-the-environment-report-2024.php 55 Natural capital can be defined as the world’s stocks of natural assets which include geology, soil, air, water and all living things. Key national environmental challenges include the need to accelerate action on climate change, health risks to drinking water, treating urban waste water, moving from the existing linear economy to a circular economy, protecting important and vulnerable habitats and species as well as diminishing wild countryside and dealing with air quality problems in urban areas. It is also important to make space for nature into the future, as our population increases54. The manner in which we plan is important for the sustainability of our environment. Our planning system has influence across a wide range of sectors, both directly and indirectly, and interacts with many common issues related to effective environmental management, including water services, waste processing capacity, landscape, flood risk planning, green infrastructure planning, protection of designated sites and species, coastal and marine management, climate mitigation and adaptation, and land use change.55 Resource Efficiency and Transition to a Climate Neutral Economy Sustainable Land Management and Resource Efficiency Adopting the principles of the circular economy to enable more sustainable planning and land use management of our natural resources and assets. Climate Neutral Economy Our need to accelerate action on climate change. Renewable Energy Our transition to a climate neutral energy future. Managing Waste Adequate capacity and systems to manage waste in an environmentally safe and sustainable manner. Protecting, Conserving and Enhancing Our Natural Capital55 Sustainable Water Management Consideration of flood risk in planning and development management and treating urban waste water. Green and Blue Infrastructure Planning Protecting and valuing our important and vulnerable habitats, landscapes, natural heritage and green spaces. Creating a Clean Environment for a Healthy Society Water Quality Recognising the links and addressing on-going challenges between development activity, water quality and our health. Promoting Cleaner Air Addressing air quality problems in urban and rural areas through better planning and design. Noise Management Incorporating consistent measures to avoid, mitigate and minimise or promote the pro-active management of noise. As part of the National Planning Framework, in line with the EU vision of living well, within our limits and in support of environmental policy at European and national level, Government will address our environmental challenges through the following overarching aims: National Planning Framework First Revision | Page 123
- National Policy Objective 66 The planning system will be responsive to our national environmental challenges and ensure that development occurs within environmental limits, having regard to the medium and longer-term requirements of all relevant environmental and climate legislation and the sustainable management of our natural capital. 9.2 Resource Efficiency and Transition to a Neutral Carbon Economy Climate Action and Planning The global climate is changing and the changes underway will have consequences for Ireland in the period to 2040 and beyond. It is necessary to address the long term causes of climate change through reducing our greenhouse gas emissions, while adapting to its impacts over the short, medium and longer terms. The Government has committed to achieving targets underpinned by the adoption of a series of carbon budgets and national Climate Action Plans over the period to 2050, informed by UN and EU policy. These actions are also underpinned by other key national policies including the National Development Plan, National Adaption Framework and by Sectoral Adaptation Plans. In addition to legally binding targets agreed at EU level, it is a national objective for Ireland to transition to be a competitive zero carbon, economy no later than 2050. Meeting our commitments will require investment and ambitious and effective action across all sectors, as well as societal behavioural change. As an island, it is in our interest to ensure we respond to climate change and its impacts such as sea level change, more frequent and sustained rainfall events, drought and heat stress and greater vulnerability of low-lying areas to flooding. Our most densely populated areas, including our cities, are potentially vulnerable if we do not take the appropriate steps in flood risk management. Climate change also has significant consequences for food production and biodiversity. If Ireland is to make up for lost ground in relation to carbon reduction targets and move towards the objective of a zero carbon and climate resilient Ireland by 2050, it is necessary to make choices about how we balance growth with more sustainable approaches to development and land use and to examine how planning policy can help shape national infrastructural decisions. In addition, Ireland’s forests and also separately, peatlands play an important role in helping with climate change mitigation, through carbon sequestration and acting as carbon sinks. In addition, forests provide renewable fuels and raw materials. Government is committed to achieving climate neutrality no later than 2050 with a 51% reduction in GHG emissions by 2030. These legally binding objectives are set out in the Climate Action and Low Carbon Development (Amendment) Act 2021. The Climate Act supports Ireland’s transition to the achievement of a climate neutral economy no later than 2050. It also establishes a legally binding framework with clear targets and commitments, to ensure the necessary structures and processes are in place to deliver national, EU and international climate goals and obligations in the near and long term. Against this background, strategies must be devised to reduce and manage climate change risks through a combination of mitigation and adaptation responses, both in the medium and longer term. Irish forestry is a major carbon sink and afforestation is the most significant mitigation option that is available to Ireland’s land use sector. Page 124 | National Planning Framework First Revision
