Caroline Creamer, Linda McElduff, Gavan Rafferty – Strengthening cross-border spatial planning

Strategic spatial planning has played a pivotal role in shaping sustainable development across the island of Ireland over recent decades. However, new economic, environmental and political challenges have transformed the context in which planning operates.

New ICLRD research, commissioned by the Royal Town Planning Institute (RTPI), examining the evolution of cross-border spatial planning concludes that while strong foundations for collaboration exist, growing policy divergence and outdated strategic frameworks now threaten long-term alignment.

The research is co-authored by Dr Gavan Rafferty and Dr Linda McElduff (Ulster University) and Caroline Creamer (Maynooth University).

The findings highlight an urgent need to renew strategic co-operation and revitalise planning frameworks to ensure both jurisdictions can respond effectively to shared challenges.

The study traces the development of strategic spatial planning from the publication of Northern Ireland’s Regional Development Strategy (RDS) in 2001 and the Republic of Ireland’s National Spatial Strategy (NSS) in 2002.

Although prepared independently and under different legislative systems, both strategies reflected common European planning principles, particularly those promoted through the European Spatial Development Perspective (ESDP).

A central focus of the research is the value and implementation of the “Framework for Co-operation: Spatial Strategies of Northern Ireland and the Republic of Ireland”, jointly published in 2013. Developed as a non-statutory agreement, the Framework sought to strengthen collaboration across four priority areas: competitiveness, place-making, environmental quality and shared spatial analysis. Rather than creating new strategic planning powers, it provided a flexible mechanism to encourage co-operation between both jurisdictions.

More than a decade later, the research finds that the Framework remains widely respected but is no longer being used to its full potential. Many practitioners, particularly newer professionals, have limited awareness of its existence.

Nevertheless, interviewees and survey respondents consistently described it as an important reference point that legitimises cross-border collaboration and provides an enduring symbol of shared strategic ambition. Its value therefore remains significant, even if its practical influence has diminished over time.

Across all levels of government, support for cross-border collaboration remains exceptionally strong. Stakeholders identified numerous benefits, including stronger policy learning, more effective environmental management, improved infrastructure planning, enhanced economic competitiveness and greater social and community cohesion.

Collaboration has proved particularly successful at local authority level, where partnerships have delivered tangible outcomes through initiatives such as the North West Strategic Growth Partnership and the Dublin Belfast Economic Corridor.

Despite this goodwill, important barriers continue to limit more effective collaboration. Participants highlighted differences in legislative and policy frameworks, incompatible datasets, funding constraints, limited institutional capacity and varying levels of understanding of planning systems across both jurisdictions.

Political sensitivities also continue to influence the pace of co-operation. Brexit has undoubtedly introduced additional administrative complexity, but many stakeholders also believe it has strengthened the commitment to maintaining practical collaboration wherever possible.

The research identifies five priorities to strengthen strategic spatial planning and improve alignment across the island of Ireland:

1. Review Northern Ireland’s RDS
   An updated RDS is needed to reflect contemporary challenges including climate change, energy transition, housing pressures and demographic change, while improving alignment with the Republic of Ireland’s revised National Planning Framework.
2. Revitalise the Framework for Co-operation
   The Framework remains an important foundation for co-operation but requires renewal. A refreshed framework should have stronger political support, clearer priorities, improved visibility and a greater focus on implementation.
3. Improve shared data and performance monitoring
   Greater harmonisation of data and joint monitoring systems is essential to support evidence-based decision-making, particularly on transport, housing, climate action, biodiversity and infrastructure planning.
4. Strengthen resources and professional capacity
   Investment in skills, training and cross-border professional networks is needed to build the capacity required for effective collaboration, including stronger communication, negotiation and relationship-building skills.
5. Move beyond co-operation towards deeper collaboration
   Shared challenges such as climate change, biodiversity loss, housing and energy transition require a more ambitious approach. The research highlights the potential benefits of deeper collaboration, including exploring the future role of an all-island spatial strategy.

These recommendations provide a roadmap for moving cross-border spatial planning from shared ambition towards coordinated action, supporting more sustainable, resilient and connected communities across the island of Ireland.