National Planning Framework: First Revision

1. Page 21

   Cite this pagePDF p. 21 (opens the publisher’s copy in a new tab)
   2.4 Growing our Regions 11 Transport orientated development is a form of urban development that seeks to maximise the provision of housing, employment, public services and leisure space in close proximity to frequent, high quality transport services. In developing the NPF a range of options were considered and applied to the three regions established in 2014. These range from ‘business as usual’, under which a majority of growth would occur in the Eastern and Midland Region if current trends continue, to ‘regional dominance’, whereby the combined Northern and Western and Southern Regional Assembly areas would grow at twice the rate of the Eastern and Midland Region. It is evident from the analysis undertaken, that a regional dominance approach is neither realistic nor implementable given the significance of Dublin and would result in a diminished scale of overall national development. Similarly, a business as usual strategy would continue the pattern of over concentration of population, homes and jobs in around Dublin and the east and decline in other areas. In accordance with the National Planning Framework vision, ‘regional parity’ was considered to be a more credible, reasonable and viable alternative scenario, whereby the targeted growth of the Northern and Western and Southern Regional Assembly areas combined would exceed that projected under a ‘business as usual’ scenario and would at least equate to that projected for the Eastern and Midland Region. The revised Framework maintains the ‘regional parity’ approach, and in doing so, the additional population growth projected between 2022 and 2030 will be targeted on a pro-rata basis throughout Ireland. This means more targeted growth everywhere, including for the four regional cities. However, the scale of growth that is projected in Ireland to 2040 coupled with the need to transition to a lower carbon society requires an increased delivery of housing and the improved integration of land use and transport. Census 2022 and other indicators highlight significant unmet demand for housing in Dublin and the Mid- Eastern Region in particular. This has the potential to undermine national competitiveness and social cohesion. As a result, there may be a requirement to plan for population growth that would exceed the overall 6.1m projection, in line with the high migration scenario provided in the ESRI’s Report. However, this can only be undertaken and delivered in line with longer term strategic planning for Transport Orientated Development (TOD)11 in Ireland’s five Cities. The purpose of this is to support the delivery of new sustainable communities at brownfield and greenfield locations along existing or planned high capacity public transport corridors within the metropolitan area, with a particular focus on TOD opportunities along highcapacity rail corridors. The allocation for these new sustainable communities provide greater flexibility to plan for future growth and investment. Accordingly, the NPF target in relation to growing our regions based on the 2022 baseline year is: National Policy Objective 2 The projected level of population and employment growth in the Eastern and Midland Regional Assembly area will be at least matched by that of the Northern and Western and Southern Regional Assembly areas combined. In terms of Ireland’s future population, targeting this pattern is significant because it represents a shift from current trends. In the context of around one million additional people in Ireland between 2022 and 2040, it means planning for: National Policy Objective 3 Eastern and Midland Region: approximately 470,000 additional people between 2022 and 2040 (c. 690,000 additional people over 2016-2040) i.e. a population of almost 3 million Northern and Western Region: approximately 150,000 additional people between 2022 and 2040 (c. 210,000 additional people over 2016-2040) i.e. a population of just over 1 million; Southern Region: approximately 330,000 additional people over 2022 levels (c. 450,000 additional people over 2016-2040) i.e. a population of just over 2 million. In similar terms, seeking a shift in the pattern of development away from current trends, means planning for enterprise and employment at locations that are integrated with the planned distribution of population and that have the required planned critical infrastructure and associated services available. The work undertaken for the National Planning Framework indicates that the key to securing the scale of regional population growth above and a commensurate level of enterprise and employment growth, requires population and employment distribution to be considered in an integrated manner. It will be important when planning for enterprise and employment at regional and local levels to consider the characteristics of different enterprise and employment types when considering the location, concentration, dispersal and the physical format for future development. National Planning Framework First Revision | Page 19