- The planning process provides an established means through which to implement and integrate climate change objectives, including mitigation and adaptation, at local level. Planning legislation also requires different levels of the planning process to address climate change. The NPF includes policy measures that support national high-level climate policy, consistent with: • the national statutory objective for climate neutrality not later than 2050, • the implementation of latest adopted Climate Action Plan, • complying with the adopted Carbon Budgets and Sectoral Emissions Ceilings, • the National Energy Security Framework, by supporting accelerated renewable energy development, and • the implementation of Ireland’s ‘Long-term Strategy on Greenhouse Gas Emissions Reductions’. Ireland’s current Long-term Strategy on Greenhouse Gas Emissions Reductions sets out indicative pathways, beyond 2030, towards achieving carbon neutrality for Ireland by 2050. The Strategy builds upon the decarbonisation pathways set by the carbon budgets, sectoral emissions ceilings and Climate Action Plan 2024, to ensure coherent and effective climate policy. It is underpinned by analysis of transition options across each key sector of the economy and provides a crucial link between Ireland’s 2030 climate targets and the long-term goal set by Ireland’s National Climate Objective and the European Climate Law. The Environmental Protection Agency56 highlights that human activity has led to widespread and rapid changes in all components of the global climate system with recent extreme events in Ireland highlighting the vulnerability of individuals, communities, sectors and ecosystems to climate change and indicate an adaptation deficit. Solutions need to be implemented across all sectors and society. Ireland’s environmental challenges cut across different environmental topics, such as climate, air, soil, water, biodiversity and waste, and across organisations and sectors, business and all levels of society. Environmental and source capacity needs to be a key consideration when identifying growth areas. The capacity of the environment and the natural resource is critical to achieving sustainable development. 56 Ireland’s Climate Change Assessment, 2023 Environmental Protection Agency Since 2018, there have been significant responses to address the climate crisis in the form of EU Directives, national legislation and policy approaches, including the following: • EU Action Plan: Towards Zero Pollution for Air, Water and Soil, 2021 • EU Fit for 55 package • The recast Renewable Energy Directive (Directive EU/2018/2001 and amending Directive EU/2023/2413) • Energy Performance in Buildings Directive (EPBD) • The Climate Action and Low Carbon Development (Amendment) Act 2021 • Climate Action Plan 2024 (subject to annual reviews) • Phase 1 of the Land Use Review • A Waste Action Plan for a Circular Economy 2020 • Circular Economy and Miscellaneous Provisions Act 2022 • National Circular Economy Strategy 2022 • BioEconomy Action Plan 2023 – 2025 • National Adaptation Framework • Sectoral Adaptation Plans • Forest Strategy Implementation Plan including the Forestry Programme 2023-2027 (refer to Rural Chapter) • European Communities (Birds and Natural Habitats) Regulations 2011 to 2021 • Ireland’s 4th National Biodiversity Action Plan 2023-2030 • Wildlife (Amendment) Act 2023 • National Smart Specialisation Strategy for Innovation 2022-2027 [High Level Strategic Goal No. 5] National Planning Framework First Revision | Page 125
- Emerging Legislation and Policy approaches include: • European Climate Law, • EU strategy on adaptation to climate change • EU biodiversity strategy for 2030 • Proposal for an EU 2040 Target for emissions reductions, • Ireland’s Long-term Strategy on GHG Emissions Reductions • Energy Security in Ireland to 2030 • EU Circular Economy Action Plan • The European Critical Raw Materials Act, 2023 • The European Net Zero Industry Act, 2023 • The European Nature Restoration Law • Planning and Development Act, 2024 • Proposal for a Directive on an EU Carbon Removal Certification Framework • Proposal for an EU Soil Monitoring and Resilience (Soil Monitoring Law) • National Biomethane Strategy • Phase 2 of the Land Use Review • The EU Action Plan for Grids, Actions to accelerate the roll-out of electricity grids (europa.eu) This Framework can support the response to climate change by encouraging the reduction of greenhouse gases through a variety of measures including; • the achievement of our compact growth objectives and the consequential reduction of overall land take; • the interaction between land use planning and transport infrastructure, associated potential for carbon emissions reductions resulting from reduced commuting patterns associated with future growth; • promoting re-use of existing buildings to reduce emissions associated with new construction; • the continued reduction in dependency on imported fossil fuels and decarbonisation of the energy system as a whole and in particular the electricity sector through the identification of targets for renewable electricity and the accelerated roll out of on-shore wind energy and solar development; • encouraging climate resilient planning policies; • limiting inappropriate developments in areas where climate impacts are likely to be most severe; • Providing guidance to local authorities on climate resilient planning practises including nature based solutions. Sustainable Land Management and Resource Efficiency Ireland has experienced a relatively high rate of land use change since the early 1990s. Recent population growth has led to an increase in the extent of dispersed residential and commercial development and new infrastructure, which have resulted in pressure on agricultural land, designated nature conservation areas and water quality. In catering for an additional one million people and a move towards renewable energy sources, increased demand for land is likely to