# Moving Together: A Collaborative Approach to Systems Change in Transport 2026–2030 Source: https://assets.gov.ie/static/documents/543adefe/The_Moving_Together_Strategy.pdf ## Front Matter ### Front Matter *Pages 1–5* ### Moving Together A Collaborative Approach to Systems Change in Transport 2026–2030 ![Figure from page 1](assets/p001-f01.webp) *Figure from page 1* | | | | | | | | | | --- | --- | --- | --- | --- | --- | --- | --- | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | | ![Figure from page 2](assets/p002-f01.webp) *Figure from page 2* #### Contents Minister’s Foreword 6 Acronyms 7 Executive Summary 13 1. Introduction 16 Ambition 17 Emissions Trajectory 18 Positive Trends 18 Purpose of Strategy 19 Strategy Structure 21 Vision 21 Objectives 22 Status of the Strategy 23 Process to Develop the Strategy 23 Systems Focus 24 Demand Generation Focus 24 Just Transition Focus 24 Guiding Principles in Developing and Implementing the Strategy 25 Just Transition 25 Accessibility and Inclusion 25 Rural Recognition 25 Economic and Financial Sustainability 26 Oversight and Responsibility 26 2. Understanding the Challenge 27 3. International and European Policy Drivers 33 WHO – Air Quality and Health Impacts 34 UN Sustainable Development Goals 35 European Policy on Energy 35 Energy Efficiency Directive 35 Renewable Energy – Amended Renewable Energy Directive 35 Energy Taxation Directive (ETD) 35 4. National Climate and Transport Policy Drivers 36 Climate Action Plan 37 Corrective Action Modelling Project National Sustainable Mobility Policy Metropolitan Area Transport Strategies Transport Orientated Development GDA Strategy and Demand Management Scheme 39 Electrification and Renewable Energy Policy 39 Energy Efficiency and Security 40 Freight and Haulage Strategy 40 National Roads 2040 42 National Investment Framework for Transport in Ireland 42 Road Safety Policy 43 Speed Limits Review 44 5. Leveraging Other Policies and Programmes 45 National Planning Framework 46 The National Development Plan 47 Local Authority Climate Action 47 Urban Renewal and Rural Development 48 Parking Measures 50 Fiscal Policies 51 Educational Sector 53 Business and Enterprise 55 Tourism 57 Sports Sector 58 Accessibility and Inclusion 58 Health-Related Policies 60 6. Communications and Engagement 62 7. Legislative Powers and Levers 66 8. Research and Policy Analysis 68 International Transport Forum (ITF) Decarbonising Transport Initiative 69 The Five Cities Demand Management Study 69 OECD Report 70 Modelling for CAP 71 Commission on Taxation and Welfare Report 73 Better Road User Charging Evaluation 73 Economic Cost of Congestion in the GDA 74 Tax Strategy Group 74 Travel Behaviour and Public Insights 75 National Householder Travel Survey Public Attitudes to Demand Management Measures 9. Six Key Areas of Focus Integrated Land-Use and Transport Planning Optimal Use of Space 84 Fiscal Measures 92 Generators of Demand (Education, Sport, Public Sector and Tourism) 102 Generators of Demand (Retail, Industry, and Freight) 111 Captive Car Users 118 10. Recommendations 123 11. Delivery and Implementation 128 Cost Implications of Delivering this Strategy 129 Value for Money 130 EU Taxonomy 130 Financing Options 131 12. Evaluation and Review 132 Air Quality 134 NTA National Household Travel Survey 135 Economic Cost of Congestion 135 Percentage of Urban Road Space Designated to Vehicles 135 Noise Harmful Effects Assessments 136 Road Traffic Volumes 136 Distance from Public Transport Services 136 Public Transport Accessibility Levels 137 Affordability Indicators 137 Safety Indicators 137 Appendix 1 Case Studies 139 National Case Studies 140 International Case Studies 146 Appendix 2 Ensuring a Just Transition through Investment 153 Appendix 3 Implementation Plan 160 ## Minister’s Foreword ### Minister’s Foreword *Pages 6–6* Minister’s Foreword An efficient transport system plays a critical role in economic growth, environmental sustainability, and overall quality of life. Our Programme for Government (PfG) commits to implementing actions that optimise mobility, reduce congestion, and ensure that transportation works seamlessly for everyone. This Strategy sets out a clear vision and outlines the key steps that we will need to take together to deliver on those commitments. The Strategy represents a critical component of the decarbonising pathway for transport, however its benefits are much wider than climate. Moving Together is about supporting the development of better and more liveable towns and cities, cleaner air, efficient public transport, safer spaces for walking and cycling and an end to the inefficiency and pollution of car-clogged streets. It aligns closely with the extensive range of Government investment and supports already in place or planned for public transport, walking, cycling, and electric vehicles, and it focuses on gradual, and meaningful shifts in travel behaviour as people’s travel options are expanding. Like many countries over the past four decades, Ireland embraced motorised transport in line with a growing economy. At the end of 2025, there were 3.2 million licensed vehicles in Ireland – an increase of over 2 million when compared with 1985. Of that increase, 1.8 million were private cars. Alongside this was a misalignment between population growth, economic activity, land-use patterns, and infrastructure capacity, which has had consequential impacts across all modes. While the growing presence of vehicles in our shared environment is placing immense pressure on our natural spaces, the effect on well-being is also widely accepted. Long hours spent in traffic leads to a loss of valuable time with families and friends, but it also leads to reduced productivity and cost impacts for business. Congestion also disadvantages those relying on public transport and creates further obstacles for walking and cycling. The current Programme for Government is ambitious for transport, and for delivering transformative projects. The recent NDP Review has allocated €24bn to the transport sector over the next 5 years. However, the success of planned initiatives cannot be fully realised while current levels of congestion remain. Heavy traffic makes public transport less reliable, often discouraging people from using it, and makes the environment for vulnerable road users, such as pedestrians and cyclists, less safe, again, too often, discouraging people from using active travel, particularly for shorter journeys. To address these issues, this new Strategy seeks to prioritise the needs of people and align those needs with best practice in urban and rural transport planning. It also looks to support the freight and haulage industry, given the importance of efficiency to this sector. The Strategy is a framework for working collaboratively - and ‘moving’ together – across government, the economy and communities – to co-create the solutions needed for a more balanced, and equitable transport system. The Strategy is high level in nature and touches on a vast array of Government policies and programmes with a suite of 32 recommendations. It also provides for the preparation of guidance to local authorities and local council representatives to develop plans for their own areas that suit their communities’ needs best. The Strategy has the potential to unlock transformative change in how we move around our country, our towns and our cities. Its success will be measured against its objectives and will be monitored and evaluated from a ‘wellbeing’ and Just Transition perspective. We recognise that for many people, the car may be the only viable transport choice - particularly for those who are living in rural or isolated communities, or for those with mobility needs. Equally, all sectors of the economy and society rely heavily on the delivery of goods and services by road. The Strategy’s aim is to make the system better for all road users, private and commercial, and to explore innovative solutions for making travel by any means more efficient, sustainable, and pleasant for everyone. Darragh O’Brien Minister for Transport ## Acronyms ### Acronyms *Pages 7–12* Acronyms | Acronym | Meaning | | --- | --- | | | | | ABTAs | Area Based Transport Assessments | | AFIR | Alternative Fuels Infrastructure Regulation | | AFHDV | Alternative Fuels Heavy Duty Vehicles | | AISRR | All-Island Strategic Rail Review | | ANPR | Automatic nameplate recognition | | AT | Active Travel | | BÉ | Bus Éireann | | BEV | Battery Electric Vehicle | | BIK | Benefit-in-Kind | | BRUCE | Better Road User Charging Evaluation | | CAF | Common Appraisal Framework for Transport Projects and Programmes | | CAFE | Clean Air For Europe | | CAP | Climate Action Plan | | CAROs | Climate Action Regional Offices | | CAS | Clean Air Strategy | | CCAC | Climate Change Advisory Council | | CCMA | City and County Management Association | | Acronym | Meaning | | --- | --- | | | | | CDS | Curb Data Specifications | | CMR | Coastal Mobility Route | | COAD | Chronic Obstructive Airways Disease | | COPD | Chronic obstructive pulmonary disease | | COTW | Commission on Taxation and Welfare | | CSO | Central Statistics Office | | CSRD | Corporate Sustainability Reporting Directive | | DART | Dublin Area Rapid Transport | | DCEE | The Department of Climate, Energy and the Environment | | DETE | Department of Enterprise, Tourism and Employment | | DHLGH | Department of Housing, Local Government, and Heritage | | DLRCC | Dun Laoghaire-Rathdown County Council | | DMURS | Design Manual for Urban Roads and Streets | | DEY | Department of Education and Youth | | DoT | Department of Transport | | DPER | Department of Public Expenditure, NDP Delivery and Reform | | DPRO | Disability Persons Representative Organisation | | Acronym | Meaning | | --- | --- | | | | | DCEDIY | Department of Children, Equality, Disability, Integration and Youth | | DRS | Diesel Rebate Scheme | | DSGBV | Domestic, Sexual and Gender-Based Violence | | DTA | Dublin Transport Authority | | DZ | Decarbonisation Zone | | EMRA | Eastern and Midlands Regional Assembly | | EPA | Environmental Protection Agency | | ESD | Education for Sustainable Development | | ESR | Efof rt Sharing Regulation | | ETD | Energy Taxation Directive | | EU | European Union | | EV | Electric Vehicle | | FDI | Foreign Direct Investment | | FED | Fuel Excise Duty | | FTAI | Freight Transport Association Ireland | | GDA | Greater Dublin Area | | GDP | Gross Domestic Product | | GHG | Greenhouse Gas | | GPP | Green Public Procurement | | HDVs | Heavy Duty Vehicles | | Acronym | Meaning | | --- | --- | | | | | HGVs | Heavy Goods Vehicles | | HSE | Health Service Executive | | IBEC | Irish Business and Employers Confederation | | ICE | Internal Combustion Engine | | ICT | Information and communications technology | | IRHA | Irish Road Haulage Association | | IPCC | Intergovernmental Panel on Climate Change | | ITF | International Transport Forum | | ITS | Intelligent Transport Systems | | KM | Kilometre | | LAs | Local Authorities | | LATPs | Local Area Transport Plans | | LDVs | Light Duty Vehicles | | LEZ | Low Emission Vehicle | | LFS | Labour Force Survey | | LG | Leadership Group | | LiDAR | Light Detection and Ranging | | LPT | Local Property Tax | | LVS | Land Value Sharing | | MaaS | Mobility as a Service | | MATS | Metropolitan Area Transport Strategies | | Acronym | Meaning | | --- | --- | | | | | MT | Megatons | | NCDs | Non-Communicable Diseases | | NCSE | National Council for Special Education | | NCPC | National Competitiveness and Productivity Council’ | | NCT | National Car Testing | | NDCs | Nationally Determined Contributions | | NDFM | National Demand Forecasting Model | | NDP | National Development Plan | | NESC | National Economic and Social Council | | NECP | National Energy and Climate Plan | | NGOs | Non-Governmental Associations | | NGT | Next Generation Ticketing | | NHTS | National Household Travel Survey | | NIFTI | National Investment Framework for Transport in Ireland | | NLTP | National Land Transport Programme | | NO2 | Nitrogen Dioxide | | NOx | Nitrogen Oxides | | NPF | National Planning Framework | | Acronym | Meaning | | --- | --- | | | | | NPO | National Policy Objective | | NSO | National Strategic Outcomes | | NTA | National Transport Authority | | NTS | National Travel Survey | | NWRA | Northern and Western Regional Assembly | | NVDF | National Vehicle and Driver File | | NZ | New Zealand | | NZD | New Zealand Dollar | | NZTP | New Zealand Transport Program | | OECD | Organisation for Economic Cooperation and Development | | OPM | Open Mobility Foundation | | OPR | Office of Planning Regulator | | OPW | Office of Public Works | | PAX | Passengers | | PfG | Programme for Government | | PHEV | Plug-in Hybrid Electric Vehicle | | PI 2040 | Project Ireland 2040 | | PM | Fine Particulate Matter | | PPPs | Public Private Partnerships | | PSO | Public Service Obligation | | PTAL | Public Transport Accessibility Levels | | Acronym | Meaning | | --- | --- | | | | | RAs | Regional Assemblies | | RED | Renewable Energy Directive | | REPs | Regional Enterprise Plans | | RES-T’ | Renewable Energy Share- Transport | | RMS | Regional Modelling System | | RRDF | Rural Regeneration and Development Fund | | RSA | Road Safety Authority | | RSESs | Regional Spatial and Economic Strategies | | RUC | Road User Charging | | RZLT | Residential Zoned Land Tax | | SCSGs | Sustainable and Compact Settlement Guidelines | | SEAI | Sustainable Energy Authority of Ireland | | SDGs | Sustainable Development Goals | | SEN | Special Education Needs | | SMP | Sustainable Mobility Policy | | SRA | Southern Regional Assembly | | SRD | Sustainable Residential Development | | SRTS | Safe Routes to School Programme | | STS | School Transport Scheme | | Acronym | Meaning | | --- | --- | | | | | SuDS | Sustainable Urban Drainage | | SVT | Site Value Tax | | TAA | Transport and Accessibility Appraisal | | TAF | Transport Appraisal Framework | | TCF | Town Centre First | | TDM | Transport Demand Management | | TEN-T | Trans European Network – Transport | | TFI | Transport for Ireland | | TfL | Transport for London | | TII | Transport Infrastructure Ireland | | TIMES | The Integrated MARKAL- EFOM1 System | | TKM | Tonnes per Kilometre | | TOD | Transport-Oriented Development | | TROs | Town Regeneration Officers | | TSG | Tax Strategy Group | | TU | Technological University | | UDZs | Urban Development Zones | | UPS | United Postal Service | | UN | United Nations | | UNCRPD | United Nations Convention on The Rights of Persons with Disabilities | | Acronym | Meaning | | --- | --- | | | | | UNFCCC | UN Framework Convention on Climate Change | | URDF | Urban Regeneration Development Fund | | VAT | Value Added Tax | | VFEL | Vehicle Fuel-Efficiency Labelling | | VKT | Vehicle Kilometres Travelled | | VRT | Vehicle Regulation Tax | | WHO | World Health Organisation | | WPL | Workplace Parking Levy | | ZEHDV | Zero Emission Heavy Duty Vehicle | | ZEVI | Zero Emission Vehicles Ireland | | ZEV | Zero Emissions Vehicle | ![Figure from page 12](assets/p012-f01.webp) *Figure from page 12* ## Executive Summary ### Executive Summary *Pages 13–15* Executive Summary Moving Together – ‘A Collaborative Approach to Systems Change in Transport’ has been developed to make our transport system more efficient for everyone and to help alleviate the impacts of congestion on the economy, the environment and the health of our society. In line with commitments in the Programme for Government 2025, this Strategy is a call for collective action across Government and society not only to reduce carbon emissions from transport over the medium to long term but to help alleviate the more immediate issues of congestion, road collisions and air pollution. but the personal costs of congestion are just as concerning. As well as the air quality implications of congestion – for vehicle occupants and those in close proximity - and the negative health impacts due to stress and inactivity, time spent in traffic can also mean a displacement of time away from family and community life. In the revised NDP, the Government has committed to investing in a diverse range of transport options— public transport, active travel, roads, maritime, and aviation—to enhance connectivity across urban and rural areas, giving people more choice and supporting sustainable growth. Compounded by a historical misalignment between population growth, economic activity, land-use patterns, and infrastructure capacity, Ireland has become ever more reliant on private transport in recent decades. While our carbased system has served us reasonably well up to now, it is largely accepted that change is needed especially by those who routinely spend large parts of their life negotiating heavy traffic. In previous decades, space across the country was systematically reallocated to cars - through urban planning and as part of large-scale road building programmes. This was done to keep pace with a swell in vehicle numbers on our roads. For example, the number of licensed vehicles in Ireland increased by 2.3 million from 1985 to 2025. While goods vehicles increased by 465% over this period, private cars accounted for most of the growth, with an increase of 1.8 million vehicles2. The Strategy will unlock the full potential of this investment in sustainable mobility options by prioritising these modes. Essentially, it is about putting people, and their needs, at the centre of Ireland’s future transport system. While the impetus for this document arises from a commitment in the Climate Action Plan, and will support the Government’s pledge to take sustained action to tackle the climate crisis and to decarbonise the economy, the Strategy is also seeking to reinforce a shift to more sustainable modes of transport for better health, safety and wellbeing outcomes through network optimisation and associated reductions in congestion, air and noise pollution as above. Good infrastructure is vital, and high-quality roads will continue to be the life-blood of the transport network, but there are physical, environmental and societal trade-offs in supporting an everincreasing car-dependent system – with limits on the level of additional capacity that can be built. For this reason, a more efficient use of the existing system is needed – one that reduces the need for travel in the first instance by delivering significant system change, and by releasing the full potential of the Government’s investment – current and future - in active, shared and public transport infrastructure and services. The economic cost of congestion in the Greater Dublin Area was estimated to be €336m in 2022, rising to circa €1.5bn by 20401. An additional analysis of the regional cities - Cork, Galway, and Waterford - shows that congestion costs are projected to rise substantially in these cities over the same period. Without further intervention, the per capita economic impact could double or even triple in certain locations. Clearly, time lost from congestion has significant economic costs, 1 https://assets.gov.ie/static/documents/the-economic-cost-of-congestion-in-the-greater-dublin-area-2022-2040.pdf 2 https://data.cso.ie/table/EIIEEA25 In relation to climate targets, the 2022 Organisation for Economic Co-operation and Development (OECD) report ‘Redesigning Ireland’s Transport System for Net Zero’3 advised that Ireland is unlikely to achieve its ambitious climate goals without a systemic change in its transport system and substantially different patterns of travel behaviours than those observed today. By way of demonstration, the recent National Household Travel Survey 2024 (NHTS) reported that over 7 in 10 (71%) journeys in Ireland are made by car. particular, the Strategy notes the potential that new rail services and extra capacity within our existing services can provide and notes the need for ongoing investment in rail in order to deliver a fully efficient public transport system. The Strategy further acknowledges the need to continue supporting electrification and improving the charging infrastructure for electric vehicles across Ireland, in particular noting that people in rural areas are more dependent on cars and, on average, use cars more than in urban areas. This will continue to be the case for many, and the Strategy reflects this reality. The OECD called on the need for policies with a high transformative potential such as road space reallocation, the mainstreaming of on-demand shared services and greater communication efforts to address car-centric mindsets. It is intended that this Strategy will provide the guidance needed for public bodies, including local authorities and local council representatives, to develop bespoke plans for their own areas – plans that are co-created with local communities. The development of ‘Moving Together’ is a policy response to the recommendations of the OECD, and will provide an over-arching direction for achieving fair and equitable efficiencies in our transport system, guided by four key principles Just Transition; Accessibility and Inclusion; Rural Recognition; and Economic and Financial Sustainability. Reflecting the system-wide changes required to optimise the use of the transport network across all modes, this Strategy has been guided by substantial research, notably the work of the Five Cities Demand Management Study, insights from the 2022 OECD Report and the International Transport Forum4. Engagement has been central to its development also, involving stakeholders from government departments and agencies, local authorities, industry, academia, and NGOs. Key areas that were considered as part of the Strategy were Integrated Land Use and Transport Planning; Optimal Use of Space; Fiscal Measures; Generators of Demand (Movement of People); Generators of Demand (Movement of Goods) and Captive Car Users. The outcome from this engagement is reflected in Chapter 9 of the Strategy and the collective suite of recommendations, are represented in Chapter 10. This Strategy is not about eliminating the car as a mode of transport or curtailing travel and personal freedoms. It is about finding new approaches to making travel, by whatever means, more efficient and pleasant for everyone. In this way, the Strategy seeks to: ᴏ identify and leverage the potential of existing Government policies and programmes to impact travel demand; ᴏ identify and address any impediments to policy measures that reduce travel demand and/or increase transport system efficiencies; and The Strategy does not, however, contain a prescriptive set of top-down actions. This type of approach will not work. It is a strategic framework intended to provide the high-level direction required at a national level to achieve the objectives identified, referencing a wide range of options that can be selected at national, regional and local level, and supporting, guiding and enabling the appropriate authorities and entities, both in the public and private domain, to take ownership and shape their own actions in a coherent, evidence-based manner. ᴏ enable action at national, local and community level that will help deliver the objectives of the Strategy in a coherent and collaborative manner. It also recognises the importance of an efficient, comfortable and affordable public transport system, and emphasises the need to significantly improve the availability and reliable frequency of public transport in rural and urban areas. In 3 https://www.oecd.org/en/publications/redesigning-ireland-s-transport-for-net-zero_b798a4c1-en.html 4 https://www.itf-oecd.org/tcad The 32 recommendations in Chapter 10 are the product of a constructive, collaborative and concerted effort across a broad range of Government departments, members of the National Steering Group, the expert subgroups members of the public and a wide range of representative and civil society bodies to identify the type of interventions that can cumulatively make a lasting and positive impact on behaviour. This Strategy provides a framework for delivering the systemic change recommended by the OECD by signaling the need for that change, identifying all the policies and programmes that can contribute to that change and enabling those actors across the system, whether national, local, civil society or business, to collaborate and move together towards the vision of a future transport system that sustainably connects people and places, in a way that is efficient, accessible, safe, and healthy for all. It is vital to the credibility of the Strategy that its implementation is demonstrably fair and equitable. This has been the approach taken to developing the Strategy and it will be the approach taken to its implementation. ## Introduction ### Introduction *Pages 16–16* ![Figure from page 16](assets/p016-f01.webp) *Figure from page 16* ## 1. Introduction ### Ambition *Pages 17–17* Ambition For the transport sector, this translates to a cut of 50% in transport emissions (relative to 2018 levels) or 6 Mt CO2 equivalent by 2030. To achieve this target, Government is prioritising a large-scale transition to Electric Vehicles (EVs) through generous and targeted incentives, higher penetration levels of biofuels in the fuel mix through regulation and increased modal shift towards more sustainable journeys through unprecedented investment and improvements in active and public transport infrastructure and services. Effectively, these represent ‘supply’ side measures – supplying more sustainable