2. Page 22

   Cite this pagePDF p. 22 (opens the publisher’s copy in a new tab)
   2.5 Building Stronger Regions: Accessible Centres of Scale 12 The five cities and their suburbs as defined by the CSO in the Census of Population. Under ‘business as usual’, a continued focus on growth in and around Dublin and to some extent Cork, Limerick, Galway and Waterford without addressing the specific development challenges facing other regions, such as the accessibility and urban structure of the north-west or the economic underperformance of the South-East, would have negative consequences that would further add to growth pressures in the wider Dublin Region and inhibit more peripheral parts of Ireland from realising their full potential. This is not a desirable scenario and in considering alternative options for the NPF in 2018, the two key variables were the scale of concentration of activity and the relative distance, or ease of accessibility, to larger centres of population and employment, i.e. ‘centres of scale’. There are therefore important twin elements of strategy required to address issues of scale and peripherality in Ireland. Both have significant influence on a wider geographic area. The first, which is a concerted effort to focus on building internationally, nationally and regionally strong cities and towns, could deliver a lot of positive impacts and enhance overall national growth so that: future population and employment growth would be geographically more aligned; future enterprise and employment growth would be geographically more distributed, but focused to a greater extent on a limited number of larger and regionally distributed centres, to include the North and West and Midlands; the significant growth potential of Cork, Limerick, Galway and Waterford separate from Dublin would be realised, while at the same time enhancing and enabling Dublin’s unique role as an international city of scale; Ireland’s regions, and in particular the north and west and midlands, would be turned around to better achieve their potential for focused investment. The second, complementary element of this twin strategy requires: Improved accessibility between centres of scale separate from Dublin, to ensure that levels of service (travel times per km) between the Capital and Ireland’s cities and larger regionally distributed centres are replicated and on key east-west and north-south routes; A particular focus on improving accessibility and connectivity northwards on the emerging Atlantic Economic Corridor (AEC) network, that links a network of major centres on the western seaboard; Improved accessibility and connectivity from surrounding regions, focused on key routes to a number of larger and regionally distributed centres. To deliver the above means: National Policy Objective 4 A target of half (50%) of future population and employment growth will be focused in the existing five cities and their suburbs12. National Policy Objective 5 The regional roles of Athlone in the Midlands, Sligo and Letterkenny in the North-West and the Letterkenny-Derry and Drogheda-Dundalk- Newry cross-border networks will be supported in the relevant Regional Spatial and Economic Strategy and in Regional Enterprise Plans. National Policy Objective 6 Accessibility from the north-west of Ireland and between centres of scale separate from Dublin will be significantly improved, focused on cities and larger regionally distributed centres and on key east- west and north-south routes. As key elements of the strategy, the distribution of future growth between the regions, when combined with building scale and accessibility, serve to set a new way forward. However, the question of compact development or sprawl is also critical to this new course. 2.6 Securing Compact and Sustainable Growth The physical format of urban development in Ireland is one of our greatest national development challenges. Analysis undertaken in the preparation of the NPF in 2018, showed that more than anything else, getting the physical form and location of future development right offers the best prospects for unlocking regional potential. The fastest growing areas continue to be at the edges of and outside our cities and towns, meaning: A constant process of infrastructure and services catch-up in building new roads, new schools, services and amenities and a struggle to bring jobs and homes together, meaning that there are remarkably high levels of car dependence and that it is difficult to provide good public transport; Page 20 | National Planning Framework First Revision

