The National Spatial Strategy was officially scrapped in 2013 by then Minister, Phil Hogan TD. Soon after, the development of a replacement strategy, the National Planning Framework, was announced. On Thursday the initial consultation document was published by the Department of Housing, Planning, Community and Local Government, and launched at Maynooth University by the Taoiseach, Enda Kenny TD, the Minister for DHPCLG, Simon Coveney TD, and Minister for State for Housing and Urban Renewal, Damien English TD. It sets out the process and timeline for formulating the full NPF and provides an initial framing of government thinking with respect to what should be included in the plan.
The NSS was widely considered an unmitigated failure for a number of reasons: there were too many gateways and hubs; it was misaligned with its funding stream the NDP; it was not supported by government, agencies and local authorities and was actively undermined; and it was not implemented on a statutory basis (see this post for a full history and explanation). So have lessons been learned? The Taoiseach would like to think so, stating at the launch that in the NSS, ‘towns were placed against towns, politics against politics … and we are not going there again.’ Instead, the NPF will seek to be more cooperative, coordinated, and regionally based.
The rationale for the NPF is broadly the same as the NSS. It is to coordinate spatially the development of sectoral areas (economy, transport, housing, energy, education, health) and guide and drive balanced regional development as the population continues to grow. If development is not managed and it is left to business is usual to deliver shared national goals, then Dublin will continue to expand, the regional cities will have modest growth, and smaller towns and rural areas will stagnate or decline, the document argues. Instead, the document argues that there needs to be:
- a coordinated, strategic approach with a twenty year time horizon;
- this approach needs to be backed by government across departments/agencies;
- be aligned with public/private investment, including capital spend;
- a focus on health and well-being, the environment, North-South relations, as well as economic and property development;
- a recognition that it is a strategy, not a wish list and that it will involve making hard choices;
- address all parts of Ireland, avoid the perception of ‘winners’ and ‘losers’, but avoid unrealistically seeking to treat all parts of the Country in the same way;
- include a particular focus on implementation and evaluation, with capacity for review.
The proposed approach to organize and operationalize the NPF through the regional assemblies and in alignment with regional spatial economic strategies that are presently being prepared. Rather than towns competing within a region, they should cooperate and work together as clusters. And there should be stronger urban-rural interdependence, with large and small towns supporting rural communities. Nonetheless, it is argued that there is a need for concentrated development of the five principal cities – Dublin, Cork, Galway, Limerick and Waterford – and the towns around them, to create strong growth polls for business and to realise agglomeration effects and to create scales of economy/critical mass for service and infrastructure delivery. Unlike other countries with a similar sized population – Scotland, Denmark, Finland, New Zealand – Ireland has a weak city structure with just five cities with a population above 50,000 (and only two above 100,000), that limits the ability to create balanced growth. More modest growth will be sought in regional towns. While growth would be welcome in rural areas, the priority is to stop further decline and to create resilience, sustainability and to improve quality of life.
There are a couple of big challenges in preparing the full NPF and getting it put on a statutory basis. The first is the seeming paradox between ‘making hard choices’ and ‘addressing all parts of Ireland and avoiding the perception of winners and losers’. The plan needs to make strategic decisions and prioritize areas for development and investment while also persuading everybody that those decisions are for the ‘national/regional good’ and that there is something there for them. Given the legacy of the NSS, the localist/clientelist nature of Irish politics, and the siloed nature of government depts/agencies, that will be a challenge. Second, and related, is given that the proposers are a minority government, the process of getting political support may involve a watering down of the plans aims, or the plan being tweaked in a way that undermines the plan’s logic to curry favour or ensure votes. Third, in preparing the plan, it needs to be made clear how it will be implemented in practice, how it will be resourced, and how its progress will be tracked and steered back onto course if it falters, to persuade people to have faith that this isn’t a NSS v.2, but a strategic plan that will actually work in practice.
As someone who is in favour of a planned and coordinated approach – through a guiding framework, not a heavy-handed roadmap – the publication of the consultation documents for the NPF is a welcome first step. The next step is to develop a full plan that can achieve political and public buy-in. Part of the process to try and ensure this is, on the one hand, to produce a detailed evidence-base and various scenarios, and on the other to invite submissions as part of a consultative phase.
To make a submission about the proposed NPF go to the website and follow the instructions provided; or email@example.com; or write to:
The deadline for receipt of all submissions is 12 noon on Thursday 16th March 2017.
For additional information see the Ireland 2040 website.