alternatives such as walking, cycling and public transport as well as the use of EVs. The Programme for Government (PfG) 2025 commits to investing in a diverse range of transport options, with the aim of enhancing connectivity across urban and rural areas, giving people more choice and supporting sustainable growth which will also address congestion, improve air quality, reduce noise, and enhance the attractiveness and accessibility of cities, neighbourhoods and town centres. The new PfG also commits to identifying, researching and coordinating delivery of behavioural change initiatives to support modal shift and reduce congestion and improve travel options, focusing on wider societal benefits of the change. Aligned to this ambition are the Government’s climate goals, which were most recently restated through the Climate Action Plan 2025. However, supply side measures alone will not deliver the emissions abatement required for the transport sector as they do not address the projected increases in travel demand over the intervening years, linked to population and economic growth. This means that there is a gapto-target and more needs to be done. To fully address the environmental, economic and social costs of transport inefficiency and congestion, a balance must be struck between supply and demand-led measures. While the latter will be vital to bridging the ’gap-to-target’ and to addressing those wider social and economic issues, it is acknowledged that the effectiveness of such measures will remain largely dependent on the availability of supply-side alternatives. However, it is the Climate Action and Low-Carbon Development (Amendment) Act 2021 which sets out Ireland’s legally binding emissions reduction targets, along with a carbon budget programme and sectoral ceilings that are consistent with achieving a 51% reduction in emissions by 2030 and a net-zero position by 2050. The new Government has reaffirmed its commitment to achieving the targets set in the Climate Action Plan. ![Figure 1: Gap-to-Target](assets/p017-f01.webp) *Figure 1: Gap-to-Target* ### Positive Trends *Pages 18–18* In view of the sectoral emissions ceilings in place, a significant programme of work was undertaken to refresh, revalidate and recalibrate the decarbonisation pathway for transport. This was set out in CAP 2023 which identified that an additional basket of measures would be needed to bridge the above ‘gap’, estimated to be 2. MtCO2 equivalent (see Figure 1 Gap-To-Target). The reduction in transport emissions from 2023 to 2024 also suggests that emissions from the transport sector have peaked and demonstrates the positive impact of demand management and decarbonisation measures introduced in recent years with increases in the use of biofuels and electric vehicles being major factors behind the emissions decrease. A similar programme of work is underway again, given the latest Environmental Protection Agency (EPA) projections for transport. The Corrective Action Modelling Project, signalled in the Climate Action Plan 25 (CAP25), will consider all potential measures and identify what is feasible over the remaining period, taking account of just transition principles, in terms of bridging the gap to target. That said, in relation to Carbon Budget Period 1, the transport sector has emitted 46.28 MtCO2eq. (86%) in the first four years (2021-2024). It is probable that 2025 will be broadly on par with 2024 (11.65 MtCO2eq), and therefore any overshoot beyond ~7.7 MtCO2eq. 2025 would be deducted from the allowable ceiling for 2026-2030 of 37MtCO2eq. It is therefore not unreasonable to expect that the 2026-2030 budget may be reduced to 33MtCO2eq., or 6.6 MtCO2eq. per annum. This Strategy is intended to provide an overarching framework for the delivery of a range of potential behavioural change measures that can be deployed to manage transport demand and to bridge the above ‘gap’ in a fair and equitable manner. It will play a key role in contributing to specific CAP targets such as achieving a reduction of 20% in total vehicle kilometres by 2030. In line with the pledge in the Programme for Government to take sustained action to tackle the climate crisis and to decarbonise the economy, there remains an urgent need, therefore, to continue to tackle emissions and to avoid jeopardising the sector’s capacity to achieve its targets in future years. Further and sustained decoupling of the direct correlation between transport emissions and wider social and economic activity thus forms the fundamental challenge for the sector. Emissions Trajectory The achievement of the 50% reduction in transport emissions must be consistent with the Government’s carbon reduction programme, which includes a sectoral emissions ceiling of 54 MtCO2eq. for the first carbon budget period (2021-2025), and a further reduced sectoral emissions ceiling of 37 MtCO2eq. over the second carbon budget period (2026-2030). Positive Trends Positive changes are already happening in terms of travel behaviour. Passenger numbers across Public Service Obligation (PSO) services reached an all-time high in 2025 with almost 53 million additional journeys taken when compared to 2023. This is the third consecutive year of record-breaking figures, with patronage rates now exceeding pre-2019 levels. Based on the latest EPA inventory (1990 – 2024), in total, the domestic transport sector emitted 11.65MtCO2eq. in 2024, compared to 11.79MtCO2eq. in 2023 – a reduction of 1.2%. Transport emissions are now 5.4% below pre- COVID levels and 2024 marked the first post- COVID emissions decrease in the transport sector. As well as being unique internationally, this trend provides evidence that people respond to policies that are well considered and responsive to their needs. For example, under the National Sustainable Mobility Policy, the Connecting Ireland Rural Mobility Programme delivered new rural bus services in towns and villages at a rate of approximately one new service every week in 2022, with over 140,000 weekly vehicle kilometres added to the public transport network This was achieved against a backdrop of economic growth (as expressed by modified final domestic demand) of 2.7% during 2024 and population growth of 1.9% to April 2024, thus indicating an absolute decoupling of transport emissions from economic growth. ### Purpose of Strategy *Pages 19–20* Purpose of Strategy through new services, frequency enhancements and route extensions. Accordingly, the purpose of this Strategy is to encourage changes in travel behaviour with a view to reducing, where possible, unsustainable journeys and overall travel demand. However, it is not about eliminating the car as a mode of transport or curtailing people’s freedom to move around. Rather, it is about finding new approaches to making travel, by whatever means, more efficient and pleasant for everyone. The Strategy recognises that the car will remain the dominant mode of transport for many people for a variety of reasons including the lack of readily available sustainable alternatives for many necessary journeys. To give a better sense of the rate of uptake, 5.5 million passenger journeys were carried on services launched or enhanced under Connecting Ireland in 2023, a 90% increase on 2019 (65% on 2022). In 2025, TFI Local Link services recorded almost 7 million passenger journeys, a 19% increase compared with 2024. In 2022, to encourage and facilitate greater uptake of public transport services, a 20% average fare reduction on PSO services was introduced – the first such reduction in 75 years. Young adults aged 19 to 25 and students also benefitted from a further 50% reduction in fares with the introduction of the Young Adult and Student Card (YASC) Fares Scheme that same year on PSO and participating commercial services. Such fare reductions have remained in place, or have been extended in some cases e.g. free travel for children under 5 years has become available to those aged 8 and under from September 2025. The approach set out in the Strategy is threefold - 1) to identify and leverage the potential of existing Government policies and programmes to impact travel demand (by optimising their positive impacts and mitigating their potential to generate travel demand); 2) to identify and address impediments to policy measures that reduce travel demand and/or increase transport system efficiencies; and 3) to enable and empower initiatives to be taken at national, local and community level that will help deliver the objectives of the Strategy in a coherent and collaborative manner. While the recent CSO Census 2022 data5 has highlighted that levels of transport demand have increased, it shows encouraging changes in behavioural trends and an appetite to respond when the right type of investments and decisions are made at local and national level, most notably with a reversing of the trend in total share of children and young people being driven to school. The Strategy has been developed following extensive engagement with a wide range of interests and expertise. This collaborative approach to the design of policies and measures, from community to national level, will be vital to delivery. Experimentation and innovation will be critical to designing measures that deliver in a targeted manner, addressing local needs and circumstances, without creating unintended consequences for the broader transport and planning system. For this reason, many of the recommendations allow for the development of tailored solutions, in some cases requiring demonstration or pilot projects to test solutions which can then be scaled up. Irish drivers are also embracing the switch to electric, with EV sales exceeding profiled trajectory targets to 2025, with 204,000 EVs on our roads as of end 2025. EV uptake can also be expected to be bolstered by significant expansions in our public charging infrastructure in coming years, and through the ambition in the Programme for Government 2025 to accelerate the electrification of the fleet by examining ‘the current EV grant system and the introduction of additional incentives with a view to increasing take-up of EVs and replacing older, polluting vehicles’. This national approach to managing travel behaviour is also relatively unique from an international perspective. While there are examples of strategies at city or even at regional Government level, there is not an equivalent demand management strategy in place at a national level. Building on the momentum of the substantial investment that is being made in public transport services, and infrastructure for active travel and EVs, this Strategy seeks to support that investment through the integration of measures that will encourage greater system efficiency in the transport system to the benefit of all. 5 https://www.cso.ie/en/statistics/population/censusofpopulation2022/ As there is no precedent or model against which we can benchmark success, a vital aspect of the Strategy will be to ensure that the impacts of any interventions are appropriately measured and evaluated from the outset, ensuring that the range of expected benefits can be optimised and measures can be re-calibrated and adjusted as and when required. so, the Strategy can support a reduction in emissions, with significant co-benefits for Irish society in terms of road safety, air quality, health, and community life as well as assisting in objectives to revitalise urban centres in line with the Government’s Town Centre First policy. The new Programme for Government 2025 speaks to this through its commitment to ‘Work with local authorities and State agencies to develop decarbonised zones in our urban areas, focusing on pedestrianisation, cycling facilities, and use of renewable energy across all transport modes’. It is intended that the Strategy will provide an overarching framework for the development and delivery of measures that can effect a transformational change in travel behaviour. The choice of measures that implementing authorities and others can take to achieve the strategy’s objectives will depend on various factors including, for example, the timing and the extent to which sustainable alternatives are provided in particular locations. The Strategy will provide the evidence base to inform these choices and the guidance to facilitate their delivery in a coherent and equitable manner. At a government level, the National Transport Authority (NTA), Transport Infrastructure Ireland (TII) and the local authorities (LAs) are the primary implementing authorities for transport-related interventions - they will be required to determine the type of measures that are most suitable for implementation in any given geographical area or any element of the transport network in line with relevant statutory remits. The Strategy is based on a set of principles with a particular focus on a just transition. It will guide, support, and enable relevant authorities to implement demand-led measures at national, regional, and local level to achieve the desired emissions reduction target and well-being benefits. Some measures, such as policy, regulatory and fiscal measures, will require implementation at a national level by government departments. However, the Strategy is also widely applicable to many agencies and organisations beyond the transport and national government sphere, and this is reflected in the recommendations. The recommendations call for leadership across business, education, voluntary and community organisations to consider and make appropriate adjustments to the travel demand impacts of their activities. Travel behaviour is influenced by a range of factors, including individual and collective choices. The Strategy will enable and empower both organisations and individuals to support the making of more sustainable choices. The concept of ‘demand management’ can often have negative connotations in a transport context – it can be viewed as limiting or as an attempt to constrain mobility. This is not the case. In fact, demand management measures have enormous potential to support improvements in the transport system, as well as having wider societal and environmental benefits, unlocking congestion, re-prioritising road space towards active, shared and public transport modes and ultimately, making sustainable travel choices more attractive, reliable and cost effective to wider cohorts of the population. It is understood that by building greater efficiency into the transport system, greater value can be extracted from the significant investment being made by Government. A system-wide, societal change is required to reduce demand from transport – at individual, local and national level. The associated outcomes of such change will realise greater efficiency for the transport system, benefiting those who still need to travel by car, as well as the freight and logistics sector which are critical enablers for the Irish economy. With people’s needs to the fore, this Strategy seeks to bring equity and well-being into the use of public space generally. With a particular focus on road and street spaces, the Strategy will support conditions that are more amenable and attractive to daily life, active travel, shared mobility and public transport services. In doing The Strategy seeks to support a radical, yet equitable transformation in how we travel over the coming years, helping in the transition towards a fully decarbonised transport sector by 2050. By ‘moving together’, whether through small steps or systemic change, the cumulative impacts will be ### Vision *Pages 21–21* instrumental in delivering a sustainable transport system for Ireland, as described in the vision below. Given the importance of ensuring a just transition in the design of these measures, special attention has been given to captive car usage – those journeys where alternatives are not readily available or affordable. Strategy Structure The work of expert subgroups established across all of these areas as part of the development of the Strategy is summarised in Chapter 9. Their inputs, along with the wider research and evidence considered, form the basis for the Strategy’s recommendations – described in Chapter 10 - and further detailed in Appendix 3. The following sections set out the vision, and objectives of the Strategy, as well as the guiding principles which have been and will continue to be applied to its development and ongoing implementation (Chapter 1). It is vital to understand the scale of the challenge from a behavioural and systems perspective, but also the areas of real opportunity to effect that change (Chapter 2). A strong representative oversight mechanism will be critical to the delivery of the Strategy given the system-wide changes and multiplicity of stakeholders involved. Recognising the wide range of benefits that can also be achieved through this Strategy, a broad range of key performance indicators will be used to monitor success, leveraging in particular the work by the Department of An Taoiseach and the OECD on developing a well-being framework6 and the 2022 report by the OECD on Redesigning Irelands Transport for Net Zero. The final chapters set out how the Strategy will be monitored and evaluated on an on-going basis – a critical component to ensure it remains responsive to the challenges that will inevitably arise. The Strategy has the potential to serve a broad range of Government policy objectives and international obligations in relation to climate, energy efficiency, health and well-being, air quality and road safety (Chapters 3 and 4). It will also seek to leverage and/or re-enforce aspects of many existing policies and programmes to serve the objectives of this strategy. These policies and programmes – and their relevance to this Strategy - are described in Chapter 5. Communications and public engagement will be critical to the effective delivery of the strategy (Chapter 6) along with the necessary legislative levers to enable the implementation of potential new measures (Chapter 7). Vision The development of the Strategy has been informed by extensive research and analysis of a wide range of case studies both nationally and internationally – a survey of the relevant research and case studies are highlighted in Chapters 8 and Appendix 1. The National Sustainable Mobility Policy (SMP), which was published in 2022, seeks ‘to connect people and places with sustainable mobility that is safe, green, accessible and efficient’ as part of its vision for ‘sustainable mobility in Ireland in 2030’. Similarly, this Strategy emulates and aligns itself to that vision, by seeking to sustainably connect people and places, with a transport system that is efficient, accessible, safe, and healthy for all. Informed by research and evidence from national and international experience, the Strategy focuses on key areas where policy interventions will be most impactful such as integrated land-use and transport planning; optimal use of space; and fiscal measures, with a particular focus on main generators of travel demand both in terms of people and freight. 6 https://www.oecd.org/stories/well-being-knowledge-exchange-platform/practices/the-irish-well-being-framework-a606aa70/ ### Objectives *Pages 22–22* Objectives our towns and promoting sustainable transport and creating attractive places where people can live and work. This Strategy will look to reinforce the aims of these policies by examining how we can make better use of space in our town and cities streets to create liveable centres that are destinations rather than congested thoroughfares. By developing homes that are closer to workplaces, services and amenities, people have less need for travelling in an unsustainable way and more time for spending with family and friends. The objectives for the Strategy have been developed to capture the broad potential benefits that can be achieved, extending well beyond carbon emission reductions. They are set out below: To support the health, safety and wellbeing of people, and minimise the social, and environmental costs of transport and car dependency including those related to congestion, air and noise pollution. To support economic and financial sustainability in the just transition to net zero. The Strategy will also play a significant role in helping to achieving health, safety and wellbeing objectives, particularly in the context of improving urban air quality and the ambition set out in Clean Air Strategy. Irish cities are some of the most heavily congested in Europe. Recent studies by TomTom and INRIX ranked Dublin the third and 11th most congested city in the world respectively, while Cork was ranked 42nd on TomTom and Galway was ranked 71st according to the INRIX Global Traffic Scorecard. In addition to increased emissions, congestion means lost time, more stress, and increased costs for people and business as well as greater noise and air pollution with significant impacts on health and personal well-being. The transition to net zero must be managed in a way that is fiscally and economically sustainable, both for the citizen and the State – having regard to the Just Transition Framework. This Strategy has been developed with fairness and equity as a core principle and, being mindful of this, the Strategy encourages the implementation of costeffective measures and the exploration of nontraditional and innovative financing options, that are less onerous on the taxpayer and offer more value for money to the State. To contribute to the national target of halving transport emissions, through network optimisation and reduced kilometres travelled. To improve the efficiency of the existing transport system, by reducing demand for less sustainable journeys, by people and by freight. This Strategy, combined with the SMP, will be a key lever in Ireland’s effort to meet climate targets for transport. The Climate Action Plan established indicators of progress in this respect including a 20% reduction in total vehicle kilometres travelled by 2030 compared with 2018. Other indicators over the same period include increases in daily active travel journeys (50%) and daily public transport journeys (130%). Along with supports to assist in the transition to more sustainable journeys as provided for in the SMP, this Strategy provides the enabling framework for relevant authorities to implement any complementary demand management measures that may be required to contribute to the required reduction in vehicles kilometres travelled – an important target in the effort to halve transport emissions in the sector by 2030 in line with the Government’s Climate Action Plan and to reduce harmful emissions from transport as part of the Clean Air Strategy (2023). By reducing demand for less sustainable journeys, considerable societal benefits can be realised for society. The Strategy will provide a framework for improving the efficiency of the existing transport system, by encouraging the implementation of measures across all sectors in an effort to reduce transport demand. With little scope to build additional capacity within the transport system, particularly the road network, a projected increase in population over the coming decade combined with a growing economy means further pressure on the transport system with more congestion, longer journey times and greater associated social, environmental, and economic costs. To encourage compact, mixed use and transport led development, reinforcing the role of the city, town and village centres as attractive, walkable, accessible destinations. Government policy set out in the Revised National Planning Framework, and further developed through Town Centre First, highlight the importance of compact growth in reinvigorating ### Process to Develop the Strategy *Pages 23–23* Metrics to determine the achievement of these objectives are set out in Chapter 12 Evaluation and Review. Consideration has been given to the likely impacts of the Strategy on European sites, alone or in combination with any other plans, programmes, and projects etc. including the need for a Stage Two SEA and AA (including the preparation of a Natura Impact Statement). Status of the Strategy The Strategy provides recommendations and guidance for further consideration that allow for the integration of demand management into decision making across Government and society. Process to Develop the Strategy The key policies underpinning the development of this Strategy are the SMP (2022) and the Climate Action Plan 2023. The SMP committed to developing an approach to traffic demand management, taking account of the recommendations of the Five Cities Demand Management Study, while the Climate Action Plan 2023 committed to developing this Strategy. The Strategy does not provide consent or establish a framework for granting consent and will not be binding on any decisions relating to the granting of consent. The Strategy is situated alongside statutory documents that form the framework for future development consent of projects and are subject to requirements relating to environmental assessment/screening for environmental assessment, as appropriate. At the outset, reflecting the system-wide changes required to deliver an effective strategy, the Department of Transport undertook an initial engagement with stakeholders on demand management at the department’s National Sustainable Mobility Stakeholder Forum in September 2023 and the National Climate Stakeholder Forum led by the Department of Energy, Climate