3. Page 23

   Cite this pagePDF p. 23 (opens the publisher’s copy in a new tab)
   A gradual process of run-down of city and town centres and established suburban areas as jobs, retail and housing move out, leaving behind declining school enrolments, empty buildings and a lack of sufficient people to create strong and vibrant places, both day and night; The most development takes the form of greenfield sprawl that extends the physical footprint of our urban areas, and when it is the principal form of development, works against the creation of attractive, liveable, high quality urban places in which people increasingly wishing to live, work and invest, and A significantly higher carbon footprint than the EU average, in part due to higher transport and energy demand, mostly based on fossil fuels, that has worked against achieving agreed climate action targets. The preferred approach involves compact development that focuses on reusing previously developed, ‘brownfield’ land, building up infill sites, which may not have been built on before and either reusing or redeveloping existing sites and buildings. In relation to previously developed, brownfield and infill sites, and vacant and derelict buildings, these sites vary by their nature, scale and location depending on the settlement size within which they are located. On the basis of their existing land use in an urban area, these lands may be underutilised. As a result, there is potential for such sites to contribute to meeting the development needs of the area, in particular in terms of housing delivery, as a result of their location and access to existing services and communities. Such regeneration or relocation of uses if facilitated, can release urban land for more efficient purposes that would be of benefit to the regeneration and development of the urban area as a whole, particularly in metropolitan areas and large towns (Refer also to Chapter 4, section 4.4). The development potential of these areas can thereby contribute towards the planned growth of settlements in conjunction with the zoning of land for particular purposes. An increase in the proportion of more compact forms of growth in the development of settlements of all sizes, from the largest city to the smallest village, has the potential to make a transformational difference. It can bring new life and footfall, contribute to the viability of services, shops and public transport, increase housing supply and enable more people to be closer to employment and recreational opportunities, as well as to walk or cycle more and use the car less. Along with transport demand, higher densities and shorter travel distances will also reduce energy demand and use. Multi-storey and terraced buildings in close proximity require less energy and make renewablesbased systems of energy distribution such as district heating, more feasible. Compact growth and higher densities in areas served by existing or planned infrastructure including water services with sufficient capacity, or with the potential for future sustainable services to be provided, maximises the use of existing infrastructure and reduces additional investment costs. Including demand management activities such as water conservation (e.g. rainwater harvesting) can reduce drinking water demand while the use of Nature Based Solutions can free up capacity in existing combined sewers. Creating compact development in Ireland has been traditionally more difficult to achieve than a continuous process of pushing development outwards, towards ‘greenfield’ locations and requires focus on four key areas: 1 The ‘liveability’ or quality of life of urban places – how people experience living in cities, towns and villages. This includes the quality of the built environment, including the inclusion of green and blue infrastructure, the public realm, traffic and parking issues, access to amenities and public transport and a sense of personal safety and well-being; 2 Making the continuous regeneration and development of existing built up areas as attractive and as viable as greenfield development. This requires greater certainty and cost equalisation as a result of a steady supply of sites and land and investment in infrastructure and amenities through more active land management in urban areas; 3 Tackling legacies such as concentrations of disadvantage in central urban areas through holistic social as well as physical regeneration and by encouraging more mixed tenure and integrated communities; 4 Linking regeneration and redevelopment initiatives to climate action, to support a reduced carbon footprint through greater energy efficiency and use of renewables. In order to understand compact growth trends, development must be monitored across cities and towns in a consistent way. A new approach to monitoring urban growth will be developed, focussing on the built-up footprint of existing settlements comprising areas that are subject to existing urban land uses and the additional ‘land take’ associated with development outside of the built-up footprint. A tool is being developed to track and compare urban development trends across the main urban settlements. In the long term, meeting Ireland’s development needs in housing, employment, services and amenities on mainly greenfield locations will cost multiples of a compact growth based approach. Accordingly, subject to implementation of sustainable planning and environmental principles, the National Planning Framework sets the following urban development targets: National Planning Framework First Revision | Page 21