include the identification of suitable locations for renewable energy and associated grid connections, bioenergy supply, waste management, agricultural food production, forestry, and other land services alongside the need to consolidate our existing cities, towns, and villages with the building of more houses, schools, industry, and other facilities while protecting the cultural heritage significance of the historic built environment and cultural landscapes and the conservation and restoration of nature. Competition for land resources needs careful management and the nature and rate of land use change indicates where future environmental pressures are likely to arise. It is important that synergies between utilities and infrastructure delivery partners are explored and that the environmental capacity of the receiving environment is considered in an integrated manner in policy and plan-making. Transport The policy pathway for cutting transport emissions centres around the ‘Avoid-Shift-Improve’ approach. ‘AVOID’ relates to planning and developing services, communities, and infrastructure in such a way that avoid the need to travel as much as we do today, in line with the Compact Growth policy approach of this framework. ‘SHIFT’ relates to improving the relative attractiveness and accessibility of sustainable travel modes (Public Transport, Cycling and Walking), to provide as many opportunities as possible to shift away from car use e.g. Transport Orientated Development, improved ‘Active Travel’ infrastructure, and better public realm. ‘IMPROVE’ relates to complementing these measures by facilitating an increase in the proportion of EV’s in our national fleet, as well as increasing the uptake of lower-carbon fuels such as biofuels, which will improve the carbon efficiency of the national fleet, as well as the freight and public transport sector. Page 126 | National Planning Framework First Revision
- Land Use Review The Programme for Government57 committed to a Land Use Review to ensure that optimal land use options inform all relevant Government decisions. The Land Use Review seeks to optimise land use to achieve environmental objectives in relation to climate, air, biodiversity and water while also supporting the achievement of socio-economic objectives in rural and urban areas. Phase I of the Land Use Review58 provides an evidence base to determine the environmental, ecological and economic characteristics of land types across Ireland. Phase 2 of the Land Use Review commenced on 26 October 2023 and seeks to identify the key demands on land (both public and private) to inform policies for land use across key Government objectives, improving socioeconomic, climate, biodiversity, water, and air quality outcomes. Circular Economy Ireland is advancing its development as a circular economy and bio economy where the value of all products, materials and resources is maintained for as long as possible and waste is significantly reduced or even eliminated. Further developing the circular economy will require greater efficiency with raw materials, energy, water, space and food by reusing natural resources wherever possible and where smartly-designed products based on alternative plastic feedstock and recyclable materials will form the basis of smart material cycles, in order to create less waste and reduce resource consumption59. 57 Programme for Government https://www.gov.ie/en/publication/7e05d-programme-for-government-our-shared-future/ 58 Land Use Review Phase 1 gov.ie - Land Use Review – Phase 1 (www.gov.ie) 59 The Government has approved the Green Public Procurement Strategy and Action Plan, Buying Greener: Green Public Procurement Strategy and Action Plan 2024-2027, which will play a key role in driving the implementation of green and circular procurement practices across the public sector. 60 Reducing Embodied Carbon in Cement and Concrete through Public Procurement in Ireland Report. 61 Published by the Department of the Environment, Climate and Communications (DECC) Buildings themselves form part of the circular economy, and measures which reduce embodied carbon60 and promote re-use and refurbishment, over demolition or dereliction will reduce waste as well as retaining density and protecting heritage. The European Commission adopted a new circular economy action plan (CEAP) in March 2020. A focus of the circular economy approach is on reducing material resource consumption, the prevention and designing out of waste and to effect behavioural change at an individual, household, and business level; and seeks to find measures to improve the simplification of the end-of-waste process to encourage meaningful reuse. The Circular Economy and Miscellaneous Provisions Act 202261 provides a statutory framework for moving from a focus on managing waste, to a much greater focus on adapting patterns of production and consumption; preventing waste generation; and extending the productive life of all goods and products. The National Circular Economy Strategy published in 2022 sets a course for Ireland to transition across all sectors toward circularity. Bio-based material, such as wood, crops or fibres, can be used for a wide range of products and energy uses. Apart from providing an alternative to fossil-based products, bio-based materials are also renewable, biodegradable and compostable. At the same time, using biological resources requires attention to their lifecycle, environmental impacts and sustainable sourcing. National Planning Framework First Revision | Page 127
- Circular Economy Programme The Environmental Protection Agency leads the Circular Economy Programme, a Government of Ireland initiative, and a statutory programme under the Circular Economy Act, 2022. The Programme’s vision is an Ireland where the Circular Economy ensures that everyone uses less resources and prevents waste to achieve sustainable economic growth. The Programme delivers activities to implement, regulate and measure the circular economy. Case Study Page 128 | National Planning Framework First Revision
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