and Communications (DECC) in May 2023. In order to be realised, transport related plans and projects (in a similar way to other plans and projects from any other sector) will have to comply, as relevant, with various legislation, policies, plans and programmes (including requirements for lower-tier Strategic Flood Risk Assessment, Strategic Environmental Assessment, Appropriate Assessment and Environmental Impact Assessment and other licensing requirements as appropriate) that form the statutory decision-making and consent-granting framework. Recognising the need for a whole of Government approach, a National Demand Management Steering Group was established in May 2023 consisting of the members as shown below. ![Figure 2: Steering Group Members](assets/p023-f01.webp) *Figure 2: Steering Group Members* ### Just Transition Focus *Pages 24–24* At the outset, six key areas for consideration were identified, with a system, demand generation and just transition focus. These were as follows (more detail on the rationale for these areas is set out in Chapter 9): (NWRA) and local authorities, NGOs (e.g. Irish Doctors for the Environment, An Taisce); disability representatives; community groups e.g. Dingle Hub; Transport Operators (Iarnród Éireann, Bus Éireann); academia (Trinity, Technological University Dublin, University of Limerick, Atlantic Technological University Sligo, University College London); industry/business - Freight Transport Association of Ireland (FTAI), Irish Road Haulage Association (IRHA), Ports, Amazon, Irish Business and Employers Confederation (IBEC); and media representatives among others. Systems Focus 1. Integrated Land Use and Transport Planning 2. Optimal Use of Space 3. Fiscal Measures Building on existing research and case studies, notably the work of the Five Cities Demand Management Study, insights from the 2022 OECD Report and the International Transport Forum in the area of demand management, each subgroup was also tasked with examining the impacts of measures through various lens including just transition, reducing less sustainable transport demand, improving air quality, reducing emissions, and maximising the wellbeing utility of public space. The outcome from this engagement is reflected in Chapter 9 of this Strategy and the collective suite of recommendations, including further measures to promote ongoing engagement, are represented in Chapter 10. Demand Generation Focus 4. Generators of Demand (Movement of People) 5. Generators of Demand (Movement of Goods) Just Transition Focus 6. Captive Car Users Six expert subgroups were established for each of the above, consisting of stakeholders from government departments and agencies, local authorities, industry, academia, and non-governmental organisations (NGOs). While the six areas were not mutually exclusive and there was a degree of overlap across many of the subgroup discussions and conclusions, this approach provided for a series of different lenses through which to consider and evaluate the challenges and opportunities in developing a comprehensive strategy. The sub-groups were tasked with identifying demand management and related measures, including any barriers to implementation, that should be prioritised across multiple policy areas in Ireland. Following this process, the Department published a draft of the Strategy as well as a draft Implementation Plan for public consultation during a four-month period in 2024. To align with the public consultation, the Department also held a further round of engagement with a wide range of stakeholders including, among others, representatives from community organisations, social justice advocacy groups, sporting bodies, third level institutions, business and industry as well as Disability Persons Representative Organisations (DPROs). A summary of the submissions and views collated during 2024, and how this process helped to strengthen the Strategy, was published alongside this document. The implementation plan has since been fully incorporated into the Strategy and is attached at Appendix 3. Over 100 stakeholders, from 57 organisations, were involved in the work of these subgroups. In addition to the organisations represented on the Steering Group (see Figure 2), the following made important contributions to the process: Department of Health, Health Service Executive (HSE), Sport Ireland, Office of Public Works (OPW), the Department of Rural and Community Development and the Gaeltacht, Department of Further and Higher Education, Research, Innovation and Science, Enterprise Ireland, Heritage Council, Irish Planning Institute, Office of Planning Regulator, Land Development Agency, National Economic and Social Council (NESC), Northern and Western Regional Assembly Wider public sentiment and attitudes towards demand management measures were also considered while shaping this Strategy, through a series of focus groups which were held in October 2023. ### Rural Recognition *Pages 25–25* In general terms, the research found a general openness to small reductions in car usage at a personal level but with a desire for change to be fairly applied - and there were concerns about a direct attack on all car drivers. The research acknowledged that realistic change will depend on integrated, reliable public transport as well as public knowledge of this and pointed to the need for translating the change in behaviour and reduction of car usage into something positive. More detail on this research is available in Chapter 8. endeavors, in so far as is practicable, to maximise employment opportunities, and support persons and communities that may be negatively affected by the transition. That said, the objective of this Strategy will largely support all cohorts of society in terms of accessibility, safety, health and wellbeing. Accessibility and Inclusion It is recognised that people with additional mobility requirements or considerations, including disabled people and people with caring responsibilities, are more reliant on private cars for accessing services such as employment, education, retail, medical and entertainment. This Strategy will not prevent people from using cars, rather it will ensure the provision of accessible parking is retained, and strengthened, where possible. By ensuring urban centres have a balanced approach to land-use and transport planning, towns and cities can become more accessible, and permeable to all irrespective of age, gender, physical ability or ethnicity when collaboration and disability-proofed design is deployed. Finally, the Department also took steps to assess the gender impacts of this Strategy and participated in a pilot phase of the European Commission’s Technical Support Instrument (TSI) flagship project on ‘Gender Mainstreaming in Public Policy and Budgeting’, led by Department of Children, Equality, Disability, Integration and Youth (DCEDIY). The development of this Strategy was one of two areas within the Department of Transport that volunteered for inclusion in the Irish workstream of this European project. Guiding Principles in Developing and Implementing the Strategy Rural Recognition Not surprisingly, kilometres travelled by car, and the associated level of emissions per capita from transport, is significantly higher in rural areas than for inner suburban and urban areas. It is acknowledged that those living in rural areas, particularly in one-off houses or on offshore islands, have less access to sustainable means of travel compared with those living in or close to large urban centres. In light of this and given that the greatest health impacts from traffic congestion and pollution is experienced by urban residents and workers, it is intended that demand management measures will be rolled out, in the first instance, to such centres. Having regard to rural communities, where the provision of Taking account of evidence, research and experience nationally and internationally in developing and implementing similar strategies, the following guiding principles were identified as key to ensuring broad public acceptance of the Strategy and as a means of elevating the key issues for consideration, particularly during the implementation phase. Just Transition Just transition is a key principle in efforts to address climate change. It is recognised that the cost of transitioning to carbon neutrality can have different impacts on different cohorts of the population. Not everyone will have the means to switch to driving an electric vehicle nor easy and immediate access to public transport. public transport is less extensive, it is expected that implementing bodies will deploy demand management measures in tandem with ongoing investment in programmes such as active travel infrastructure and Town Centre First initiatives alongside Connecting Ireland. This Strategy will seek to ensure that the timing and sequencing of measures will align with the rollout of new and enhanced public transport services and public transport and active travel infrastructure projects. The Climate Action Plan advises that Government shall have regard to the requirement for a just transition to a climate neutral economy which Local Link Services - Connecting Ireland ### Oversight and Responsibility *Pages 26–26* Economic and Financial Sustainability The Group will meet on a quarterly basis to oversee delivery of the recommendations and actions and to shape developments in demand management as issues arise and as policy evolves. It will be serviced by the Department of Transport. This Strategy supports measures that are economically and financially sustainable. An efficient transport network is vital to the economy. As well as social, personal and environmental costs, a poorly performing transport system, where congestion is commonplace, is proven to have a significant cost to the economy whereas the efficient movement of traffic is beneficial for industry and society alike. Access to sustainable transport modes and the optimisation of roadspace across users in favour of such modes has generally been found to have a positive impact on footfall and spend in retail outlets, particularly in urban centres. This Strategy has the potential to create a positive impact on both national and local economies. As the policy levers and scope of this strategy extend well beyond transport and many of the recommendations are directed at business, community and voluntary sectors, it will be important to bring leadership perspectives from these sectors to the Steering Group. To ensure that the implementation process is disability and equality proofed, having regard to obligations under the United Nations Convention on the Rights of Persons with Disabilities (UNCCPD), a consultative group will also be established to challenge and test the approach to implementation in consultation with relevant organisations including nominees from the likes of the Just Transition Commission, Disability Persons Representative Organisations (DPROs), business representatives and Local Authorities to ensure the guiding principles of the strategy remain central to implementation. Oversight and Responsibility This Strategy sets out several action-orientated recommendations, including the governance structures that will be established to monitor, evaluate, and measure impacts and outcomes. Recommendations from this Strategy will be incorporated, where relevant, into further iterations of the Climate Action Plan, which will provide an additional layer of oversight and accountability at a government level. Each recommendation in this Strategy is assigned a lead owner who will be responsible for its delivery where appropriate (see Appendix 3). However, the success of this Strategy will require continued collaboration from all involved. As recommended by the Climate Change Advisory Council (CCAC) in its 2024 Annual Review of the Transport Sector, timely delivery of actions across all aspects of the Strategy will need to be supported by a well-resourced, system wide implementation mechanism. This will require a whole of Government approach, including local government and enterprise and community/citizen buy-in to ensure delivery. This approach is captured in Recommendation 32: Establish an oversight mechanism to monitor and evaluate the Strategy (see Chapter 10). In that context, the National Demand Management Steering Group will be reconfigured with its membership and terms of reference refreshed as an oversight mechanism to monitor and evaluate implementation of the strategy. The Group should be a strong, advocate for change across the system as well as ensuring effective implementation of the recommendations contained in the strategy itself. ## Understanding the Challenge ### Understanding the Challenge *Pages 27–32* ![Figure from page 27](assets/p027-f01.webp) *Figure from page 27* ## 2. Understanding the Challenge Our transport system must operate efficiently to secure the full benefits of Government investment. This can only be achieved by reducing congestion and overall demand for unsustainable journeys. By tackling these issues, other societal benefits can be unlocked through reductions in emissions and harmful localised pollutants. Given the above, it is not surprising that the car is the dominant form of inland transport in all Member States compared with journeys by train, coach or bus. In 2018, travel by car accounted for 82.9% of passenger-kilometres7 across the EU, compared with 9.3% for coaches, buses and trolley buses, and 7.9% for trains. As of 2023, private cars made up 74.3% of total kilometres travelled8. It is widely acknowledged, at a global level, that transport will be one of the most difficult sectors to decarbonise despite the scale of associated benefits, including to the economy and national competitiveness. Transport emissions are stubbornly difficult to reduce, compounded by an embedded reliance on private car use – nationally and internationally. Reflecting levels of car dependency across the EU, the average number of passenger cars per 1,000 inhabitants increased by 13.8% (from 501 to 570 passenger cars per 1,000 inhabitants) during the decade 2013-2023. (See Figure 3) As previously mentioned, targets (if achieved) for the electrification of the vehicle fleet, along with an increasing penetration of biofuels in the fuel mix, could potentially help to reduce emissions in transport by circa 37% by 2030. The remaining 13% will largely be dependent on reducing kilometres travelled and a large-scale shift to more sustainable journeys. This translates to reducing the mode share of daily car journeys from over 70% to circa 50%, in parallel with an increase in daily public transport journeys by 130%, and an increase in daily active travel journeys by 50%. Ireland was not immune from this trend in recent decades, with the number of licensed vehicles having increased by 250% from 915,000 in 1985 to 3.2 million in 2025. While the number of goods vehicles increased by 363% over this period, from 93,400 in 1985 to 432,460 in 2025, private cars accounted for most of this growth with an increase of 1.8 million vehicles. However, Ireland’s per capita ownership rate remains relatively low when compared to other EU Member States – indicating scope for additional growth and increased car dependency. The level of change envisaged – over a very short period - is unprecedented. To provide some context, during the Covid crisis in 2020 when the country experienced a number of ‘lock downs’ and where long-distance travel by citizens and many businesses was severely curtailed, transport emissions fell by only 16%. While emissions from road freight were reduced, given the impacts of restrictions on certain industries (e.g., construction), goods vehicle traffic remained largely unhindered. ![Figure 3: Motorisation Rate of Passenger Cars, 2013 and 2023](assets/p028-f01.webp) *Figure 3: Motorisation Rate of Passenger Cars, 2013 and 2023* 7 EU Passenger Kilometres by Car 8 https://data.cso.ie/table/THA10 The following table from the SEAI’s Energy in Ireland Report 2025 is indicative of the emissions profile for the transport sector, with the largest share emanating from private car journeys (40.5%), freight (16.3%), and Light Duty Vehicles (5.8%) in 2024. Any effort to reduce kilometres travelled must focus on these sub-sectors. ![Figure 4: Quantities and shares of transport CO2eq emissions by subsector, including GHG emissions from direct combustion](assets/p029-f01.webp) *Figure 4: Quantities and shares of transport CO2eq emissions by subsector, including GHG emissions from direct combustion* Figure 4: Quantities and shares of transport CO2eq emissions by subsector, including GHG emissions from direct combustion and indirect GHG emissions from electricity use (share) In the year preceding Covid (2019), total kilometres travelled in Ireland was 47.1bn kilometres. In 2023 (the latest available data), total vehicle kilometres travelled were 47.3bn meaning that each vehicle travelled on average 15,854 kilometres. The following table indicates the breakdown of kilometres travelled between private cars, goods vehicles and others. Total Vehicle KM, 2005-2023 ![Figure 5: CSO Data on Total Vehicle Kilometres](assets/p030-f01.webp) *Figure 5: CSO Data on Total Vehicle Kilometres* While average total kilometres travelled is lower for private cars than for goods vehicles, public service vehicles, and tractors and machinery, private cars accounted for over 77% of the total number of licensed vehicles and 74% of the total distance travelled in 2023. On average, each private car travelled 15,196 kilometres. In 2019, a year in which there was no travel curtailments, each private car travelled on average 16,352 kilometres. ![Figure 6: CSO Data on Average Kilometres Travelled by Vehicle](assets/p030-f02.webp) *Figure 6: CSO Data on Average Kilometres Travelled by Vehicle* At a more granular level, data gathered by the NTA indicates the kilometres travelled is highly correlated to geographical areas. Taking the Greater Dublin Area as an example, there is a significant difference in kilometres (KM) travelled by people living in the GDA Hinterland compared with those in the Dublin City Centre. | | Annual Vehicle KM | Population | Annual KM/Person | | --- | --- | --- | --- | | Inside the Canals | 508,000,000 | 156,500 | 3,246 | | Canals to M50 | 4,838,000,000 | 705,700 | 6,856 | | M50 to Metropolitan Boundary | 7,524,000,000 | 658,500 | 11,426 | | Hinterland | 11,308,000,000 | 604,000 | 18,722 | | Total | 24,177,000,000 | 2,124,800 | 11,378 | Figure 7: Kilometres Travelled (GDA) Nationally, according to the most recent National Household Travel Survey (NHTS) in 2024, 71% of journeys are taken by car. Car 71% Walk Bus/Coach Truck/Van Cycle 2% 1% Train/DART/Luas 1% Other Figure 8: Breakdown of National Journeys by Mode However, the following shows that most trips that people make are over relatively short distances. According to the 2024 NHTS, approximately 69% of all trips taken nationally are for distances of less than 10km with 36% of all trips below 3 kilometres. Just 11% of journeys are for 30km or more. | Distance | % | | --- | --- | | 0-0.99km | 10% | | 1-2.99km | 26% | | 3-4.99km | 14% | | 5-9.99km | 19% | | 10-19.99km | 15% | | 20-29.99km | 6% | | 30km+ | 11% | | Average trip distance | 12.81km | Figure 9: Breakdown of National Journeys by Distance So, while the challenge to address car dependency – both practically and culturally - is significant, the above distances would suggest that there is significant scope for reducing car journeys in favour of other modes where sustainable alternatives are available and viable. A key driver of the behavioural change needed is the relative cost and benefits to the individual and the availability of alternative options. Various techniques, including the National Transport Authority’s Regional Modelling System, are used to model likely responses to the relative costs of travelling by car versus other modes. However, it is evident from these models that travel demand is highly inelastic. This means that people tend to absorb very high-cost inflation before behavioural change occurs. Therefore, achieving the level of required modal shift from the car to more sustainable modes requires a significant change in awareness around the relative cost and benefits between modes - particularly as the car continues to be perceived as more convenient, more reliable and more cost effective for most journeys. It is noteworthy that, using the NTA model, fossil fuel price increases are effective in bridging the cost competitiveness gap between the internal combustion engine (ICE) car and sustainable transport alternatives. Implementation of such measures, however, is more challenging given the potential impacts on cohorts of the population for whom sustainable alternatives are not available and/or where affordability is an issue, particularly in relation to buying Electric Vehicles (EVs). This is the challenge in designing the range of policy interventions that will cumulatively deliver the required behavioural change in a fair and equitable manner. ## International and European Policy Drivers ### International and European Policy Drivers *Pages 33–33* ![Figure from page 33](assets/p033-f01.webp) *Figure from page 33* ## 3. International and European Policy Drivers ### WHO – Air Quality and Health Impacts *Pages 34–34* The objectives of this Strategy align closely and will support a range of United Nations (UN) and European Union (EU) policies and obligations on climate, sustainable development, transport and energy in particular. Key policies and their relevance are set out below: although the Trans European Network – Transport (TEN-T) focuses very much on aligning investment towards a defined set of core and comprehensive transport corridors. WHO – Air Quality and Health Impacts The Paris Agreement to the UN Framework Convention on Climate Change (UNFCCC) has a legally binding overarching goal of holding “the increase in the global average temperature to well below 2°C above pre-industrial levels” and in line with recommendations of the Intergovernmental Panel on Climate Change (IPCC) take steps “to limit the temperature increase to 1.5°C above preindustrial levels”. There are important and related international ambitions and objectives associated with countering external costs from transport, through policies on health and sustainable development in its broadest terms. The UN spearheads such ambition through its agencies such as the World Health Organisation (WHO) and through its Sustainable Development Goals (SDGs). Of particular relevance are the WHO’s updated guidelines on outdoor (ambient) air pollution levels. They include very ambitious levels for nitrogen oxides (NOx), which is the primary pollutant associated with transport, followed by particulate matter (especially PM2.5). These guidelines, which were updated in 2021, reflect how air pollution affects many aspects of health, even at low levels. To realise this, the European Commission approved the European Green Deal in 2020, which sets out a blueprint for transformational change including the goal of becoming the first climate-neutral continent by 2050. In the same period, the EU commits to achieving a 90% reduction in transport-related greenhouse gas emissions (relative to 1990 levels). Aligned to this is the EU’s ‘Fit for 55’ package, which commits to reducing net greenhouse gas emissions by at least 55% by 2030, compared to 1990 levels. For transport, the package is primarily focused on reducing fossil fuel dependency and increasing the availability of, and infrastructure for, renewable alternatives. Transport is a key source of harmful emissions in urban environments, and the associated impacts, particularly in cities, is the single biggest environmental threat to human health according to the WHO. Accordingly, Ireland has committed to working towards the WHO values in its Clean Air Strategy. The EU’s Effort Sharing Regulation (ESR) transforms the targets of the Clean Energy Package into binding annual climate targets for each Member State for the period 2021–2030. An amendment to the ESR came into force in May 2023. The new legislation increases the emissions reduction target for the targeted sectors including transport, from 29% to 40% by 2030, compared to 2005 levels. There are other important international and EU level ambitions to reduce the health impacts of air pollution including: ᴏ the EU Zero Pollution Action Plan (2021) which aims to reduce the health impacts of air pollution by 55% by 2030, compared to 2005; and At a sectoral level, the EU’s Sustainable and Smart Mobility Strategy calls for decisive action to shift towards more public passenger transport like buses and trains, given the role that such modes can play in reducing greenhouse gas emissions and other environmental pressures such as air pollution and noise. The EU’s Strategy also acknowledges that the share of buses and trains in total passenger transport has changed very little across Europe since 2005, albeit with fluctuation and rebound in 2020 and 2021 due to the COVID-19 pandemic, and that a significant shift will not occur without decisive action. There is no equivalent EU strategy to address travel demand ᴏ the new Ambient Air Quality Directive (due to be fully transposed in 2026), which sets more stringent air quality limits for all pollutants including NOx to be achieved by 2030. Air pollutant emissions from the road