Ms Anne Marie O'Connor:

I thank the Chairman and members for the invitation to speak. I extend apologies from Mr. Niall Cussen who was unable to attend this meeting. For the committee's information, the annual report of the Office of the Planning Regulator, OPR, was noted at Cabinet last week and is being laid before the Oireachtas. It will be available on our website shortly.

Given the time constraints, I will make a few short introductory remarks and will be happy to take any questions from the committee. It was heartwarming to hear that there were a lot of similarities between our presentation and that of the National Transport Authority, NTA. It is great to have the agencies and public bodies singing from the same hymn sheet when it comes to meeting climate targets.

The OPR strongly welcomes the review of the NPF and the opportunity to build on its many successes, built on our learnings from the practical implementation of the framework. Since the publication of the NPF, the interaction between planning and climate policy considerations has deepened. This extends far beyond renewables, district heating, public transport, walking and cycling infrastructure and flood avoidance. Crucially, it extends to the need for a compact pattern of growth that reduces land take, car dependency and the need for energy-intensive infrastructure. Without getting all of these things right, we will not be able to meet our climate targets.

The OPR has specific statutory functions under the Planning and Development Act to oversee the implementation of the NPF by local authorities in their statutory plan-making functions, with a particular emphasis on the climate aspects. This has not been without its challenges and we welcome the greater clarity provided in the draft Planning and Development (Amendment) Bill regarding our ability to ensure that local and regional plans are consistent with the NPF.

Since its establishment, the OPR has made 16 recommendations to the Minister to issue a direction, all of which in whole or in part related to climate action, including renewable energy, compact growth, flooding and sustainable transport and mobility. These issues are often contentious, most obviously in relation to wind energy, but we have also seen litigation by landowners in regard to limitations on the zoning of land at risk of flooding and in locations which do not support compact growth or more sustainable transport options.

The importance of clear policy frameworks to deliver on sustainable development objectives and a move towards rule-based systems are evident. While the updated census data are timely to ensure that housing and population targets are appropriate, we consider that the overall strategy in the NPF for more balanced regional growth targeting our main cities and towns is well aligned with our climate targets. The emphasis on renewing and consolidating existing settlements rather than continual urban sprawl into the countryside is also crucial.

There are, however, areas that the NPF review should focus on to better deliver on climate targets. First, the framework relating to compact growth and land use change needs significant refinement and development to address the definition of compact growth, which is currently too expansive; review targets so that they are better aligned with achieving the 2030 targets for greenhouse gas emissions; and include separate targets for land reuse and intensification such as brownfield development. As difficult as it is, the review of the NPF must also address the current reality that more than a fifth of all new homes are made up of individual houses in areas dependent on the private car. This makes achieving our transport targets very challenging.

Looking more broadly at the targets for transport, there have been significant policy developments arising from the climate action plans. It is important that the NPF review provides a strong and renewed policy framework consistent with these developments, with particular emphasis on increased walking and cycle networks in strategic locations. Fundamentally, compact growth is also crucial to meeting transport targets – the further homes are from schools, shops, facilities and amenities, the less chance people will walk or cycle. The framework for the spatial location of employment lands should also be strengthened in terms of alignment with the climate action plan transport targets. Proximity to high-quality public transport is fundamental in this respect.

As regards renewable energy, a clear plan-led and co-ordinated approach is needed as to how local authorities are expected to contribute to meeting the climate action plan target of 80% renewable electricity at a local level. The renewable electricity spatial policy framework currently being prepared by the Department with responsibility for energy should, in particular, be supported in the NPF. Similarly, while the NPF acknowledges the role of district heating, a clearer policy framework would be beneficial. District heating can only happen at scale if it is planned for in development plans.

Making policy is just the first step. It is in the implementation where real progress will be made. In this respect, the review of the NPF should deliver clear identification of the key national planning objectives, NPOs, aligned to climate targets; NPOs that facilitate clear, consistent implementation in certain key areas, providing a clearer set of “rules” for the OPR as “referee” in a more evidence-based, plan-led planning process; better structures and ICT systems for spatial data-gathering to monitor implementation of those NPOs; and a clear governance structure to reflect the fact that NPF implementation requires a broad coalition of actors working together in relation to NPOs relevant to climate targets.

In summary, having a national planning framework that delivers a plan-led and climate-centred approach is crucial if we are to step away from the business-as-usual approach of following developer- and market-led pressures that will exacerbate sprawl, deepen congestion and environmental issues, and lock in high-energy needs and carbon intensity. With some careful revisions, the NPF will be a strong agent for meeting our climate targets. I thank the committee.