4. Page 24

   Cite this pagePDF p. 24 (opens the publisher’s copy in a new tab)
   National Policy Objective 7 Deliver at least 40% of all new homes nationally, within the built-up footprint of existing settlements and ensure compact and sequential patterns of growth.13 National Policy Objective 8 Deliver at least half (50%) of all new homes that are targeted in the five Cities and suburbs of Dublin, Cork, Limerick, Galway and Waterford, within their existing built-up footprints and ensure compact and sequential patterns of growth. 13 This objective relates to all ‘built up areas’ as defined by CSO. For the purposes of NPO 7, 8 and 9 the built- up footprint is defined as the area given over to urban land uses (i.e. artificial surfaces relating to urban land uses). The built-up footprint shall be clearly defined for each settlement on the land use zoning map as part of the statutory plan making process. National Policy Objective 9 Deliver at least 30% of all new homes that are targeted in settlements other than the five Cities and their suburbs, within their existing built-up footprints and ensure compact and sequential patterns of growth. National Policy Objective 10 Deliver Transport Orientated Development (TOD) at scale at suitable locations, served by high capacity public transport and located within or adjacent to the built up footprint of the five cities or a metropolitan town and ensure compact and sequential patterns of growth. A summary of the key national targets for structuring overall national growth, promoting regional parity, building accessible centres of scale and securing compact and sustainable growth is set out in the table below: Table 2.1 | The NPF at a Glance: Targeted Pattern of Growth, 2022 to 2040 National Policy Objective Eastern and Midland Southern Northern and Western 1. Growing Our Regions Approximately 470,000 people (3m total) (690,000 people over 2016) Approximately 330,000 people (2m total) (450,000 people over 2016) Approximately 150,000 people (1m total) (210,000 people over 2016) 2. Building Stronger Regions: Accessible Centres of Scale Dublin City and Suburbs: + 295,000 people (at least 1.56 million in total) Regional Spatial and Economic Strategy to set out a strategic development framework for the Region, leading with the key role of Athlone in the Midlands and the Drogheda-Dundalk- Newry cross-border network Cork City and Suburbs: + 96,000 people at least 320,000 in total) Limerick City and Suburbs: 44,000 people (at least 150,000 in total) Waterford City and Suburbs: + 28,000 people (at least 88,000 in total) Regional Spatial and Economic Strategy to set out a strategic development framework for the Region Galway City and Suburbs: + 36,000 people (at least 122,000 in total) Regional Spatial and Economic Strategy to set out a strategic development framework for the Region, leading with the key role of Sligo in the North-West, Athlone in the Midlands and the Letterkenny-Derry crossborder network. 3. Compact, Smart, Sustainable Growth 50% of new city housing within existing Dublin City and suburbs footprint 30% all new housing elsewhere, within existing urban footprints 50% new city housing on within existing Cork, Limerick and Waterford Cities and Suburbs footprints 30% all new housing elsewhere, within existing urban footprints 50% of new city housing within existing Galway City and suburbs footprint 30% all new housing elsewhere, within existing urban footprints Page 22 | National Planning Framework First Revision

5. Page 25

   Cite this pagePDF p. 25 (opens the publisher’s copy in a new tab)
   2.7 Translating the NPF to City and County Levels In setting targets for planned future growth, the NPF sets out how we can achieve our overall national, regional and local objectives in a coherent and coordinated manner. To ensure that the shared vision is carried through from national, to regional and local level and that there is an effective process of alignment, an updated ‘Implementation Roadmap’ will be published to translate national and regional planned growth projections to city and county levels. The revised targets will support a plan-led approach to NPF implementation at regional and local level, allowing NPF growth objectives to be incorporated into city and county development plans as they are reviewed. In this regard, matters related to the targeted population and housing numbers and the estimated capacity of each settlement for growth is determined at the plan-making stage, in accordance with the hierarchy of plans prescribed under the Planning and Development Act. Planned growth at settlement level is to be reflected in the objectives of the statutory development plan, including land use zoning objectives, subject to an appropriate and proportionate element of flexibility in line with statutory guidelines, and will be required to have regard to matters such as appropriate densities to be applied, taking into account the particular circumstances and location. Accordingly, while plan-led targets at settlement level will inform the plan-making process and thereby form the basis for decision-making, the consideration of individual development proposals on zoned and serviced development land subject to consenting processes under the Planning and Development Act will have regard to a broader set of considerations beyond the targets alone, including where there may be extant, but as yet unimplemented planning permissions. National Policy Objective 11 Planned growth at a settlement level shall be determined at development planmaking stage and addressed within the objectives of the plan. The consideration of individual development proposals on zoned and serviced development land subject of consenting processes under the Planning and Development Act shall have regard to a broader set of considerations beyond the targets including, in particular, the receiving capacity of the environment. National Planning Framework First Revision | Page 23

6. Page 26

   Cite this pagePDF p. 26 (opens the publisher’s copy in a new tab)
   Effective Regional Development 3 Page 24 | National Planning Framework First Revision