transport sector are also regulated by EU emissions standards (such as the Euro emission standards for road vehicles) and fuel quality requirements. For example, the Euro 7 standard, which was adopted by the European Council in 2024, aims to further lower air pollutant emissions from exhaust fumes and brakes and will impose more stringent limits for various pollutants on heavy-duty vehicles in particular. ### Energy Taxation Directive (ETD) *Pages 35–35* UN Sustainable Development Goals Renewable Energy – Amended Renewable Energy Directive The 2030 Agenda for Sustainable Development provides a shared blueprint for peace and prosperity for people and the planet, now and into the future. At its heart are 17 Sustainable Development Goals (SDGs), which reflect the need for all countries to urgently act as a global partnership. As part of its Fit for 55 package, the Commission also adopted a legislative proposal for an amendment to the Renewable Energy Directive (RED) which came into force in 2023. The amended RED contains revised targets for renewable energy consumption in transport, of 29% energy share (known as the ‘RES-T’) or a 14.5% GHG reduction by 2030. Sustainable transport is mainstreamed across several SDGs and targets, especially those related to food security, health, energy, economic growth, infrastructure, and cities and human settlements. The EU target for renewable energy across all economic sectors has also been increased in the RED to 42.5% by 2030 energy share. Member States were required to set out interim targets in their submissions to the European Commission on National Energy and Climate Plans (NECP) by June 2024, against which compliance with the 2030 target is to be assessed. On 28 May 2025, the Commission published its EU Wide Assessment of the final updated National Energy and Climate plans (NECPs) accompanied by a Staff Working Document with the individual assessment of 23 final updated NECPs submitted and evaluated to that date. Of specific importance to transport, and integral to the principles of this Strategy, are SDG targets 3.6 and 11.2: ᴏ SDG Target 3.6 – By 2030, halve the number of global deaths and injuries from road traffic accidents. ᴏ SDG 11.2: By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons. Energy Taxation Directive (ETD) The EU’s ETD entered into force in 2003 and lays down structural rules and minimum excise duty rates for the taxation of energy products used as motor and heating fuel, and electricity. However, given its age, the Directive does not suitably reflect the EU’s current climate and energy policy frameworks or legally binding climate targets. This Strategy has been developed to align Ireland with international ambition and commitments in the above areas. European Policy on Energy Three other energy related policies at EU level are also particularly relevant to this Strategy: Accordingly, this Directive is currently being revised, with proposals aimed at ensuring that the most polluting fuels are taxed the highest and that minimum rates can be revised annually to reflect most up-to-date prices. Energy Efficiency Directive A new recast Energy Efficiency Directive (EU) 2023/1791 introduces a series of measures to help accelerate energy efficiency, including embracing the “energy efficiency first” principle in energy and non-energy policies. Changes from the previous directives 2018/2002 and 2012/27/EU include the establishment of a legally binding target to reduce the EU’s final energy consumption by 11.7% by 2030 (relative to the 2020 reference scenario). Transport is the most significant contributor to final energy consumption as defined by the EED and can contribute significantly to achieving this target. In summary, this Strategy is aligned with and will support a wide range of UN and EU objectives and obligations across climate, transport, energy, and sustainable development sectors. Early and effective implementation of the Strategy will contribute to Ireland’s economy wide efforts to comply with EU targets and mitigate against noncompliance penalties and associated fines. ## National Climate and Transport Policy Drivers ### National Climate and Transport Policy Drivers *Pages 36–36* ![Figure from page 36](assets/p036-f01.webp) *Figure from page 36* ## 4. National Climate and Transport Policy Drivers ### National Sustainable Mobility Policy *Pages 37–37* At a national level, this Strategy will support the achievement of objectives on climate. It will also contribute positively to a variety of policies in the transport domain such as policy on sustainable mobility, freight and road safety. The key polices and their relevance is set out below: To realise the abatement required, CAP23 identified the need to reduce vehicle kilometres travelled by 20% relative to what would otherwise be expected under a business-as-usual approach. It included a specific action to support this target through the development of a national demand management strategy. Climate Action Plan As the population continues to grow, reducing travel demand will become increasingly important. The development and implementation of this Strategy thus form crucial elements of our decarbonisation pathway and fulfills the commitment to develop a national demand management strategy as per CAP23. The challenge that Ireland faces to comply with national climate targets cannot be overstated. Climate Action Plan 2023 (CAP23), which was the first statutory Climate Action Plan that incorporated both the economy-wide targets and legally binding sectoral emission ceilings under the provisions of the Climate Action and Low- Carbon Development (Amendment) Act 2021, brought a renewed focus to the need for systemic action, at all levels of Government. Transport is particularly challenging. Emissions from the sector had been steadily rising over 2021 and 2022 at a rate of approximately 6% per annum, reflecting the strength of the economy, full employment, and continued population growth in Ireland. This trend peaked in 2023 and 2024 will be the first year since COVID where transport emissions have reduced by 1.2% despite continued economic growth. Corrective Action Modelling Project The Department of Transport and the NTA are undertaking a transport modelling and appraisal exercise (the Corrective Actions Modelling Project) to revise and recalibrate the modelling that was completed for CAP23, and to re-assess and strengthen the decarbonisation policy pathway for transport to 2030. The objective of this project is to develop clear policy pathways for adhering to carbon budget ceilings in transport over the coming years (for more detail on this project see ‘Modelling for CAP’ in Chapter 8). CAP23 recognises that achieving our climate ambition will require a multi-faceted, integrated, and interdependent combination of measures – measures that can change long-established patterns and preferences in how and where we travel, while also addressing many potential factors that influence transport decisions. To this end, CAP23 applied an Avoid-Shift-Improve lens to the range of measures being progressed under the Plan. CAP24 and CAP25 have continued to build on the policy shift set out in CAP23. Without the effective and early implementation of the measures envisaged in this Strategy, it is highly unlikely that transport emissions will fall within the sectoral emissions ceilings over the period out to 2030. Further iterations of the Climate Action Plan will reflect the implementation path for this Strategy. National Sustainable Mobility Policy While Government will continue to support and prioritise ‘Improve’ measures related to electrification of the vehicle fleet and higher penetration levels of renewable transport fuels in the fuel mix, these measures alone will not deliver the emissions abatement required for the transport sector — more corrective action is required. Under the decarbonisation pathway set out by CAP23 and subsequent Plans, approximately 2 MtCO2eq./year (or roughly 25%) of emissions abatement will have to be achieved through ‘Avoid’ and ‘Shift’ measures by 2030. This level of abatement may even be higher when work is undertaken to update and recalibrate the emissions trajectory to 2030. The National Sustainable Mobility Policy (SMP), which was published in April 2022, sets out a strategic framework to 2030 for active travel (walking and cycling) and public transport journeys to help Ireland meet its climate obligations. Action Plans under the SMP support a wide range of interventions including, among other things, public transport infrastructure and services, active travel promotion and supports, road safety initiatives, legislative measures, research, and public engagement. The Policy also supports the implementation of large-scale transport projects including MetroLink and DART+ in Dublin, ### Metropolitan Area Transport Strategies *Pages 38–38* BusConnects in the five cities, the Connecting Ireland scheme in rural areas, and an Active Travel Infrastructure Programme providing high-quality cycling infrastructure across the country. noise, and enhance attractiveness and accessibility of cities, neighbourhoods and town centres.’ Metropolitan Area Transport Strategies Under the Active Travel Infrastructure Programme, 1000km of walking and cycling infrastructure has been delivered nationwide, and over 1,000 projects are currently being progressed and delivered under the Active Travel Programme across all 31 local authorities. Ensuring coherence between transport and wider planning decisions will be critical to this Strategy. The integration of sustainable mobility and land use planning in our cities is supported through the Metropolitan Area Transport Strategies (MATS). In effect, the SMP sets out the ambition for ‘supply’ side measures that will complement and re-enforce the ‘demand’ side recommendations provided for in this Strategy. Both will need to work together to ensure they are mutually supportive and effective. The timing of supply side schemes will be critical to the success of any future demand management measures. Through MATS, programmes and a vision for sustainable transport investment and service enhancements are established for each city over a 20-year period. Encompassing active travel, bus, light rail, heavy rail and park and ride facilities, these MATS are renewed as part of a regular cycle of review (typically every 6 years). In the recent years, new and revised MATS have been completed and published for the Waterford and Limerick-Shannon metropolitan areas, and the Greater Dublin Area (GDA). It is also anticipated that the NTA will commence the review process of the 2020 Cork Metropolitan Area Transport Strategy (CMATS) in 2026. The SMP highlights the potential for the development of rail as a sustainable transport mode. The All-Island Strategic Rail Review (AISRR), published in July 20249, aims to inform policy and future strategy for the railways in both Ireland and Northern Ireland. It has examined how the island’s railways are currently used, what role rail could play in the future and how the island’s railway could better serve the people of both jurisdictions. The AISRR has focused on how the rail network across the island could contribute to the decarbonisation of the island’s transport system, promote sustainable connectivity into and between major cities, enhance regional accessibility and support balanced regional development. 32 strategic recommendations have been put forward to achieve these goals. It is worth noting that the GDA Transport Strategy (below) addresses the wider Dublin and Eastern Regions, extending beyond the Dublin Metropolitan Area Spatial Plan (MASP). Collectively, these reflect the latest policy commitments to reduce transport emissions by 50%, in accordance with the provisions of the Climate Act. Following extensive public consultation, these updated MATS recognise the need to reduce high levels of car dependency in each of our cities and enhance the provision of sustainable alternatives. The recommendations of the AISRR will be implemented through a Project Prioritisation Strategy, with all future projects being subject to appropriate feasibility options and environmental assessments at project level, where required. Outside the Greater Dublin Area, the MATS are currently non-statutory plans developed by the NTA in co-operation with the relevant Local Authorities and other Agencies. As committed to in CAP23 and the SMP, the Department of Transport intends to amend legislation to extend the remit of the NTA to the five cities, which will bring a coherent approach to transport objectives consistent with the Climate Action Plan. Actions to advance the recommendations in the AISRR, along with all other sustainable mobility programmes, projects and initiatives, are included in a new SMP Action Plan to cover the last five years of the Policy, 2026 to 2030. This is in line with the 2025 Programme for Government commitment to ‘Develop a new Sustainable Mobility Action Plan which promotes sustainable modes and transport- oriented development to address congestion, improve air quality and reduce The MATS process, along with the associated guidance documents provided by the NTA and TII, are a vital planning framework on which to develop and specify demand management 9 https://www.gov.ie/en/publication/cc8fc-all-island-strategic-rail-review/? ### Electrification and Renewable Energy Policy *Pages 39–39* measures which will support the achievement of this Strategy’s objectives and that of the Climate Action Plan. Their importance is reflected in relevant recommendations in Chapter 10. The work undertaken by the TOD Working Group informed the National Planning Framework (NPF) 2025, which introduced TOD as a new element of the Framework, with potential for supporting the delivery of new sustainable communities at brownfield and greenfield locations. National Planning Objectives 10, 97 and 99, combined, seek to deliver TOD at suitable locations (as identified in Metropolitan Area Strategic Plans) supported by the necessary institutional and funding arrangements to support the development and accelerated delivery. Transport Orientated Development Transport Orientated Development is 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. It is a form of development that is friendlier to public transport users, cyclists and pedestrians, and seeks to convert car trips to public and active transport trips. This in turn improves mobility and environmental conditions and delivers more efficient and sustainable urban development. TOD can also be designed to provide a higher proportion of social and affordable housing. (National Economic and Social Council 2019 report) GDA Strategy and Demand Management Scheme As a key delivery agency for sustainable mobility, the NTA’s Greater Dublin Area Transport Strategy 2022-2042 sets out how the transport system will be developed over this period to meet the needs of a growing population while reducing emissions by 50% across the region, covering Dublin, Meath, Wicklow and Kildare, by 2030. As well as significant investment in active, shared and public transport infrastructure and services, a key lever to achieve such reduction will be a GDA Demand Management Scheme, which the NTA expect to publish by 2026. This Strategy provides the strategic framework and impetus for that Scheme and further schemes to be developed in the remaining five cities and other local authority areas in a coherent manner. The PfG commits to focusing on linking new housing developments to public transport and schools through TOD. Further to this, the Revised NPF 2025 affirms a strong commitment to TOD with potential for supporting the delivery of new sustainable communities at brownfield and greenfield locations - by locating them along existing or planned high-capacity public transport corridors. Electrification and Renewable Energy Policy A Transport Orientated Development Working Group, which was established in 2021 under Housing for All, is looking at opportunities for TOD in the five cities of Dublin, Cork, Limerick, Galway and Waterford. The intention of this process was to identify strategic brownfield and greenfield lands served by existing and / or planned high-capacity public transport services that are suitable for TOD. CAP23 targets the electrification of almost a third of the total private car fleet in Ireland by 2030, which will require 100% of new private registrations to be electric before the end of this decade. A report for Dublin was published in June 2023. It identified opportunities for up to 130,000 residential units at fourteen locations with further significant opportunities identified in the other as yet unpublished reports. It is clear these reports identify the potential for significant numbers of residential units and the analysis undertaken underlines the role that targeted public investment in certain transport projects can play in enabling the delivery of large-scale housing delivery in the major metropolitan areas. ### Freight and Haulage Strategy *Pages 40–40* Ireland has over almost 204,000 EVs and plugin hybrids on the road at the end of 2025 and Zero Emission Vehicles Ireland (ZEVI) provides a range of grants and incentives to the public and businesses to support the uptake of EVs. Additionally, to support the uptake of EVs, ZEVI published the Electric Vehicle Charging Infrastructure Strategy 2022 – 2025 and an accompanying implementation plan10 which sets out a pathway for the delivery of EV charge point infrastructure. This Strategy, which will be revised in 2026, will also provide for the rollout of EV infrastructure as required under the EU’s Alternative Fuels Infrastructure Regulation (AFIR), where a 300% increase in the amount of public recharging infrastructure is targeted for delivery. particularly efforts to reduce emissions, which have direct implications for energy consumption. This Strategy, along with the other policy measures being pursued as part of the transport decarbonisation pathway will support the achievement of the Government’s energy efficiency and security objectives. Having regard to strategic energy security risks, this Strategy has a role in helping to restrain national energy use, given its remit in reducing vehicle kilometres travelled. In 2022, as part of its contribution to the development of the National Energy Security Framework, the Department of Transport identified a range of potential transport-related energy efficiency and demand restraint measures as well as likely mechanisms for implementation over three energy constrained scenarios – some of which have been taken into consideration in this Strategy. The transition to EVs has the potential to make the greatest contribution to tackling emissions from medium to longer journeys, particularly those taken by non-urban captive car users who have no sustainable mobility alternative, and this is recognised in the Strategy. Similarly, electric technology and alternatives are expected to play a significant role in the freight, haulage and logistics sector. In relation to energy efficiency (see below), Ireland was required to achieve energy savings of 40% by 2030. EVs are at least three times more energy efficient than their ICE equivalents. The ‘Energy Security in Ireland to 2030’ report, which was published in November 2023, provides a roadmap for ensuring a sustainable, affordable and secure energy landscape that balances energy risk and resilience against binding European and domestic energy and climate commitments. This Strategy will support, and align with, the goals of this roadmap. Freight and Haulage Strategy Ireland also has ambitious plans for the penetration of renewable transport fuels (including biofuels) into our transport fuel mix. The Renewable Transport Fuel Policy, 2025 – 2027 sets out a pathway to incentivise the supply of renewable transport fuel through annual increases in the renewable transport fuel obligation rate to 2030. Ireland’s domestic and international road freight sector is an integral part of the economy, with the vast majority of freight movements in Ireland taking place by road. Ambition to increase rail freight in Ireland is considered through the All- Island Strategic Rail Review and also features in this Strategy. While Ireland will seek to maximise the sizeable contributions to emissions abatement that electrification and renewables can make, this Strategy seeks to target the remaining abatement that is required to achieve the legally binding targets set for transport by 2030. Heavy-Duty Vehicles (HDVs) (including buses and Heavy Goods Vehicles) and Light Duty Vehicles (LDVs), represents 51% of overall road transport emissions in Ireland and without significant intervention, this is likely to grow as economic activity increases over the coming decade. Currently more than 99% of HDV on Irish roads are diesel-fueled. Road freight transport is energy intensive and while electric vehicle technologies are now widely commercially available, they have a significant upfront cost differential when compared to a traditional ICE alternative. Energy Efficiency and Security Transport is the largest source of energy consumption in Ireland. For this reason, policies and related targets on energy efficiency, renewable energy and energy security are heavily reliant on effective transport measures, 10 https://assets.gov.ie/300570/4cfc5ab2-fdce-4729-872d-0378919f5e4b.pdf ### National Investment Framework for Transport in Ireland *Pages 42–42* In addition to this, the quantity of tonnage that is being moved by road continues to grow, responding to population growth, increased consumer demand and a post-Covid economic recovery. The decarbonisation pathway for transport set out in the Climate Action Plan assumes improvements in Ireland’s HGV fleet will reduce carbon emissions by 10% overall by 2030 - primarily through reduced fuel consumption and/ or increased fuel efficiency and use of renewable fuels, rather than a significant penetration of zero emissions trucks before 2030. the delivery of Project Ireland 2040’s National Strategic Outcomes, particularly those related to enhanced regional accessibility, strengthened rural economies and communities and sustainable mobility. Priority in TII’s Strategy is given to decarbonisation of national road investment through the Department of Transport’s National Investment Framework for Transport in Ireland, described hereunder. National Investment Framework for Transport in Ireland Published in 2023, Ireland’s Road Haulage Strategy 2022 – 2031 sets out the measures needed to deliver on key objectives for the industry, including decarbonisation. Key measures include signing a non-binding commitment to reach a minimum of 30 percent of all new Medium and Heavy-Duty Vehicle sales (bus and truck) to be zero-emission by 2030, as well as increasing the use of renewable fuels as a transitional measure, made possible by the Renewable Transport Fuels Obligation Scheme. Of relevance to this Strategy are measures that explore the potential for operational and digital efficiencies, as well as freight consolidation, road usage charging, and scope for behavioural change through emissions-based taxation of HGVs. The National Investment Framework for Transport in Ireland (NIFTI) is the Department of Transport’s high-level strategic framework for prioritising future investment in the land transport network. Published in December 2021, NIFTI set out four strategic investment priorities to address transport challenges. These are: decarbonisation; protection and renewal; mobility of people and goods in urban areas; and enhanced regional and rural connectivity. Accordingly, NIFTI establishes high-level investment priorities to efficiently and effectively address key transport challenges. More specifically, the high-level investment priorities are guided by a modal hierarchy and an intervention hierarchy. Under the Modal Hierarchy Framework, sustainable modes of transport will be prioritised, while acknowledging that the private car will remain an important mode of travel in much of Ireland. This ‘Moving Together’ Strategy seeks to encompass, and align itself with, the objectives of the haulage strategy. However, the freight and haulage sector presents a variety of specific and complex challenges and opportunities from a demand management perspective. As above, emissions from the freight sector will continue to increase without significant intervention. For this reason, an expert sub-group was established to focus on this area and to develop a set of sector specific recommendations. These are set out in detail in the sub-group report, summarised in Chapter 9 and further reflected in the full suite of recommendations in Chapter 10. Under the Intervention Hierarchy Framework, NIFTI sets out four high-level categories of investment. These four categories of investment are used to inform intervention decisions, both at the budgetary level and the project level. These four high-level categories are: maintain; optimise; improve; and new. Maintaining the existing transport network is given first priority, followed by maximising the value of the network through optimising its use. Infrastructural investments are only to be considered after these two categories have been assessed as inappropriate for the identified problem, with upgrades to existing infrastructure to be considered before new infrastructure. National Roads 2040 Transport