Ireland’s National Planning Framework (NPF): Guiding Sustainable Development to 2040

On 30 April 2025, the Houses of the Oireachtas approved the First Revision of the National Planning Framework (NPF), under Section 20C(8) of the Planning and Development Act 2000 (as amended). This revision updates the 2018 NPF to reflect sustained population growth, updated government policy, and the urgent need to accelerate housing delivery.

Understanding Ireland’s National Planning Framework

The National Planning Framework (NPF) is Ireland’s long-term strategic plan to guide growth and development through 2040. It aims to manage population growth of around one million people, providing homes, jobs, and sustainable communities while protecting the environment. The framework promotes balanced regional growth, focusing on Ireland’s five cities, towns, villages, and rural areas, with at least 40% of new housing delivered within existing urban areas.

The NPF is linked to a 10-year National Development Plan, backed by significant public investment, including a €3 billion Regeneration and Development Fund to support urban and rural renewal. It encourages environmentally focused local planning, low-carbon development, and coordinated city and regional strategies.

State-owned lands will be strategically developed, guided by new legislation and an independent Office of the Planning Regulator, to ensure effective implementation. Regional and local plans will align with the NPF’s shared vision, supporting sustainable, resilient, and economically vibrant communities across Ireland.

Key Population and Housing Targets

• National population growth: Revised target of 6.1 million by 2040 (an increase of ~250,000 from the original NPF), representing a total increase of 950,000 from 2022 Census figures.

• City growth targets: Dublin – 1.56 million; Cork – 320,000; Limerick – 150,000; Galway – 122,000; Waterford – 88,000.

• Housing: 50,000 additional homes per year to 2040, totalling 800,000 new homes between 2024 and 2040.

Goals for Ireland’s National Planning Framework

The National Planning Framework (NPF) establishes a shared set of goals, known as National Strategic Outcomes, to guide Ireland’s growth and development to 2040. These goals aim to create vibrant, sustainable, and well-connected communities across the country.

• Compact Growth – Promote sustainable, higher-density development in cities, towns, and villages by reusing existing urban sites and reducing sprawl. Investment in infrastructure and amenities will help unlock the potential of these areas.
• Enhanced Regional Accessibility – Improve connectivity between key urban centres and regions to support balanced growth, including links beyond Dublin, along the Atlantic Economic Corridor, and connections to Northern Ireland.
• Strengthened Rural Economies and Communities – Support rural areas through improved broadband, connectivity, and economic development, ensuring they remain thriving, living, and working communities.
• Sustainable Mobility – Transition to low-carbon, electrified transport systems, including public transport fleets and electric vehicles, creating cleaner and quieter urban environments.
• A Strong Economy – Foster enterprise, innovation, and skills development across urban and rural areas, supported by world-class infrastructure and digital connectivity to drive investment and economic competitiveness.
• High-Quality International Connectivity – Enhance airports, ports, and transport links to strengthen Ireland’s global competitiveness and respond to strategic challenges such as Brexit.
• Enhanced Amenities and Heritage – Improve public spaces, parks, recreational facilities, and heritage sites to ensure attractive and high-quality urban and rural environments.
• Transition to a Low-Carbon, Climate-Resilient Society – Align growth with climate goals by expanding renewable energy systems, modernizing energy grids, and supporting sustainable, low-carbon infrastructure.
• Sustainable Management of Water, Waste, and Environmental Resources – Protect Ireland’s natural resources, promote circular economy principles, and ensure responsible environmental stewardship for future generations.
• Access to Quality Childcare, Education, and Health Services – Ensure all communities have equitable access to essential services, supporting attractive, sustainable, and inclusive places to live.

Key Strategies for Sustainable Development

The key strategies for sustainable development in the National Planning Framework includes:

Compact Growth and Urban Regeneration

The NPF promotes compact urban form, higher density development, and the regeneration of brownfield and vacant sites. City and County Development Plans are encouraged to identify and map brownfield/infill sites to support the 40% target for housing within existing urban footprints (50% in cities, 30% elsewhere).

Transport-Oriented Development (TOD)

The NPF places emphasis on TOD near public transport hubs in cities, suburbs, and metropolitan towns. TOD is defined as: “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.”

The framework encourages active travel, EV infrastructure, and the ‘Avoid-Shift-Improve’ model to reduce transport emissions.

Climate Action and Renewable Energy

The updated NPF incorporates measures to achieve climate neutrality, including:

• A 51% reduction in GHG emissions by 2030.

• Development of at least 5GW of offshore wind capacity by 2030, with over 37GW planned before 2050.

• Nature-based solutions to increase water service capacity.

Infrastructure and Regional Development

The NPF prioritises development in areas with existing or planned infrastructure and emphasizes flexible, performance-led planning criteria. Regional growth targets aim to distribute population increases across Eastern & Midland, Southern, and Northern & Western regions, while continuing to direct 50% of national growth to Ireland’s five largest cities.

Environmental Integration

The framework encourages linkages between green and blue infrastructure in line with biodiversity action plans, promoting healthy, sustainable communities.

Implications for Communities and Local Authorities

The revised NPF serves as a basis for reviewing City and County Development Plans, ensuring alignment with updated population and housing targets. New Section 28 guidelines for site rezoning are expected to require additional residential zoning to meet the increased demand.

What Happens If We Do Nothing

Ireland has previously experienced the risks of inaction through the 2002 National Spatial Strategy (NSS), a 20-year plan intended to guide development and investment across the country. The NSS focused on designating certain cities and towns as ‘gateways’ or ‘hubs’ to drive regional growth, but this approach created perceptions of “winners” and “losers,” undermining the strategy’s goals.

The NSS lacked statutory backing, and subsequent government actions, such as the 2004 decentralisation of public services, often ignored its principles. National investment did not follow the plan, limiting its effectiveness, and the 2008 economic crisis further constrained Ireland’s capacity to implement it.

An Expert Group review in 2014 highlighted the consequences of failing to act: without focused development beyond Dublin, other regions risk irreversible decline, while overconcentration in the capital creates unsustainable pressures on housing, infrastructure, and services. The review stressed the need to prioritise investments that deliver the greatest cultural, economic, environmental, and social benefits nationwide.

In short, without proactive planning, Ireland faces unbalanced growth, declining regional potential, and growing pressures on its major cities, undermining prosperity and quality of life for future generations.

Conclusion

The First Revision of the NPF establishes a robust, integrated approach to sustainable development in Ireland, combining population growth management, housing delivery, transport-orientated urban development, climate action, and environmental sustainability. It provides a clear strategic direction for policymakers, local authorities, and communities to support the proper planning and sustainable development of the State through to 2040.