7. Page 27

   Cite this pagePDF p. 27 (opens the publisher’s copy in a new tab)
   3.1 Strategic Development of Ireland’s Regions Regional governance and regional development are essential cogs for translating and delivering national policy at a local scale. The three Regional Assemblies are tasked to co- ordinate, promote and support the strategic planning and sustainable development of the regions. Each of the Regional Assemblies has a leadership role to play in identifying regional policies and coordinating initiatives that support the delivery and implementation of national planning policy. The primary vehicle for this is the preparation and implementation of Regional Spatial and Economic Strategies, aligned with the National Smart Specialisation Strategy for Innovation 2022-2027. These strategies provide regional level strategic planning and economic policy in support of the implementation of the National Planning Framework and provide a greater level of focus around the National Policy Objectives and National Strategic Outcomes of the NPF. While each of the three regions is distinct, they do not operate in isolation from each other and there are many complementing and connecting assets shared between regions. For both the Eastern and Midland and the Northern and Western Regions, interaction with Northern Ireland is a critical consideration. Due to the strategic national and regional nature of some development proposals, a consistent policy approach to regional and economic planning will also be important. Since the adoption of the NPF in 2018 significant progress has been made in the introduction of institutional and policy measures aimed at supporting effective regional development including the following; The adoption of Regional Spatial and Economic Strategies for the three regional assembly areas, consistent with NPF policy; The development of Regional Enterprise Plans; and The publication of the National Smart Specialisation Strategy for Innovation (2022), with a focus on specific regional strengths. The imperatives of meeting the decarbonisation targets heighten the importance of achieving more sustainable growth patterns in the regions and cities. Within each region, the cities in particular play a key role in giving effect to the large scale transition to net zero required by 2050 and can support a move towards reduced carbon living e.g. through better energy demand management and alternative energy solutions, sustainable mobility and lower carbon buildings. Regional development goals must also ensure a just transition to carbon neutrality, within the wider statutory framework of climate action, supporting alternative employment in place of traditional industries, and supporting persons and communities that may be negatively impacted by the transition. It is clear that a strengthening of institutional and governance arrangements to coordinate implementation of the NPF at national, regional and metropolitan levels, across all stakeholders involved, will be required if the strategy is to be delivered successfully. The broad range of stakeholders involved in delivering the social, community and ‘hard’ infrastructure elements required to facilitate transformative growth in metropolitan areas – including not just regional assemblies and county and city councils but also Government Departments and agencies such as Uisce Éireann, TII, NTA, OPW, port authorities - requires a level of coordination and interaction at the national, regional and metropolitan scale. This section outlines high level planning and placemaking policies and enablers to help shape the strategic development of our regions. Since the adoption of the NPF in 2018 significant progress has been made in the introduction of institutional and policy measures aimed at supporting effective regional development National Planning Framework First Revision | Page 25

8. Page 28

   Cite this pagePDF p. 28 (opens the publisher’s copy in a new tab)
   DONEGAL SLIGO MAYO ROSCOMMON LEITRIM CAVAN MONAGHAN LOUTH MEATH LONGFORD KILDARE DUBLIN WICKLOW WESTMEATH GALWAY CLARE LIMERICK KERRY CORK WATERFORD WEXFORD KILKENNY CARLOW TIPPERARY LAOIS OFFALY Dublin Waterford Cork Limerick Galway Derry Belfast Newry Dundalk Sligo Letterkenny Athlone Drogheda NORTHERN & WESTERN REGION EASTERN & MIDLAND REGION NORTHERN IRELAND SOUTHERN REGION Figure 3.1 | Ireland’s Regional Assembly Areas and Northern Ireland Page 26 | National Planning Framework First Revision