Infrastructure Ireland (TII) published its strategic vision for roads in 2023. ‘National Roads 2040’ seeks to support an evolving transport system which has safety, innovation and accessibility at its core, and includes over thirty commitments to address issues such as population growth, decarbonisation, climate adaptation, safety and congestion. National roads are key economic enablers and are essential to The objectives of this Strategy, notably, to increase the efficiency of the existing transport system, are clearly aligned and reinforce the strategic framework provided by NIFTI. ### Road Safety Policy *Pages 43–43* Road Safety Policy Analysis of the 2025 data shows that there were 174 fatal collisions resulting in 185 fatalities. In 2025, driver fatalities represent 41% of fatalities (76), while passengers represent 11% of fatalities (21). Compared to 2024 there has been an increase in fatalities amongst drivers (+5), pedestrians (+8), pedal cyclists (+2), and motorcyclists (+13). In contrast there has been a decrease in fatalities among passengers (-14), and no change in the number of fatalities among E-Scooter users. Of fatalities 74% (137) were male and 26% (48) were female. Every citizen is entitled to use our roads without concern for their safety. For this reason, every fatality and serious injury that occurs on Irish roads is a tragedy for all involved and effected. The numbers of fatalities in 2025 (185) were 8% higher than in 2024 (172). Fatality figures in recent years have increased to levels last seen approximately a decade ago. ![Figure from page 43](assets/p043-f01.webp) *Figure from page 43* Apart from the obvious human costs, the financial costs of road traffic collisions in Ireland are also significant, conservatively estimated at €1.36 billion in 2023 across the economy. When appraising transport investment, safety is a factor in the Cost-Benefit Analysis. The Transport Appraisal Framework (TAF) measures the social and economic costs of collisions by monetising them and including them in the Cost-Benefit Analysis (c. €2.8m for fatal incidents, €0.03m for minor incidents). The TAF also requires a safety assessment in the Transport and Accessibility Appraisal (TAA) which indicates how options for a scheme perform on the safety front. The framework for road safety is set out in the Government’s fifth Road Safety Strategy 2021 – 2030. This follows international best practice, aligns the timeframe with EU and UN targets, and is based on a Safe System approach. This approach adopts a holistic view of the total road transport system and the interaction between people, vehicles, and the road environment to create a safe mobility system forgiving of human error. The Strategy has the ambitious target of reducing road deaths and serious injuries by 50% by 2030, and to achieve Vision Zero (as close as possible to no deaths or serious injuries) on Irish roads by 2050. In the context of Moving Together, demand management measures have considerable cobenefits for road safety. A 2025 study by TU Dublin on behalf of the Road Safety Authority, namely ‘RSA Action 44 - Towards Vision Zero for Cities & Towns: People, Process, Package of Interventions’ examines the mechanisms for reducing vehicular traffic in cities and towns, and how this can improve road safety, as well as increase quality of life for residents and regenerate towns centres. The study shows how the small Galician city of Pontevedra was revitalised and achieved Vision Zero for road deaths over many years by implementing pedestrian-focused policies, and reducing the dominance of congested roads. Other use cases in the study illustrate the importance of 30-40km/hr speed limits, reducing through-traffic and the importance of investing in good walking and cycling infrastructure, public transport and high-quality public spaces. ![Figure from page 43](assets/p043-f02.webp) *Figure from page 43* Notwithstanding the increases in fatalities in recent years, there is good reason to believe that the figures could have been worse had certain measures not been implemented and that further measures, including benefits from certain demand management style measures to reduce vehicle kilometres travelled, could lead to more improvements and more lives saved. It should be remembered also that, while a demand management strategy can help to contribute to road safety, the converse is also true – improved road safety can contribute to demand management (by making active travel more attractive). ### Speed Limits Review *Pages 44–44* For example, TII’s appraisal methodology uses historical information to derive expected numbers of collisions per million vehicle kilometres (PEPAG-02030-01 (tiipublications.ie), p. 15). This depends on the type of road (with/without central divider) and the speed limit (above/below 60km/hr). All else being equal, a reduction in vehicle kilometres travelled is shown to lead to a modelled decrease in collisions. The scale of benefit would also vary considerably based on the scheme. While cyclist fatalities increased in 2025, they remain close to historical low levels. It is likely that increased investment in road space reallocation and segregation of vulnerable road users has played an important role in these outcomes. appropriate for ensuring the safety of all road users in any given urban area, including limits of 30kmph. Speed limits are an important tool in managing traffic, and in efforts to rebalance space in favour of more vulnerable road users such as pedestrians, and cyclists. The speed of vehicles also has an impact on emissions, and this was considered as part of the Review. For example, emission rates are highest at lower speeds for fossil fuel vehicles. However, emissions reduce as speed increases to between 60 km/h and 80 km/h. Beyond 80km/h, emissions begin to increase slowly again. Frequent acceleration and deceleration (e.g., in congested traffic) also increases emissions. An efficient, and free-moving transport system that complies with safe speeds can also have an optimum effect on emissions arising from fossil fuelled Internal Combustion Engines (ICEs). Over half of all 2025 fatalities occurred on high speed roads, outside of urban areas - roads with a speed limit equal to or greater than 80km/h. If public transport uptake is further increased in rural areas in particular, this should help to reduce the high share of fatalities on these non-urban roads. Finally, the Review also pointed to the wide ranging and adverse health, social and economic effects of noise pollution and the role that appropriate speed management can have in reducing excessive traffic noise, with international efforts to achieve noise abatement measures in urban areas increasingly focusing on the implementation of 30km/h speed limits. Speed Limits Review The current approach to speed limits in Ireland is guided by several key policy areas e.g., road safety, climate, and the environment, and is reflected in specific plans such as the Government’s Road Safety Strategy and associated action plans, the Climate Action Plan and the Sustainable Mobility Policy (SMP). In summary, there are a wide variety of national climate, transport and energy policies that are strategies which will benefit from the effective implementation of this ’Moving Together’ Strategy and many of these are complementary and mutually reinforcing. The next iteration of the SMP Action Plan will need to ensure continued alignment and accelerated delivery of ‘supply side’ measures that complement the roll-out of demand management measures. Embedding demand management principles into the MATS process and the development of the GDA scheme will be critical to advancing the objectives of this Strategy. Policy on the electrification of the private transport fleet will also need to take greater account of just transition principles in the context of so called ‘captive car users’ in certain areas. A review of speed limits was undertaken in recent years with the final report published in September 2023. This Speed Limit Review was a high impact action during Phase 1 of the government’s Road Safety Strategy 2021-2030, and proposed a reduction in the speed limits across a range of different road categorises. The first phase of these changes – the reduction in the default speed limit on rural local roads from 80km/h to 60km/h - took effect nationally on 7 February 2025. This affects approximately 82,000km of road — about 80% of all roads. It is intended that the second phase of the speed limit changes - the introduction of a 30km/h speed limit in built-up and urban areas - will be implemented by way of ‘special speed limit byelaws’, rather than ‘default speed limit’ as above. As the making of ‘special speed limit bye-laws’ is a reserved function, this means that local councils can determine the speed limits that are most The co-benefits of this Strategy particularly in terms of road safety will be captured as part of the well-being framework for its evaluation (Chapter 12). ## Leveraging Other Policies and Programmes ### Leveraging Other Policies and Programmes *Pages 45–45* ![Figure from page 45](assets/p045-f01.webp) *Figure from page 45* ## 5. Leveraging Other Policies and Programmes ### National Planning Framework *Pages 46–46* A range of non-transport focused policies and programmes are also vital to advancing the objectives of this Strategy and will also benefit significantly from its effective implementation. Many relate to spatial and land use planning and the support programmes that underpin their objectives – e.g., the National Planning Framework, regional and rural development policies and programmes, Local Authority Climate Action Plans, and parking measures. Fiscal policies are critical to achieving climate objectives and are particularly effective for transport. Wider polices in relation to education, health, accessibility and inclusion, along with support programmes for business, tourism, sports and leisure sectors will be both critical enablers for and beneficiaries of the objectives of this Strategy. The key policies and their relevance are set out below. NPF implementation is hugely important for transport. Overall levels of transport demand and travel patterns are driven to a large extent by Government policy (national, regional and local) and settlement patterns. Low-density development and the dispersal of residential settlements, commercial zones, schools, and workplaces in peripheral areas, are major contributory factors to high levels of car dependency and the transport poverty that is experienced in some regions, posing a particular challenge for the decarbonisation of the sector. Throughout the NPF, compact and sustainable growth is recognised as being a strategic economic objective that will aid in the reduction of private car travel and improve the ‘liveability’ and quality of life in urban places. Consolidation of development, instead of urban sprawl, is also important in creating value for money for the State in terms of investing in infrastructure. National Planning Framework Key to the success of sustainable and accessible mobility objectives is compact growth, better integrated land use, and planning that takes a transport-led approach to the development of housing and new settlements. As building communities predicated on car ownership is no longer sustainable, better integrated, transport-led planning will promote a modal shift towards public transport and empower people to move away from car dependency. The revised NPF was approved by Government in April 2025. It emphasises the need for Transport- Oriented Development (ToD) by providing new sustainable communities at brownfield and greenfield locations along existing or planned high-capacity public transport corridors. The revised Framework will be critical in the context of meeting climate objectives and emphasising the intrinsic link between transport and spatial planning; particularly in the context of compact growth, demand management, transport orientated development and improved, people-centred urban centres. There has been close engagement between departments and relevant agencies on how this revision and its implementation can optimise outcomes from a transport and specifically a demand management perspective (see Recommendation 1 in Chapter 10). The National Planning Framework (NPF) and the National Development Plan (NDP) combine to form Project Ireland 2040. The NPF sets the Government’s vision and strategy for the development of Ireland to 2040, while the NDP provides the supporting capital investment plan for the period. Project Ireland 2040 supports sustainable mobility objectives through certain strategic outcomes not least the following: Compact Growth; Enhanced Regional Accessibility; Strengthened Rural Economies; Sustainable Mobility; and Transition to a Low Carbon and Climate Resilient Society. Like this Strategy, wellbeing, equality, and opportunity represent the core, and interdependent themes of Project Ireland 2040 (PI 2040). ![Figure from page 46](assets/p046-f01.webp) *Figure from page 46* The NPF, which was revised in 2025, is at the apex of strategic planning in Ireland and establishes the overall national planning policy strategy, with which other planning policy at the national level is aligned. ### Local Authority Climate Action *Pages 47–47* The National Development Plan Regional Spatial and Economic Strategies As part of PI 2040, the revised National Development Plan, which was reviewed in 2025, sets out the Government’s over-arching investment strategy with planned capital expenditure of over €100 billion for the period 2026-2030. The NDP allocates €24.3 billion for transport over this period to help develop active travel, bus and rail infrastructure, which will facilitate the transition to sustainable mobility and a low carbon transport system. An additional €2.25 billion in capital investment from windfall corporation tax receipts was made available to be allocated in the 2024 to 2026 period. This funding will facilitate the progression of important projects and enable more rapid development of key Programme for Government commitments under the NDP such as further delivery of immediate Public Transport projects such as Dart. The three Regional Assemblies form the regional tier of governance in Ireland and the Regional Assemblies implement the objectives of PI 2040 at a regional level through the Regional Spatial and Economic Strategies (RSESs). The RSESs are strategic plans and investment frameworks to shape future growth in the Regions, which support the implementation of the NPF and align with the investment priorities of the NDP. The Regional Assemblies also have oversight and coordination in relation to the compliance of statutory city and county development plans at a local policy planning level, ensuring these plans are aligned with the RSESs, and hence the NPF. Under the provisions of the Planning and Development Act 2024, regional spatial and economic strategies are required to identify sustainable settlement patterns and transportation strategies in urban and rural areas (including public transportation). This includes a statement of the actions being taken (or proposed) for the purpose of ensuring the effective integration of transport and land-use planning and how the regional spatial and economic strategy proposes to address matters identified in any relevant transport strategy of the National Transport Authority. Budget 2026 sets out €3.4 billion in capital funding for transport. This funding will support a number of initiatives including enhanced capacity on existing public transport routes and ongoing investment of almost one million euro per day in cycling and walking infrastructure. The NDP emphasises the need for a transport-led approach to housing development, allowing for the emergence of sustainable and well-connected communities where active travel is feasible and attractive for many localised journeys and good quality public transport is available to facilitate longer journeys into major urban centres. Local Authority Climate Action The success of policy on climate and transport relies heavily on the support of Local Government and the implementation capacity of Local Authorities (LAs). It necessitates the formulation and implementation of measures aimed at better aligning transport with spatial and land use planning, as well as the implementation of demand management measures such as, but not limited to, road space reallocation, kerbside management, the provision of active and shared mobility infrastructure and services, and the creation of low traffic/car free environments. The NDP also continues to support the protection and maintenance of the existing road network to ensure the safe and efficient travel of all road users across the country, as well as targeted new road investment to provide for regional connectivity and compact urban growth. The ongoing current funding requirements such as pay, maintenance and other operational costs associated with NDP-funded projects are not captured under the investment envelope outlined above. These measures are key to supporting mode choice where viable alternatives exist. The role of LAs in demand management cannot be overstated. Increased capacity will be needed to achieve the objectives of this Strategy and underpin the ambition expected from Local Authority Climate Action Plans. The critical link between travel behaviour, settlement patterns and planning, and the extent to which the NPF can advance the objectives of this Strategy, are discussed in more detail in Chapter 9 and inform a number of important recommendations in Chapter 10. ### Urban Renewal and Rural Development *Pages 48–49* LAs play a key role in climate mitigation and adaptation, as set out in Section 16 of the Climate Action and Low Carbon Development (Amendment) Act 2021. This requires, inter alia, each local authority to prepare a local authority climate action plan (LA CAP) specifying the mitigation and the adaptation measures to be adopted within their administrative area. The plans will be updated once every five years. Each local authority can deploy a bespoke approach to the style and structure of plans, but all LA CAPs must align with the national Climate Action Plan to ensure the delivery of our climate goals at local and community levels. signed for a period of six years (2023 – 2029) for the four CAROs to continue their work in supporting local government to coordinate and deliver climate actions, and to assist them in developing and implementing their LA CAPs. DCEE also funds upskilling and capacity building in climate action in the local government sector, with training developed for local authority staff and elected members, through the ongoing Local Authority Climate Action Training Programme. In 2021, the European Commission set up the EU Climate Neutral and Smart Cities Mission. Its aim is to support 100 cities to become climate neutral by 2030 and to pave the way for all cities in Europe to be climate neutral by 2050. In April 2022, Cork City and Dublin City were selected from over 300 applicants to be part of the initiative. Galway City was selected to be part of the Pilot Cities Programme in March 2023. The LA CAPs should see each local authority actively translating national climate policy to local circumstances, with the prioritisation and acceleration of evidence-based measures. This will assist in the delivery of climate goals at local and community levels and a reduction of greenhouse gas emissions in each local authority area. The cities’ success in the application process is a testament to the cities and demonstrates their determination to take effective climate action at a local level. Demand management measures are likely to play a significant role for these cities in their plans to deliver on this ambition. To support the development of the LA CAPs, the Department of Transport wrote to all LAs setting out the range of transport related measures to consider as part of their plans and the importance of linking measures to the metrics set out in the transport chapter of CAP 23. The CCAC in its 2023 Annual Review called on LAs to include specific actions and indicators in respect of accessibility, modal shift and active travel in their CAPs. It is clear that there are various levers and supports available to LAs which can be deployed to deliver demand management measures. The vital role of LAs as implementing authorities is rehearsed across all of the expert subgroup reports that input into this strategy and features in various key recommendations in Chapter 10, notably Recommendations 3 to 9 with a view both to enabling LAs to deliver and also providing guidance and tools to develop appropriate demand management strategies to support the achievement of the obligations placed on them under the Climate Act 2021. As part of its LA CAPs, each local authority is responsible for establishing Decarbonisation Zones (DZs). These are intended to be the focus for a range of climate mitigation, adaptation and biodiversity measures and will help local authorities to identify projects which will contribute to the delivery of the national climate objective. Aligned to this is the 2025 Programme for Government commitment to work with local authorities and State agencies to develop decarbonised zones in our urban areas, focusing on pedestrianisation, cycling facilities, and use of renewable energy across all transport modes. The Department of Climate, Energy and the Environment (DCEE) authorised funding for the recruitment of specialist staff to form the nucleus of climate action teams. Urban Renewal and Rural Development The Town Centre First (TCF) policy, which was published in February 2022, seeks to address the decline in the health of our towns and take measures to regenerate and revitalise them, in line with overarching objectives of the NPF. Under the policy, local communities are enabled to prepare a TCF Plan for their town. TCF recognises that increasing housing in towns will In addition, the DCEE funds Climate Action Regional Offices (CAROs). A Service Level Agreement totaling €12 million in funding was be a critical part of their regeneration - providing homes for people close to local services and amenities and unlocking the potential of vacant and underutilised buildings and sites. Twenty-six TCF Plans have been completed nationally as demonstrators of the TCF approach. more remote rural areas where population levels may be low or declining, on the other. The objective is aligned with the established planning approach in Ireland whereby considerations of social or economic need to live in a rural area, may be applied by planning authorities in rural areas that are under urban influence in order to prevent urban-generated sprawl. Social need arises where a person is an intrinsic part of a rural community, while economic need arises where a person works full or parttime in the rural area. In more remote rural areas, NPO19 allows housing to be facilitated subject to normal planning and environmental considerations and having regard to the viability of smaller towns and rural settlements. Additional plans are being developed for other towns and villages in the future, based on emerging best practice from the pilot phase. To drive the delivery of TCF, several supports have been established including Town Centre First Offices, Town Regeneration Officers (TROs), the alignment of various funding streams related to town regeneration and investment and the jointly funded TCF National Office. The TCF approach can play a significant role in supporting the objectives of both the RSES and overall National Planning Policy related to sustainable development, compact growth and strategic town and urban regeneration. Aligned to this are Rural Housing Guidelines, which were last issued in 2005 as Ministerial Guidelines under Section 28 of the Planning and Development Act 2000. These Guidelines provide that people who are an intrinsic part of the rural community, on the basis of an economic or social need, should be facilitated in all rural areas. In areas under strong urban influence, the policy is to direct urban generated housing into cities, towns and villages. In a rural area suffering persistent and substantial population decline the policy is to accommodate anyone wishing to build a house, subject to normal planning and environmental considerations. The Strategy can also support the objectives of Our Rural Future: Rural Development Policy 2021- 2025. The vision for this policy is a thriving rural Ireland which is integral to national economic, social, cultural and environmental wellbeing and development. An efficient and accessible transport system can support an Ireland which recognises the centrality of people (rather than cars), the importance of vibrant and lived-in rural places, and the potential to create quality jobs and sustain our shared environment. The NPF objectives together with the 2005 Guidelines, enable planning authorities to prepare and adopt local development plan policies for one off housing in rural areas. The NPF also supports the sustainable development of rural areas and recognises the need to ensure that they continue to be viable places in which to live, work and invest. Importantly, it also recognises that there are different types of rural area, noting in particular, that in areas close to cities and large towns, ‘overspill’ development pressure for housing can affect rural character and environmental quality. Equally, in more remote rural areas, the challenges faced by communities when population is aging or in decline are recognised, as is the impact this has on community and social facilities and local infrastructure. The alignment and mutually reinforcing nature of the objectives of this Strategy and those in the TCF and Rural Development policies is clear. There is also scope for reviewing the potential for greater integration of the structures in place to deliver across all three policy areas to optimise their impact and bring greater efficiencies in terms of the resources allocated towards delivery. A number of the expert sub-groups established to inform this Strategy considered the potential for leveraging these policies to advance demand management objectives (see related sub-group report) and some key recommendations in this regard are set out in Chapter 10. National Policy Objective (NPO) 19 of the NPF relates specifically to rural housing. This objective aims to ensure that a policy distinction is made between rural areas experiencing development pressure from urban areas, on the one hand, and ### Parking Measures *Pages 50–50* Parking Measures The Climate Change Advisory Council (CCAC) has also advocated for interventions in relation to parking. In line with Five Cities Demand Management Study, the Council in its 2023 Annual Review recommends parking restraints alongside the implementation of Part 18B of the Finance Act (No. 2) of 2008 (Parking Levy in Urban Areas) in the major urban areas of Cork, Dublin, Galway, Limerick and Waterford. The provision of car parking – location, availability, and cost - has a considerable role to play in influencing people’s travel decisions. Parking measures feature strongly in the NTA’s modelling for the Climate Action Plan, including the removal of free workplace parking spaces, a 400% increase from 2016 parking charges and a minimum charge of €5/hr introduced in all urban areas - by 2030. This demonstrates the significant potential that parking measures are modelled to have on travel behaviour. The Commission on Taxation and Welfare went a step further and recommended the introduction of an additional duty on non-residential car parking, both public and private - not limited to employerprovided car parking. Aside from levies and duties, alternative mechanisms to support less car-based commuting could include income tax changes and addressing subsidies and incentives to workplace car parking. As a result, CAPs 2023 to 2025 include a range of measures aimed at reducing parking provision in public places and in residential developments. They reference the Public Sector Climate Action Mandate, which commits to phasing out the use of parking at public sector buildings ‘that have access to a range of public transport services and active/shared mobility options for the majority of staff/visitors while providing that sufficient accessible parking is maintained for those with physical mobility issues’. In addition, through the lens of enhanced spatial and land use planning and the need to enable a systems change, CAP23 highlighted the importance of managing parking from the perspective of availability, form and price. It advocated for public authorities to adopt market pricing of car parking to avoid subsidising car use as well as a reduction of on-street car parking spaces where it complements measures to prioritise active travel and public transport and to improve the public realm. Powers related to public parking control rests with Local Authorities. In its 2024 Review, the CCAC also urged rapid availability of the national parking data inventory, proposed in this Strategy, and a review of existing legislation to support a reduction in car parking use where sustainable travel alternatives are available. Other policies and programmes have a direct impact on parking – notably the Department of Transport’s Active Travel Programme and the rollout of major public transport infrastructure such as BusConnects – which will involve the removal of a significant amount of on-street parking. Pilot studies are underway on kerbside management, including a Pathfinder project in Dublin City, which aims to develop more dynamic solutions to the management of street space including parking, loading bays etc. The CCAC, in its 2025 Review, state that the reallocation of road space is critical to support sustainable modes of transport and has also been demonstrated to contribute positively to local economies and wellbeing. However, it notes that this reallocation, which oftentimes involve a reduction in space for on-street parking or car lanes in favour of pedestrianisation, dedicated cycling infrastructure and public transport, can face initial opposition, requiring significant stakeholder engagement. CAP23 included a specific action to review Planning Guidelines to ensure that a graduated and performance-based approach is applied to the quantum and form of car parking, having regard to the proximity of urban centres and public transport services. To this end, new Sustainable Residential Development and Compact Settlements Guidelines (SRDCSGs) for Planning Authorities were published in 2024. These new guidelines include maximum parking rates (Specific Planning Policy Requirement 3) based on recommending a graduated approach to car parking for residential development – with a further requirement for car parking ratios to be minimised, reduced, or eliminated at locations that have good access to urban services and to public transport. Finally, the CCAC also recommended that the local authority of each city should introduce park and ride schemes along major arterial roads (by 1 January 2030), as well as deliver (by 1 January 2030) a plan to reduce the number of public city centre parking spaces. All of the aforementioned ### Fiscal Policies *Pages 51–51* recommendations were considered as part of the development of this Strategy and were discussed by a number of the expert sub-groups to inform the recommendations in Chapter 10. That said, in recent years, the tax system, across multiple tax heads (VRT, motor tax, Benefit in Kind, capital allowances, carbon tax) has been leveraged to dis-incentivise the use of high emission fuels and to influence the purchase of more fuel-efficient private cars including EVs. From a national policy perspective, parking is not managed centrally or nationally and does not fall within any one Government Department’s remit. It is a locally managed service, delivered by a range of different agents in different ways. Parking can be provided by public authorities, by private companies on behalf of public authorities or by commercial entities exclusively. Within the urban realm, parking can be provided on the street and off the street (adjacent to shops or within multi-storeys), at residential and commercial developments, at workplaces and transport hubs e.g., train stations and airports - to name but a few. Significant parking is also available at large out-of-town retail parks, industrial and enterprise zones, and at large tourist sites. In addition to the above, other fiscal measures that can improve network performance, provide investment for transport enhancements, or help to manage peak-period congestion, where needed, are tolls, road user charging, parking charges, low emissions or clean air zones, mileage allowances, congestion charging, workplace parking levies, and incentives for sustainable business travel. While this is a non-exhaustive list, such measures, along with excise and carbon taxes, are aligned to the user and polluter pays model and can assist in meeting various policy and operational objectives while supporting the ongoing economic and fiscal sustainability of the State. These measures have proven very effective in optimising network efficiency and are among some of the case studies set out in Appendix 1. A critical issue in designing a credible policy in relation to parking is the lack of data. Secondly, there is no single mechanism that can be deployed to effect a large-scale change in the quantum of available parking nationally so developing a consistent and coherent approach in a fragmented space is challenging. For these reasons, a multifaceted approach is required which should be deployed at various levels, based on a number of key principles as outlined in CAP23. Informed by the sub-group discussions and the work done already in this space, a number of impactful recommendations are made in Chapter 10, notably Recommendations 3, 5, and 30, to begin to chart a significant change in parking policies at all levels. As highlighted by the analysis done by the Parliamentary Budget Office11 and the Fiscal Advisory Council12, some aspects of climate policies (e.g., transition to EVs) will reduce Exchequer revenues. As the Tax Strategy Group (TSG 18/07) noted – ‘The structural shift to lower CO2 emitting vehicles, and in particular any significant take up in Electric Vehicles (EVs), will severely challenge the revenue base from vehicles across fuel excise duties, motor-tax and VRT’13. As cited later, the Commission on Taxation and Welfare also examined these issues and made a number of recommendations in relation to transport in the context of mutually achieving climate goals and long-term financial sustainability. For the purposes of this Strategy, there is a need to examine fiscal measures in the round from the perspective of their proven capacity to drive behavioural change, taking account of the impacts on Exchequer revenues over the medium to longer term. Fiscal Policies Traditionally, fiscal measures relating to transport were used to raise revenue for the Exchequer. While the revenue raised was not ring-fenced for transport per se, the taxes and charges applied to private car use largely reflects the under recognised costs to the State of providing and maintaining related infrastructure, particularly the improvement and maintenance of roads and streets, and related services such as lighting and signage. While most revenue from transport-related taxation is not hypothecated, it is intended that revenue from carbon taxes will be ring-fenced for just transition and other climate initiatives. Typically, vehicle taxes are levied on ownership while fuel excise and carbon tax are based on usage. The potential for fiscal measures to be deployed in a demand management context is explored 11 Parliamentary Budget Office - An Overview of EVs and Their Impact on the Tax Base 12 What-climate-change-means-for-Irelands-public-finances-Casey-and-Carroll-2023-Irish-Fiscal-Advisory-Council.pdf 13 Energy and Environmental Taxes - TSG 18/07 ### Educational Sector *Pages 53–54* further in the report of the Fiscal Measures sub-group with various recommendations set out in the report and synthesised in a number of recommendations in Chapter 10, notably Recommendation 2. Any proposals of a fiscal nature that may emerge from these recommendations in the future will be informed by social, economic and distributional analysis and will ultimately be the subject of Government decision. of Education and Youth (DEY), is transporting over 181,000 children, including over 24,400 children with special educational needs, to and from primary and post-primary schools every day. This also includes for school transport scheme services which are being provided in the current school year to over 5,800 children who have arrived in Ireland from Ukraine. Under the Scheme, 100 million sustainable kilometres are travelled per year – the equivalent to 2,500 journeys around the world. The total cost of the scheme in 2025 was €537m. Educational Sector Except for 2020, due mainly to the impact of the pandemic, there has been an ever-increasing demand for the service. A Review of the School Transport Scheme ‘School Transport 2030’, which was recently completed, marks the largest review of the School Transport Scheme since it was established in 1967. The review encompassed the School Transport Scheme for Children with Special Educational Needs as well as the Primary and Post-Primary School Transport Schemes. It considered how each element of the schemes currently operate, having regard to eligibility criteria, trends, costs, availability of drivers, and overall effectiveness in meeting key objectives. Education is a significant driver of transport demand in Ireland. It also presents a significant opportunity to effect behavioural change and establish sustainable travel habits among young people from Early Learning and Care to third level. The school journey also presents an ideal way for children to take part in regular physical activity, to interact with their peers, and to develop good road sense as pedestrians and cyclists. Active modes also help to improve children’s alertness. However, as things stand, the provision of educational services generate a significant number of trips across the country every day – with journeys to education accounting for 19% of daily trips (NHTS: 2024). One of the key metrics in CAP23 for delivering abatement in the transport sector is to shift 30% of all Escort to Education car journeys to more sustainable modes (public transport or active travel, either accompanied or unaccompanied). The review was conducted for the purpose of examining the broader effectiveness and sustainability of the Scheme, ensuring that it serves the students and their families adequately. The review built upon commitments on school transport within the Programme for Government, including examining options to reduce car journeys and assessing how the School Transport Scheme can work in liaison with the Safe Routes to Schools Programme. The review has also examined the potential for integrating different strands of the scheme and a more co-ordinated approach with other Government Departments that also use transport services. ![Figure from page 53](assets/p053-f01.webp) *Figure from page 53* In relation to the Green Schools Programme, the Travel theme is funded by the Department of Transport, and is run by An Taisce, supported by the National Transport Authority. As part of this Programme, participating schools create action plans and set travel targets, with the ultimate aim of increasing the number of pupils walking, cycling, scooting, carpooling, using public transport or using park ‘n’ stride instead of the private car on the school run. The Green-Schools Travel Programme was rolled out nationally in September 2008 and has worked, or is working with schools Safe Travel to School: A Child’s Perspective Key enablers of sustainable mobility at school level are the School Transport Scheme, the Green Schools Programme (specifically the Travel theme), the Safe Routes to School Programme and the National Strategy on Education for Sustainable Development – ESD to 2030. In the current year, the School Transport Scheme, which is operated by Bus Éireann (BÉ) on behalf of the Department ![Figure from page 54](assets/p054-f01.webp) *Figure from page 54* around the country to promote sustainable travel to school. 336 schools participated in the Green Schools Travel programme in 2025. Cycle parking was provided at 44 schools in 2025, and scooter parking was provided at 16 schools. The Safe Routes to School Programme (SRTS), which was launched in March 2021, is supported by the NTA and the Departments of Education and Youth. The SRTS is designed to encourage pupils and students in primary and post-primary schools to walk and cycle. It has three aims: An Mhodhscoil after the School Street was introduced. The Guidance also clarifies the difference between School Streets and School Zones and includes consultation and design recommendations. ᴏ To accelerate the delivery of walking/scooting and cycling infrastructure on key access routes to schools. The SRTS Programme, combined with investment in active travel infrastructure, has the potential to embed healthy travel behaviours at an early age. Consequently, over the period 2020 – 2024, significant progress has been made on delivering active travel infrastructure, including 664 kilometres of walking infrastructure, 399 kilometres of cycling infrastructure and 291 kilometres of greenways. Approximately 200km of additional walking and cycling infrastructure were added to the network in 2025 through the NTA’s Active and Sustainable Transport Investment Programme and TII’s National Greenways Programme. ᴏ To provide “front of school” treatments which will enhance access to school grounds. ᴏ To expand the amount of bike parking available at schools. The aforementioned Active Travel Programme also funds projects under the SRTS Programme. Schools which applied to the Programme in 2021 are being selected in tranches for inclusion in the Programme. Over 900 schools applied, and following the announcement of Round 4 in December 2025, over 500 of these schools are now active in the Programme including 156 which have had projects completed. School Streets is also part of the SRTS – an initiative that restricts general traffic outside schools during drop-off and pick-up times. In the right location, School Streets can help address a range of issues associated with vehicle congestion at the school gate. As well as the beneficial impacts of sustainable mobility on school-going children and third level students, the education sector, in conjunction with the local planning authorities, has a considerable role to play in reducing unsustainable transport demand through the provision of effective mobility management plans for schools and third level institutions and building programmes that locate or develop existing schools and institutions in a way that restrains, not accelerates transport demand, such as the development of student specific accommodation – thus negating the need for travel. In September 2025, the NTA published School Streets Guidance which outlines how to plan, trial, and implement School Streets, with case studies from several Irish local authorities. The following shows the before and after effects of a School Streets initiative at An Mhodhscoil, Limerick City. ![Figure from page 54](assets/p054-f02.webp) *Figure from page 54* Noting that approximately 50% of third level students commute over 5km to college, localised engagement to ensure the effectiveness of sustainable transport links between transport operators and universities continues to be an important measure for negating unsustainable transport demands from students. In addition, ‘digs’ accommodation through the rent-aroom scheme and private student specific accommodation are a sustainable and important element of the student accommodation supply. The front of school environment at An Mhodhscoil, Limerick City before a School Street was implemented. ### Business and Enterprise *Pages 55–56* The Generators of Demand (People) subgroup focused on a wide range of potential measures in the education sphere that could impact positively. These are summarised in Chapter 9 and amplified in Chapter 10’s set of recommendations. (CSRD) are placing much greater focus on climate and environmental decisions by businesses in Ireland and internationally. Transport emissions are captured directly and indirectly and are becoming an increasing focus of attention by large enterprises, particularly in terms of Scope 3 emissions (i.e., emissions a firm is responsible for but which happen outside of its walls and are controlled by other parties up and down the value chain). In terms of Scope 1 emissions, many companies in Ireland are already making significant strides to reduce carbon footprint from their own transport fleets (e.g., An Post, DPD etc). A second National Strategy for Education for Sustainable Development – ESD to 2030– was published in June 2022 and aims to ensure that all learners have the knowledge and skills needed to promote sustainable development. ESD to 2030 is co-sponsored by the Department of Education and Youth, Department of Further and Higher Education, Research, Innovation and Science and Department of Children, Disability and Equality and so covers education at all levels and beyond into the non-formal youth education sector. It is clear that Ireland’s sustainability credentials are increasingly important in attracting foreign direct investment (FDI) and talent into the country. This represents a major competitive opportunity for Ireland in leading the way on decarbonising transport in particular across the enterprise sector. In the National Competitiveness and Productivity Council’s (NCPC) 2023 Scorecard14, it was identified that Ireland lags behind competitor countries in terms of environmental sustainability. It also noted that the slow delivery of infrastructure and the backlogs in the planning system are key challenges for Ireland across several sectors. The Department of Education and Youth has published a Sustainability Toolkit to support schools adopting a Sustainability Policy Statement in line with the School Sector Climate Action Mandate. The toolkit comprises a self-assessment audit, a guidelines document and a template policy statement. The audit asks schools to rate itself in terms of 1) promoting sustainable transport including walking and cycling to school and b) engagement with the Safe Routes to School programme. The guidelines document includes information about active travel and the Safe Routes to School programme. As a result, and as outlined in the Government’s White Paper on Enterprise, 2022 – 203015, the integration of decarbonisation and net zero commitments has been identified as a priority. The delivery of public transport infrastructure has been an ongoing issue with delays in the planning system resulting in significant delays in the rollout of many planned projects such as BusConnects. That said, many planning related delays will be alleviated in the future with the introduction of statutory timelines for decisions in the new 2024 Planning Act to go alongside increased resourcing for An Coimisiún Pleanála and LAs. A quarterly ESD to 2030 Newsletter issues to all schools and regularly contains articles and information for schools about sustainable transport initiatives and projects. ESD funding for schools has included projects in the field of sustainable transport e.g. bike libraries. Business and Enterprise This Strategy has a two-fold focus in respect of business, and enterprise. It identifies the role that related activities have in generating transport demand, including the contribution they can make to reducing this demand, but also identifies the inherent economic opportunities in this regard - helping these sectors to contribute, as required, to the national vision of a net zero economy by 2050. The advent of regulatory levers notably the Corporate Sustainability Reporting Directive The planning system is not the only delivery issue, however. Delays can arise due to a range of factors e.g., the cyclical nature of investment, multiple large-scale projects entering the system at the same time, capacity to deliver once approved, time taken to comply with the Infrastructure Guidelines, and that a level of prioritisation will be required in the future to 14 final-ireland-s-competitiveness-scorecard-2023-pdf-copy.pdf 15 White Paper on Enterprise, 2022 – 2030 enable project delivery under the NDP given wider systems capacity issues, as highlighted in the ESRI’s NDP Report16. Generators of Demand (Freight) provide some useful examples of how adjustments to the logistics model can make a significant impact on congestion and carbon emissions, as well as positively impacting the bottom-line. Such issues are often identified by the Department of Enterprise, Tourism and Employment who oversees the implementation of nine Regional Enterprise Plans (REPs). These Plans facilitate regional stakeholders to work collaboratively to identify growth opportunities, recognise vulnerabilities, and in response strengthen the regional enterprise ecosystem.These are bottom-up plans, developed by regional stakeholders including the Local Authorities, the enterprise agencies, local enterprise offices, regional skills forum and education and training institutes in each region. The Plans focus on undertaking collaborative initiatives that can help strengthen the regional enterprise ecosystem thereby realising enterprise growth and supporting job creation in each of the nine regions across Ireland. They are complementary to the ongoing work of the various bodies such as the IDA, Enterprise Ireland, Local Authorities, Local Enterprise Offices, Regional Assemblies, and could be leveraged to support the principles of this Strategy and the NPF. Work-related journeys currently account for approximately 25% of all travel in Ireland. During the Covid Pandemic, working from home became the norm for large cohorts of workers and this had a significant impact on travel demand. While there has been a gradual return to the office, employers and employees have experienced the benefits of a blended approach. The NTA modelling for the Climate Action Plan assumes a continuation of this blended approach with white collar commute trip rates reduced by 25% for example. Government has put in place various supports for remote working, with the public sector itself leading by example. Among the main actions under the Making Remote Work: National Remote Work Strategy, which was published by Department of Enterprise, Tourism and Employment (DETE) in 