A summary of the research

Why this research matters

Border regions face distinct planning challenges that differ from domestic contexts because social, economic, and spatial processes do not stop at political or administrative boundaries. Such challenges require strategic and local efforts to communicate and co-operate, involving informational (e.g. sharing policies), reputational (e.g. authentic engagement) and relational (e.g. strong ties) approaches to build understanding, trust and support.

On the island of Ireland, the Framework for Co-operation – Spatial Strategies of Northern Ireland and the Republic of Ireland (2013) was significant in providing the cross jurisdictional conditions to strengthen structures, build trust, and create a more coherent cross-border policy environment. However, since 2013, there has only been one publication critically examining its value and influence on cross-border spatial planning.

This research provides the most comprehensive assessment to date of cross-border spatial planning practice and strategic alignment between Northern Ireland and the Republic of Ireland. It examines the evolution, alignment, and future direction of strategic spatial planning on the island of Ireland and evaluates the role and continued relevance of the Framework for Co-operation.

Evolution, alignment and divergence of spatial planning policy

Key findings on the degree of policy alignment and divergence:

• Cross-border co-operation is widely valued and occurring but unevenly distributed.
• Greater symmetry has emerged, yet structural and institutional barriers remain.
• ‘Soft spaces’ are necessary for facilitating spatial public diplomacy for addressing bordering effects.
• Alignment between the RDS 2035 and the revised NPF is often assumed, without assessing differences in governance, planning systems, political context, and funding cycles.
• Contextual and policy divergence is increasingly evident and is at risk of growing.

Over the past 25 years, strategic spatial planning has become an increasingly important mechanism for guiding sustainable development across the island. Northern Ireland’s Regional Development Strategy 2025 (RDS, 2001) and the Republic of Ireland’s National Spatial Strategy 2002-2020 (NSS, 2002) marked the first formal expressions of spatial planning at whole-jurisdiction scale. Both were strongly influenced by the European Spatial Development Perspective (ESDP) and so shared many conceptual foundations. The strategies formed the basis for a more co-ordinated approach to infrastructure investment, environmental management, and urban–rural development across the island.

Political instability, economic shocks, institutional restructuring, and Brexit have transformed the policy landscape since the Framework’s inception in 2013. The Republic of Ireland replaced the NSS with a more robust, legislatively supported National Planning Framework (NPF) in 2018, revised again in 2025. Northern Ireland continues to rely on the RDS 2035, updated in 2012, and now over a decade old. This temporal gap has created increasing risk of strategic divergence.

This report conducts the first detailed comparison of the RDS 2035 (2012) and the revised NPF (2025) through policy analysis, a literature review, interviews with senior planners and policymakers, an online questionnaire, and sector-wide engagement through the RTPI Northern Ireland Annual Planning Conference 2025. It focuses on three key policy areas:

1. Transport,
2. Health, well-being and quality of life, and
3. Economic development.

Stakeholders perceive “some alignment” across the two spatial strategies but acknowledge that real alignment is neither well understood nor systematically monitored. The revised NPF has advanced more contemporary, climate‑aligned and well‑being‑focused approaches in the three key policy areas examined, while Northern Ireland’s RDS 2035 reflects a more traditional, infrastructure‑led paradigm.

The Framework for Cooperation

Key findings on the Framework for Cooperation:

• The Framework is a tool to initiate/intensify cross-border co-operation.
• The Framework’s formulation was perceived as an exercise in ‘policy articulation’ rather than directing ‘planned action’.
• The Framework is still relevant but needs to be refreshed.
• Advancing an integrated approach to spatial planning on the island of Ireland is appreciated, but there are nuances.

The two jurisdictions jointly published the Framework for Cooperation in 2013 to improve coordination, reduce planning inefficiencies, and support collaboration in four priority areas:

1. Enhancing competitiveness,
2. Competitive places,
3. Environmental quality, and
4. Spatial analysis.

The Framework was intentionally non-statutory to allow flexibility and place-sensitive application; however, this could have contributed to the fact it has not become a consistently used policy instrument. Planning professionals, especially those early in their career, are generally not aware of the Framework for Co-operation, although they would still support the collaborative approach and rationale for co-operation that the Framework espouses. 

Future directions for cross-border spatial planning

Research participants identified some key benefits of cross-border collaboration:

• Enhanced policy learning and transfer.
• Strengthened community and social cohesion.
• Shared environmental management.
• Improved competitiveness and innovation, and
• More efficient infrastructure planning, particularly transport, energy, and green/blue infrastructure.

Local authorities emerged as the most active and effective scale for collaboration through this study, exemplified by the North West Strategic Growth Partnership (NWSGP) and Dublin–Belfast Economic Corridor (DBEC) partnerships.

However, significant structural and political barriers to collaboration persist, including different legislative and policy frameworks, data incompatibility, funding and resource limitations, political sensitivities, and limited cross-jurisdictional understanding amongst professionals. Brexit has intensified administrative complexity and uncertainty, but it has also motivated renewed commitment to maintain co-operation where possible.

The report identifies five key recommendations for the future direction of cross-border spatial planning:

1. Review Northern Ireland’s Regional Development Strategy
2. Revisit and revive the Framework for Co-operation
3. Improve data reconciliation and shared performance monitoring
4. Strengthen resourcing and professional development training
5. Move beyond co-operation to collaboration