9. Page 29

   Cite this pagePDF p. 29 (opens the publisher’s copy in a new tab)
   3.2 Eastern and Midland Region The Eastern and Midlands part of Ireland will, by 2040, be a Region of around 3 million people, at least half a million more than today. The Region’s most significant place-making challenge will be to plan and deliver future development in a way that enhances and reinforces its urban and rural structure and moves more towards self-sustaining, rather than commuter driven activity, therefore allowing its various city, metropolitan, town, village and rural components to play to their strengths, while above all, moving away from a sprawl-led development model. This Region is one of significant contrasts, encompassing Dublin and its wider commuting catchment which extends into surrounding and nearby counties and towns, some of which have grown very rapidly in recent decades to significant scale, particularly where located along motorway and railway corridors. Beyond Dublin and the principal transport corridors, the Region is more rural in character, with variation both within the counties adjoining Dublin and between the Mid- Eastern counties and the Midlands. All counties within this Region together with their main towns are strategically placed in a national context. One of the most significant spatial development changes in recent years is driven by the rising economic strength of Dublin, improving transport connectivity and issues relating to housing delivery and cost in the Capital. This has given rise to more intensive interactions between Dublin and towns along the key road and rail routes into Dublin, that function like a linear urban network. This has created both self-sustaining economic and overspill commuter-driven development in these settlements. Data from Census 2022 indicates that an increased number of Dublin-based workers are now commuting longer distances, enabled by an increase in hybrid and remote working, extending the economic reach of Dublin. In the wider Mid-East Region, the rapid growth experienced by many towns in recent decades was mainly driven by housing, rather than jobscentred development. An integrated approach to the development of these and similar towns is a priority, but playing to local strengths and securing employment opportunities to drive self-sustaining, rather than mainly housing-led development. Mid-East The strategic location of counties Kildare, Meath and Wicklow, proximate to the Capital, has in part, resulted in significant development in a region characterised by the dominance of Dublin. The Mid- East has experienced high levels of population growth in recent decades, at more than twice the national growth rate. Census data indicates that this pattern is continuing with population growth in the Mid-East exceeding the national average rate in the 2016 to 2022 period. Managing the challenges of future growth is critical to this regional area. A more balanced and sustainable pattern of development, with a greater focus on addressing employment creation, local infrastructure needs, including in particular social and community infrastructure in areas such as education and amenity, and addressing the legacy of rapid growth, must be prioritised. The Eastern and Midlands part of Ireland will, by 2040, be a Region of around 3 million people, at least half a million more than today. Eastern and Midland Region National Planning Framework First Revision | Page 27

10. Page 30

    Cite this pagePDF p. 30 (opens the publisher’s copy in a new tab)
    This means that housing development should be infrastructure led and primarily based on employment growth, accessibility by sustainable transport modes and quality of life, rather than unsustainable commuting patterns. Midlands The Midlands Regional area comprises counties Laois, Longford, Offaly and Westmeath. These counties are not located immediately adjacent to Dublin, but the wider influence of the Metropolitan area is resulting in substantial population growth at an unsustainable rate in some settlements, while others have experienced decline. The location of the Midlands is strategically important, bordering both the Northern and Western, and Southern Regions. Its central location in Ireland can be leveraged to enable significant strategic investment to a greater extent than at present, supported by a sustainable pattern of population growth, with a focus on strategic national employment and infrastructure development, quality of life and a strengthening of the urban cores of the county towns and other principal settlements. Due to its strategic location and scale of population, employment and services, Athlone has an influence that extends to part of all three Regional Assembly areas. These important regional interdependencies are recognised in the Regional Spatial and Economic Strategies for the Eastern and Midlands and Northern and Western Regional Assembly areas. It will also be necessary to prepare a co-ordinated strategy for Athlone at settlement level, to ensure that the town and environs has the capacity to grow sustainably and to secure investment, as the key regional centre in the Midlands. Louth/North-East While County Louth is located in the Eastern and Midland Regional Assembly area, the North-East is a functional area that comprises part of two Regional Assembly areas that also includes most of County Cavan and County Monaghan in the Northern and Western Region. The key driver for this regional area is the Dublin-Belfast cross-border network, focused on Drogheda, Dundalk and Newry. The significant influence of Dublin and the crossborder network extends to the county towns and other settlements within the north-eastern regional area as well as to Fingal and parts of County Meath. In identifying opportunities for leveraged employment and sustainable population growth, development must be supported by enhanced connectivity, quality of life, strengthened urban cores and more compact housing in urban settlements. This is to protect and manage the strategic capacity of transport infrastructure and to ensure that the distinctiveness of settlements and rural areas is maintained. The important regional role of Dundalk and Drogheda is recognised in the Regional Spatial and Economic Strategy for the Eastern and Midlands Regional Assembly Area. It will also be necessary to prepare co-ordinated strategies for Dundalk and at settlement level to ensure that they have the capacity to grow sustainably and secure investment as key centres on the Drogheda-Dundalk-Newry cross-border network. Page 28 | 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.