2021, is mandating that home and remote work should be the norm for 20 percent of public sector employment. Making Remote Work reflects how work can occur in lots of places - at home, at a hub, or on the move. A key action for the development agencies under the strategy is to promote remote work amongst businesses. This includes raising awareness of remote work training and advising on the skills interventions required for the successful adoption of remote work. It also commits to mapping and investing in a network of remote working hubs across Ireland. Business and enterprise are a significant generator of vehicle use. In 2018, manufacturing alone was directly responsible for 227,052 jobs in Ireland while also indirectly supporting 182,000 additional jobs. Due to their nature, many manufacturing jobs are located in areas where public transport is not readily available which means people use their car to travel to work. Additionally, the manufacturing sector has a high export orientation which adds to freight kilometres travelled. Through Our Rural Future, Ireland’s rural development policy, the Department of Rural and Community Development and the Gaeltacht (DRCDG) has led on the delivery of a national network of remote working hubs and launched a booking platform in 2021 - https://connectedhubs. ie/ - which provides information on the location of, and facilities available at remote working hubs throughout Ireland. As part of the strategic development of Ireland’s hub sector, DRCDG in conjunction with DETE are leading on the formulation of a National Hub Strategy. As part of this Strategy, DETE will lead on the enterprise pillar while DRCDG will be the lead department for coworking in hubs and digital services at Broadband Connection Points. The retail sector is also a significant generator of travel demand, both in terms of the location of retail outlets – particularly large retail centres – and also in terms of product delivery to and from retail outlets. Planning guidelines play a key role in the decisions around retail locations. Stronger alignment of decisions with the NPF objectives for compact growth in particular is key. There are also significant opportunities for rationalising and decarbonising deliveries including home deliveries, with many companies already seizing the opportunity (e.g. An Post). A key driver of congestion in urban areas are goods delivery requirements set by traditional logistics models. Appendix 1 and sub-group reports (notably 16 The National Development Plan in 2023: Priorities and Capacity ### Tourism *Pages 57–57* It is worth noting, however, that research in this area suggests remote working – despite the many benefits - may not have the impact on emissions that was initially anticipated. Trends in remote working will need to be closely monitored to fully appreciate the level of potential it could have – or otherwise – in reducing transport demand as reflected in research insights from the ESRI’s NDP Report (2024). vehicles are also ICE vehicles meaning these journeys are contributing to our carbon emissions. In addition to car rental, approximately 600,000 holidaymakers use private coach hire as part of a package or group holiday. Government is already working with businesses to assist them in working to achieve more sustainable business practices. For example, Fáilte Ireland provided tourism businesses with the Carbon Calculator for Businesses19 while ZEVI are working with the car rental industry to support the move to zero-emissions vehicles, as well as working on destination charging at major tourist attractions. Tourism Tourism is also a significant contributor to the Irish economy in terms of revenue raised by tourists visiting Ireland but also in terms of the number of jobs it creates in Ireland. In 2019, the tourism sector generated approximately €9.5 billion in revenue17 and supported an estimated 284,800 full-time equivalent jobs18. That said, tourism is a significant generator of trips. In economic terms, tourism remains hugely important and provides a significant contribution to the Irish Exchequer. In 2024, there were 6.6 million overseas visitors to Ireland, resulting in €6 billion in export revenue, while the total value of domestic overnight trips by residents in Ireland was estimated at €3.6 billion. It is estimated that Ireland’s tourism sector accounts for around 3.7% of all tax revenue. As well as inbound tourists, those that are outbound also generate significant travel activity, particularly when travelling from large transport hubs like Dublin Airport and Dublin Port. For example, Dublin Airport facilitated more than 36.4 million passengers in 202520, split relatively evenly between departures and arrivals. It is critical that appropriate steps are taken to encourage sustainable travel choices, and discourage private car use, among all the millions of people travelling to and from such hubs. In 2024, almost 41 million passengers were collectively handled by the airports of Dublin, Cork, Shannon, Kerry, and Knock21. The Tourism Policy Statement contains a section dedicated to reducing emissions in transport, and notes that increasing the use of public and active transport by tourists is critical to achieving decarbonisation in the sector. It advises that larger tourism attractions will examine the feasibility of using sustainable transport modes and that tourism agencies will explore the development of an online tool to enable decarbonised touring. Among the measures cited as helping to reduce transport emissions are orientation plans for tourists, and the integration of transport and access measures into all Destination Experience Development Plans (DEDPs). The National Tourism Policy Statement, A New Era for Irish Tourism, sets out a clear strategic direction for the sector to 2031. The policy prioritises increasing visitor numbers, boosting revenue, and supporting employment. It reinforces tourism’s role in balanced regional development, focusing on less mature areas and unlocking rural potential through targeted investment in tourism infrastructure. It promotes sustainable transport for visitors, encouraging public transport, active travel, and low-carbon options while ensuring convenient access to key attractions. Transport is one of the first experiences tourists will have when visiting Dublin, highlighting the importance of direct links to Dublin City Centre. An easy to use, attractive public transport system is important in influencing how visitors opt to travel and see Ireland. While the majority of tourists staying in Dublin use public transport for their stay, 33% of visitors to Ireland use the car option if travelling beyond Dublin. Most rented Similarly, large sporting events, festivals and conferences are a major generator of tourism activity and revenue but also travel demand, some of which can be managed with carbon and other impacts mitigated with proper planning, tools and guidance. 17 Failte Ireland - Key Tourism Facts, 2019 18 CSO - Irish Tourism Sector, 2019 19 Climate Toolkit 4 Business 20 https://www.daa.ie/wp-content/uploads/2025/01/daa-Monthly-Statistics-December-2024.pdf 21 Aviation Statistics Quarter 4 and Year 2023 - Central Statistics Office ### Accessibility and Inclusion *Pages 58–59* The Generators of Demand (People) considered many of the relevant policies in place across the business, enterprise, retail and tourism sectors and identified a series of measures that could impact positively from a demand management perspective. These are set out in the separate report, summarised in Chapter 9 and synthesised in a number of key recommendations in Chapter 10. ![Figure from page 58](assets/p058-f01.webp) *Figure from page 58* Sports Sector Dublin Bus Independent Travel Support Nearly half of adults in Ireland regularly participate in a sport and it is a goal of the National Sports Policy 2018-2027 to increase participation further. Also, over half of the population are regularly involved socially in sport through volunteering, club membership and/or attendance. Naturally, this level of participation does give rise to significant transport activity. Many national governing bodies, as part of their responsibilities around sustainability, are already taking steps to encourage employees, players, and fans to take more sustainable and active journeys. For example, the GAA’s Green Club Programme, which was established in December 2022, aims to promote sustainability awareness and to support Gaelic Games clubs and communities in taking simple and effective sustainability action in their grounds and activities. The Programme is structured around a range of themes including Travel & Transport. Other initiatives include communications campaigns like the ‘Munster March’. This campaign, which was launched at the end of 2023, encouraged Munster supporters of all ages to walk the one mile from Limerick City Centre to Thomond Park to help raise awareness of the club’s commitment to environmental sustainability and climate action. can fully participate in public and community life, while inclusion means that everyone has the opportunity to realise that accessibility. The NPF also acknowledges that ‘liveability’ or quality of life is key to attracting people to live within compact cities, towns and villages. In this regard ‘place-making’ is central to the implementation of both the TCF policy and the Government’s new housing action plan Delivering Homes, Building Communities, 2025. For places to be successful, they need to be well connected, ensuring all users can move about with ease by incorporating the principles of Universal Design22 and providing attractive spaces in which people can meet, shop, work and exercise. Universal Design is the design and composition of an environment so that it can be accessed, understood and used to the greatest extent possible by all people, regardless of their age, size or disability. This includes public places in the built environment such as buildings, streets or spaces that the public have access to; products and services provided in those places; and systems that are available including information and communications technology (ICT). The Centre for Excellence in Universal Design is a state funded centre dedicated to promoting Universal Design with a wide range of design guidance information available on their website. Sports Action Plan 2024 - 2027 acknowledges that the sport sector must progressively move ever closer towards carbon neutrality in the years ahead. As such, it sets out a range of actions that will support and guide the sport sector to achieving these ambitious goals. The aim of this Strategy is to build on best practice across this sector and to replicate learnings to encourage a consistent message from this highly influential sector. The implementation of these principles is a critical success factor for sustainable mobility, creating ‘people centered’ rather than ‘car-centered’ communities. Accessibility and Inclusion It is anticipated that this Government’s new Towns and Cities Fund, which is replacing the Urban Regeneration Development Fund (URDF), From the perspective of mobility, accessibility is about ensuring that the transport system and local environment is designed so that everyone 22 https://universaldesign.ie/about-universal-design/the-7-principles will realise the objective for well-designed public realms, with the close alignment of planning and investment reflected in a range of projects to support more compact and sustainable development in Ireland’s five cities and other large towns. High levels of accessibility require the creation of street networks (including paths through open spaces or between buildings) that are permeable, allowing users to move through an area directly and via many different routes. This is particularly important for disabled people and the elderly. Similar investment is provided to smaller urban centres, with a population of less than 10,000, through the Rural Regeneration and Development Fund (RRDF). documents which should be utilised in design to ensure that the infrastructure is designed in an accessible and equitable way. The quality of the journey undertaken is also important. Street environments that feel safe and comfortable and are free of impediments are critical to promoting increased pedestrian and cyclist activity, as well as increasing accessibility for disabled people, particularly those with visual impairments or sensory issues. DMURS highlights how in recent decades the prioritisation of private vehicle movement in most Irish towns has resulted in a legacy of street environments that are hostile to pedestrians, and make journeys challenging for older people, children, and women in particular. The National Human Rights Strategy for Disabled People 2025-2030 is the most recent framework for policy and action to address the needs of people with disabilities and the key vehicle for progressing the implementation of the United Nations Convention on The Rights of Persons with Disabilities (UNCRPD). The Programme for Government 2025 placed a strong emphasis on launching this new National Disability Strategy, which outlines a forward-looking vision through to 2030. It embraces a whole-of-Government approach to advancing the implementation of the United Nations Convention on the Rights of Persons with Disabilities. Responsibility for delivering the Strategy’s commitments is shared across Government Departments and State Agencies, each accountable for actions within their remit. These commitments are structured around five central Pillars: Inclusive Learning and Education, Employment, Independent Living and Active Participation in Society, Wellbeing and Health, and Transport and Mobility. The Department of Transport has three actions in the Domestic, Sexual and Gender Based Violence (DSGBV) Implementation Plan 2024 reflecting those actions of relevance in the SMP. This Strategy looks to reinforce accessibility and inclusion principles within the existing transport system and service environment. Safety is also a key determinant of whether or not people use public transportation. The study ‘Travelling in a Woman’s Shoes’ was designed to investigate the needs and travel behaviours of women. Transport is often seen as gender neutral:, however a growing body of international research is showing that this is often not the case. Women rely heavily on their cars. Women tend to have more caring responsibilities and are more impacted by safety issues. As such, men and women can have different needs, constraints, and expectations for using transport. This Strategy has been considered through a gender lens, ensuring recommendations have taken all genders into account from a social inclusion and accessibility perspective. Informed by the UNCRPD and national policies on disability, the Design Manual for Urban Roads and Streets (DMURS) requires that new streets networks be designed to be permeable and legible, in particular for sustainable modes. Guidance on improving accessibility, and retrofitting existing environments, is also assisted through the NTA’s Permeability Best Practice Guide and Walkability Toolkit and through the Infrastructure Equality Guidance, which are intended for use on all active travel schemes funded by the NTA. This latter set of guidance, which was published in May 2024, presents a number of common design issues to be aware of when designing or upgrading an active travel scheme and outlines the different guidance Older persons and particularly older women can face additional barriers in accessing suitable transport, with the ‘Reframing Ageing’ study published by Age Action identifying that nearly 50% of women aged 65+ and 28% of men aged 65+ in rural areas report ‘unmet’ transport needs. This can have compounding health impacts and lead to social and political exclusion. The inclusivity of our transport system for older persons is considered within the Strategy and its Implementation Plan. ### Health-Related Policies *Pages 60–61* Furthermore, ethnicity and religion can play a role in people’s perceived safety on public transport23, particularly those with concerns related to hate crimes. For religious people who have a marked religious identity through clothing there is an increased risk of harassment or discrimination24. Compared to Catholics, members of minority religions in Ireland report somewhat higher discrimination rates in the workplace and in public and private services. Research interviews with Muslim men and women in Dublin outlined the discriminatory practices they felt they experienced from transport staff as a result of religious and racial profiling, which took the form of poor or no service provision25. Equally, members of the travelling community can have greater barriers to accessing sustainable transport alternatives, especially if traveller-specific accommodation is located in peripheral locations with unsafe active travel connectivity and poor public transport services from sites to local towns. Refugee centres and sites are often hard to reach due to more limited transport options to these areas (Dublin-centricity) with asylum seekers needing to travel great distances to central places to reach services and appointments. Ensuring that our public transport system is accessible, inclusive and safe is of vital importance to the success of the Strategy and ensuring the services provided are fully aligned to the core values of the Public Sector Duty. While pollutants originate from several sources, the transport sector accounts for more than 35% of nitrogen oxides (NOx) and 10% of fine particulate matter (PM2.5). Sources of NOx include the burning of fossil fuel in vehicle engines and by stationary combustion sources, such as industry and home heating. In towns and cities, where people are often close to traffic, vehicles are responsible for a significant portion of localised NOx levels. Vehicle engines also emit PM2.5 directly, and brake and tyre wear also contribute to levels of PM10 in the air. While new vehicles emit significantly less air pollutants than older ones, rising traffic levels also mean that where there are high levels of congestion, or where it is difficult for transport derived air pollutants to disperse (such as in heavily built-up city streets), it is becoming increasingly challenging to maintain high standards of air quality for people nearby. It was estimated that the external health costs attributable to nitrogen dioxide and particulate matter in Dublin was €80 million in 201526. In 2023, to address the environmental and public health issues associated with air pollution, a new Clean Air Strategy for Ireland was published by the Department of Climate, Energy and the Environment. The Clean Air Strategy seeks to enhance and protect the quality of air that we breathe through a comprehensive suite of cross Government policies and measures that targets all sources of air pollution, including those from the transport, agriculture and residential sectors. Amongst its key commitments is an ambition to work towards World Health Organisation (WHO) target values by 2040. The WHO guideline values are set for the protection of health and are generally stricter than the comparable EU standards. Health-Related Policies An efficient and sustainable transport system can have positive impacts on our health in several different ways. Air pollution, including pollution caused by vehicles, is known to have adverse impacts on human health. The World Health Organisation (WHO) has called air pollution the greatest environmental risk to human health. In Ireland, it is estimated (in 2025) that 1,700 annual deaths could be attributed to the impacts of air pollution as well as causing, or exacerbating the effects of, illnesses such as stroke, heart disease, lung disease, and lung cancer. The World Health Organization (WHO) also provides evidence of links between air pollution and type 2 diabetes, obesity, systemic inflammation, Alzheimer’s disease and dementia. While existing policy measures will go a long way towards reducing transport’s contribution to these pollutants, the key role that demand management can play in addressing air pollution issues is recognised in the Clean Air Strategy. Physical inactivity is also a major public health issue, with estimates of circa €1.5 billion annually27 being attributed to incurred costs for our health system. Ireland’s National Physical 23 GDA Transport Strategy, 2022 - 2042 - Preliminary EqIA 24 IHREC Annual Report, 2017 25 Islamophobia In Dublin: Experiences and How to Respond 26 Dey, S., Caulfield, B. and Ghosh, B., 2018. Potential health and economic benefits of banning diesel traffic in Dublin, Ireland. Journal of Transport & Health, 10, pp.156-166. 27 https://assets.gov.ie/15979/04e0f52cee5f47ee9c01003cf559e98d.pdf Activity Framework 2024-2040, which sets out a clear ambition to position Ireland as Europe’s most physically active nation by 2040. The Framework concentrates improvement across eight priority areas including Active Travel and Active Urban Design. alone can generate up to five times the retail spends for the same area of car parking. In Dublin, the reimagining of Blackrock Village saw a 25% increase in available public space which resulted in a 40% reduction of car trips on Blackrock Main Street, a dramatic increase in bicycle use, increased revenue for local business, and a significant improvement in the ‘health’ of the street with better air quality, safer streets, and a more relaxed overall atmosphere. A more physically active Irish society is one that is imbued with a physical activity culture where choices to be physically active are facilitated and enabled by design across the range of policy areas which interact with daily life. As well as the beneficial health impacts of switching to a low carbon transport system, the health sector has a considerable role to play in reducing transport demand through the provision of online and digital services, effective mobility management plans for reducing traffic to existing hospital and health centres and through building programmes that locate new services with the objectives of this Strategy in mind. While our adult population is one of the more active in Europe28, only 15% of Irish children meet the WHO recommended physical activity guidelines. Furthermore, the number of children actively travelling to school has declined since 2018. Achieving a behavioural shift towards more active forms of travel where possible, particularly for school children, will also have the benefit of improving societal health and easing the burden on our healthcare system over the long-term. The close alignment of health benefits and demand management/supply side measures were discussed across many of the expert subgroups. A 2025 position paper by the Climate and Health Alliance entitled ‘Active Travel: The Magic Pill’ explains that ‘active travel gets us moving by embedding physical activity into daily life in a way that recreational or fitness-focused physical activity does not’. To help quantify the scale of benefits that can be attributed to active travel, the report outlined how walking, wheeling and cycling in the Dublin Metropolitan Area saves the HSE €64.5 million, equivalent to the cost of over 1,170,000 GP appointments. The Generators of Demand (People) sub-group in particular considered the range of potential measures that could impact positively from a demand management perspective. These are set out in their separate report, and synthesised in a number of key recommendations in Chapter 10 (notably Recommendations 13 to 16). In summary, there are clearly a wide range of national policies and programmes already in place that can and do support the objectives of this Strategy. There is also potential to do more and embed the principles of demand management in the planning and decision making at national and local level. Certain sectors are significant generators of travel demand and there is now an opportunity through this Strategy to assess the scope for change and provide guidance in that regard. There is also significant well-being benefits to be achieved through a closer alignment of polices particularly on health, accessibility and inclusion, which can be captured in the evaluation framework described in Chapter 12. While the Covid-19 Pandemic was an extremely difficult time for all, some positives did arise from that period. In an effort to allow businesses to reopen and for people to meet in a safe manner, towns and cities all over Europe began giving back public space to pedestrians and cyclists. The net result was making our town and city streets more people friendly places, with increased footfall to our high streets and greater levels of active travel. Mobility is a key part of healthy placemaking, and towns and cities where walking and cycling is prioritised can bring major health, environmental and economic benefits. The specific potential to advance the objectives of this Strategy through these policies are explored in more detail under subsequent chapters and in the sub-group reports, with specific recommendations identified in Chapter 10. The optimisation of road space across users such as pedestrians, cyclists, shared services and public transport (including taxis) can bring economic benefits through increased footfall on our high streets. Research has shown that cycle parking 28 https://www.sportireland.ie/sites/default/files/media/document/2023-08/2022%20ISM%20Full%20Report%20200829.pdf ## Communications and Engagement ### Communications and Engagement *Pages 62–65* ![Figure from page 62](assets/p062-f01.webp) *Figure from page 62* ## 6. Communications and Engagement Effective consultation, engagement and communication initiatives will be key to increasing public and stakeholder support for the recommendations identified in this Strategy. Public opposition has been highlighted as a challenge across all of the sub- group discussions, and indeed in the context of the wider implementation of the Government’s Climate Action ambitions. The Public Engagement Strategy also supports the ongoing work of the Department’s Communication Strategy and the flagship Your Journey Counts campaign. The objective of the ‘Your Journey Counts’ campaign, which was launched by the Department in August 2023, is to encourage more members of the public to make the switch to sustainable transport modes. Your Journey Counts supports this behavioural shift by encouraging the public to take public transport and walk, wheel, or cycle whenever possible. Your Journey Counts is an integrated multi-platform communications campaign. The campaign appears across TV, radio, print (local and national), social media, digital and Out of Home advertising formats. Subsequent phases of the campaign focused on rural communities, employing tailored messaging focused on improvements in regional and local public transport links; socially native, short form content to appeal to younger demographics online; and reward messaging around passenger figures and emissions saved in public transport hubs and invehicle. A dedicated campaign landing page was developed in both English and Irish, to highlight investment in public transport, active travel and supports available to people in helping them make the switch. Given the significant impact that communications and engagement can have in promoting transformational change, the Department of Transport has developed high-level strategic approaches to communications and engagement in relation to climate action and sustainable mobility, specifically in relation to efforts to reduce transport related carbon emissions. On engagement specifically, and in line with the OECD’s recommendations in its 2022 Report, it is clear that a robust strategy around public engagement is needed to realise our climate policy objectives, to deliver the infrastructure and services required, and to achieve buy-in from the public around necessary behaviour changes and individual transport choices that will facilitate these aims. This was reflected in specific actions in CAP23 (TR/23/69(TF)) and the Government’s Sustainable Mobility Policy (SMP). In this context, the Public Engagement on Climate Action and Sustainable Mobility: Strategic Approach 2024-25 was published in May 2024. A successor strategy will be prepared in 2026. The main objective of the Public Engagement Strategy is to build awareness and inspire ownership for action and behavioural change in individuals, private organisations, and public sector bodies, whilst also increasing support and acceptance for the delivery of critical sustainable mobility infrastructure. Supported by robust evidence and market research, the Strategy and its implementation will provide very useful insights in relation to demand management measures and will inform how best to engage communities in the design and implementation of these measures over the coming years. Building awareness around the services and incentives that already exist is also a clear goal, bringing attention to progress that has been - and will be - made in public transport as well as highlighting all the positives to help counteract established negative beliefs. As part of post-campaign analysis, B&A Research conducted a nationally representative survey demonstrating that 82% of respondents said that the campaign increased their understanding of the need to use more environmentally friendly transport options; 74% stated that the campaign made them consider transport carbon emissions; 2 in 5 report that they walk, cycle, or use public transport more now than before the campaign and 1 in 3 asserts to have replaced private car travel as a result of the Your Journey Counts campaign. As part of the overall suite of measures to support the objectives of the Strategy, the Department has considered the role of car advertising in inducing a car-centric mindset, as well as the effectiveness of Ireland’s application of car labels at points of sale, in accordance with relevant EU Directives. The labels provide consumers with information regarding the CO2 emissions and fuel efficiency of new cars to facilitate informed decisions. Communications and engagement-related actions are also expected to be a key feature of that Plan. At the 2024 Forum29, a new Sustainable Mobility Academy (SMA) was launched. This platform brings together professionals from national and local governments, academia and the private sector, creating a space to connect, and share insights on sustainable mobility. Key features of the platform include: In light of this, the Department of Transport is engaging fully and proactively with the EU’s reappraisal of the Car Labelling Directive 1999/94/EC. The review is expected to be complete in 2026, after which a new regulation may be proposed by the European Commission. Required amendments to the implementing regulations at a national level will be followed through as a priority. This work will be a critical element in implementing Recommendation 27 of this Strategy (raising consumer awareness on emissions from car use). ᴏ A curated library of case studies from Ireland and abroad ᴏ Insights into emerging best practices in transport and urban planning ᴏ 90+ public-sector only resources, serving a centralised hub of information and tools to assist users in their mobility needs. Finally, under the SMP, the Department of Transport hosts an annual National Sustainable Mobility Forum with a view to providing ‘a platform for collaborative engagement with national, regional and local stakeholders. The National Sustainable Mobility Forum has been held on an annual basis since 2023. The 2025 Forum, which took place across four parallel sessions in May 2025, brought together a wide range of stakeholders with a view to informing the development of the next SMP Action Plan, which will cover the period from 2026 to 2030. In addition to the above, ongoing communication campaigns and engagement will be needed to increase awareness about the need for, and the benefits of, demand management measures at a local level in particular. For this reason, Recommendation 8 of this Strategy aims to provide a communications and engagement support for LAs to build on the work that is already underway at a national level. ![Figure from page 64](assets/p064-f01.webp) *Figure from page 64* FROM SAVE THE PLANET, GET OFF THE ROADS TO IMPROVING MY HEALTH AND LIFESTYLE IN MY CITY • Rather than focusing on instilling fear of climate change where many citizens likely will be sceptical if ‘it will ever happen’. • Instead, focused primarily on the long-term health and wellbeing benefits of changing your lifestyle for cleaner air quality in your city. KEY LEARNINGS • Localised campaign and using local colloquial language. • Framed as positive lifestyle choice. • Made it tangible by focusing on health benefits. • Communicated progress and impact of clean air zone. • Tapped into behavioural science and social norms by communicating that citizens in the community are already compliant. 29 National Sustainable Mobility Forum 23 May 2024 (www.gov.ie) This recommendation is focused on ensuring success in the delivery of transformative projects and initiatives, with the mainstreaming of project funds to support – through inhouse skills enhancement as well as the procurement of specialists - the mainstreaming of engagement, co-creation and communications at local delivery level. Such funding will focus on resourcing ‘behavioural change campaigns’ at neighbourhood/local community level, beyond those ordinarily undertaken as part of existing statutory processes such as those under Section 38 of Road Traffic Act. Initiatives supported by the funding will also look to good practice cases in communicating and delivering demand management measures at a local level. For example, the #BrumBreathes initiative focused on the health benefits associated with its Clean Air Zone. Appendix 1, which includes national and international demand management use cases, also illustrates how localised campaigns can be put to good effect in socialising change. ## Legislative Powers and Levers ### Legislative Powers and Levers *Pages 66–67* ![Figure from page 66](assets/p066-f01.webp) *Figure from page 66* ## 7. Legislative Powers and Levers Within the existing legal framework, the legislative powers and levers required to reduce travel demand are spread across multiple government departments and agencies, as well as Local Authorities. This Strategy recommends a review of legislation to ensure local authorities, agencies and relevant Ministers have sufficiently robust legal vires power to bring forward the most appropriate demand management measures. The Strategy makes recommendations within the existing remit of the NTA, particularly in terms of guidance for other local authorities based on the scheme currently being developed for the GDA. There are also other pieces of legislation currently being used to contribute to aspects of emissions reduction in the transport domain and, subject to strengthening in some cases, could be used to facilitate new or enhanced measures such as: The overall power to reduce emissions from the transport sector stems from the Climate Action and Low Carbon Development Act 2021. As well as committing the State to achieving overall GHG emissions reduction of 51% by 2030, compared to 2018 levels, the Act provides further clarity on the role for Local Authorities in climate action including the development of five-year Local Authority Climate Action Plans. ᴏ Low emissions zones/clean air zones (building on ‘Special Control Areas’ in Air Pollution Act 1987) ᴏ Road space reallocation, general regulation and control of traffic including the control and regulation of parking vehicles (Road Traffic Act 1994), particularly Guidelines under Section 38(6) of the Road Traffic Act 1994 Section 71 of the Dublin Transport Authority Act 2008 provides the NTA with powers to pursue the implementation of certain demand management measures in the GDA. It defines demand management measures for the purpose of that section as being “measures which promote a reduction in the total amount of travel or reduced growth in the total amount of travel and includes measures to: ᴏ Workplace parking levy (Finance Act 2008) ᴏ Integrated land use and planning (Planning and Development Act) ᴏ Eurovignette Directive transposed into Irish law under S.I. No. 601/2024 on 8 November 2024 https://www.irishstatutebook.ie/ eli/2024/si/601/made/en/print# Local authorities, as critical implementors for demand management measures, will also utilise their devolved powers under the Local Government Reform Act, 2014. a. reduce the need to travel b. reduce the use of mechanically propelled vehicles and particularly private cars Chapter 10 sets out a number of recommendations which relate to reviewing and strengthening existing legislative powers to advance the objectives of this Strategy in line with the overall legal imperative set out under the Climate Action and Low Carbon Development Act 2021. Of particular relevance to the above is the following: c. increase travel by public transport, bicycle or on foot as an alternative to the private car d. encourage travel at less congested periods other than by means of a congestion charge, and e. reduce trip length. Recommendation 17: Review relevant legislation to ensure powers are sufficient to bring forward demand management measures. It also provides for the NTA to give a direction to a public transport authority in relation to the implementation of demand management measures and to issue guidelines to public transport authorities or to other public bodies in relation to the implementation of demand management measures. The NTA may also allocate moneys and make payments to public transport authorities or other persons in relation to demand management measures. A key output from this recommendation, as detailed in the Implementation Plan (Appendix 3), is to develop a legislative programme that will identify the legal and regulatory steps needed to support a range of demand management measures and to seek approval to progress this work, through the standard legislative process, from Government. This will provide implementing bodies with legal certainty in the delivery of measures. ## Research and Policy Analysis ### Research and Policy Analysis *Pages 68–68* ![Figure from page 68](assets/p068-f01.webp) *Figure from page 68* ## 8. Research and Policy Analysis ### The Five Cities Demand Management Study *Pages 69–69* The Five Cities Demand Management Study This Strategy has been informed by a wide range of research, and evidence-based policy analysis. The primary sources are itemised below highlighting relevant findings. The Five Cities Demand Management Study, which was published in November 2021, arose from a commitment in the Climate Action Plan 2019. The rationale for undertaking the Study was to better understand generators of transport demand in the five cities of Dublin, Cork, Waterford, Limerick and Galway, and to encourage a greater shift to more sustainable and healthier forms of travel. The Study provides a focused and evidence-based approach to addressing the carbon, congestion and air quality challenges facing Irish cities – using insight from an extensive international best practice review, outputs from national and local stakeholder engagement as well as detailed qualitative and quantitative analysis. International Transport Forum (ITF) Decarbonising Transport Initiative The work of the sub-groups associated with this Strategy was guided, in some part, by the Decarbonising Transport initiative developed by the International Transport Forum (ITF) Decarbonisation and the Pricing of Road Transport. This initiative was developed with the specific purpose of providing decision makers with tools to select CO2 mitigation measures that deliver on their climate commitment and to help government and industry translate climate ambitions into actions. Specifically, it created a catalogue of effective CO2 mitigation measures known as the Transport Climate Action Directory. This Directory was used as a springboard for discussion at the sub-group meetings. It is well known in the first instance that the high rate of car usage in cities results in many negative impacts. Based on the above, the Study explored how best to: In addition to the above, the ITF Outlook 2023 reinforced the need for a mix of policies to promote sustainable choices in different contexts. It asserted that demand for passenger and freight transport will continue to grow in the coming decades across all world regions, in all scenarios. ᴏ Manage vehicular traffic congestion. ᴏ Reduce GHG emissions from road traffic. ᴏ Address air quality issues due to vehicular traffic emissions. ᴏ Improve the quality of the urban environment. Without appropriate policies, unmanaged growth could result in increased urban sprawl, longer average trip distances and a lack of any meaningful emission reductions. The Study recommended three priority Tier 1 measures. These were: 1. 15 Minute Neighbourhoods. This Strategy has been informed by the ITF Outlook, which encourages decision makers to: 2. Enhanced Delivery of the National Planning Framework (NPF). ᴏ Take a long-term view of urban development and adopt integrated approaches to transport and land-use planning to avoid future sprawl in growing cities. 3. Public Parking Controls ᴏ Adopt holistic sustainable urban transport plans that combine investment, pricing and access or space restrictions to encourage sustainable choices. ᴏ Support multimodal and sustainable transport networks. ᴏ Combine pricing measures in a coherent manner and allocate funds to sustainable modes. ### OECD Report *Pages 70–70* ![Figure 13: The main problems associated with increasing urban traffic and congestion](assets/p070-f01.webp) *Figure 13: The main problems associated with increasing urban traffic and congestion* OECD Report The Climate Change Advisory Council (CCAC) commissioned the Organisation for Economic Co-operation and Development (OECD) to review Ireland’s transport system and to determine its capacity for achieving net zero by 2050. The associated report, ‘Redesigning Ireland’s Transport for Net Zero’, which was published in October 2022, indicated that Ireland was unlikely to achieve its ambitious climate goals without a systemic change in its transport system and substantially different patterns of travel behaviours than those observed today. Among the key recommendations were: ᴏ Redefining the goal of the transport system as sustainable accessibility, ᴏ Prioritising the up-scale of policies with high potential to transform the car-dependent system, ᴏ Redefining the electrification strategy to support the transition towards a sustainable transport system, ᴏ Embracing a systemic approach to policy decision-making across government departments, This Strategy reflects that change of focus and the evidence and findings of the OECD report have informed the deliberations of the expert sub-groups and in turn the recommendations in Chapter 10. ### Modelling for CAP *Pages 71–72* Modelling for CAP In February 2021, the NTA and Department of Transport commissioned a detailed transport modelling and appraisal exercise to support the development of the Climate Action Plan (CAP21) and the emerging Climate Action Plan tool available to the Department of Transport for estimating overall emissions impacts and the likely behavioural responses to potential interventions and policy measures at a national level. Measures modelled in the analysis included certain policies aimed at reducing travel demand, a broad range of measures to enhance public transport services, delivery of expanded active travel and public transport infrastructure, as well as measures to increase the share of biofuels and electrification in the transport sector. 2023 (CAP23). The modelling and appraisal were undertaken over three phases and used purposebuilt modelling tools as well as the NTA’s Regional Modelling System (RMS). Underpinned by a National Demand Forecasting Model (NDFM) that accounts for projected demographic growth and spatial planning data, the RMS is the most robust ![Figure 14: Predicted Reduction in Carbon Emissions 2018 – 2030 (Pathway to 50% in 2030)](assets/p071-f01.webp) *Figure 14: Predicted Reduction in Carbon Emissions 2018 – 2030 (Pathway to 50% in 2030)* ![Figure 15: Outcome Carbon Emissions 2018 – 2030](assets/p072-f01.webp) *Figure 15: Outcome Carbon Emissions 2018 – 2030* Measures modelled in the analysis were: Some of the measures within CAP23 are within the scope of this Strategy but will require further policy design. There are also a range of potential measures that are considered as part of this Strategy which do not feature in the modelling assumptions but have strong potential to impact efforts on reducing vehicle kms. A recommendation arising from this Strategy is to consider how broader socio-economic impacts of various demand management measures can be determined alongside the behaviour impacts which the NTA framework can model, in a way that can better inform a wider cost/benefit analysis of demand management schemes. ᴏ Increased working from home/public awareness campaigns; ᴏ Car-free urban centres; ᴏ Congestion charging; ᴏ Increased fossil fuel cost; ᴏ Parking constraints; ᴏ Improved public transport service interchange through investment in programmes such as Bus Connects; and ᴏ Reduced public transport fares through initiatives such as the 90-Minute Fare, Young Adult Card and the 20% discount on PSO services. Noting that three years have elapsed since the last major update of this transport emissions modelling, and given the likely overshoot of the transport sectoral ceiling for Carbon Budget 1, the Department and the NTA are undertaking an updated transport modelling and appraisal exercise (the Corrective Actions Modelling Project) to revise and recalibrate the existing CAP23 modelling, and re-assess and strengthen the decarbonisation policy pathway for transport to 2030. This work will be accompanied by extensive stakeholder engagement and a socio-economic assessment of the proposed policy measures / pathways. While the modelling assumptions and measures did not represent agreed policy measures, they outlined one representative pathway that could be pursued in order to reach the decarbonisation targets set by Government, which was provided as example measures to better communicate the level of change that is necessary to deliver a 50% reduction in transport emissions by 2030. ### Better Road User Charging Evaluation *Pages 73–73* Better Road User Charging Evaluation The objective of this project is to develop clear policy pathways for future CAPs that would set Ireland on a trajectory to meet the combined emissions ceiling of carbon budget 1 and carbon budget 2 of 91 MtCO2eq. The Better Road User Charging Evaluation (BRUCE) project was completed by TII. The project explored future options for user charging, and for operation and maintenance funding of the National Road Network in Ireland. Commission on Taxation and Welfare Report Currently, thirteen sections of the national motorway network (one third of the motorway network) are operated via public private partnerships (PPPs). Eight of the PPP scheme operate toll plazas and 5 receive availability payments from TII. In addition, TII collect tolls directly on the M50 and Dublin Tunnel Toll Points. Income collected from tolls covers the operational costs on these roads as well as partially offsetting the cost of operations and maintenance funding for the larger publicly operated national road network. The majority of the 8 PPP toll plaza franchises expire between 2033-2037, with the Limerick tunnel expiring in 2041 and the M3 in 2052. The 5 availability payment PPPs expire between 2040 to 2045. The Commission on Taxation and Welfare (COTW) was established in April 2021 to consider how the taxation and welfare system can support economic activity and income redistribution, whilst promoting increased employment and prosperity in a resilient, inclusive and sustainable way and ensuring that there are sufficient resources available to meet the costs of public services and supports in the medium and longer term. The Report made four recommendations with potential impacts for transport demand. The Commission recommended: ᴏ A redesign of Motor Tax and Vehicle Registration Tax on commercial and noncommercial motor vehicles in the medium to long term, in a manner that is consistent with environmental objectives and ensures that tax revenues from motor vehicles are maintained. As the national car fleet transitions to EVs, with implications for revenue from motor tax, VRT, BIK, fuel excise, carbon tax, among others, and a growing deficit in Exchequer finances TII explored options for next generation road user charging/ tolling to enable Government to deliver on improved climate and economic performance, as the network returns to public ownership. ᴏ The introduction, in the medium term, of distance, location and time-based road usage charges and that planning for such charges should include early identification of the appropriate technology to be used in calculating and applying them (see BRUCE project below). It is worth noting that the charging of vehicles for the use of road infrastructure in the European Union is governed by Eurovignette Directive (EU) 2022/362, which has been transposed into Irish law. While the provisions of the Directive do not require Member States to levy road charges, the common rules laid down in the Directive must be followed in instances where charges are introduced. ᴏ The introduction of congestion charges in key urban areas, based on a number of key metrics linked to environmental and individual impact and that these charges should be reviewed following the introduction of road usage charges. ᴏ The introduction of an additional duty on non-residential car parking, both public and private, and not limited to employer-provided car parking, in the same key urban areas identified as suitable for congestion charges. The COTW report and the extensive evidence used in support of its recommendations provide a strong system-wide rationale for many of the recommendations emerging from the Fiscal Measures expert sub-group in particular. ### Tax Strategy Group *Pages 74–74* Economic Cost of Congestion in the GDA was €5.8m in 2022 and €22.4m in 2040. Like the GDA, even with the range of planned public and sustainable transport interventions in these areas, the overall growth in the cost of congestion will not be offset by these alone. Car dependency has many impacts, but congestion is the costliest. Dublin is considered to have some of the worst congestion in the world, with other Irish cities also ranking highly in this context. In addition to increasing emissions, congestion means lost time, heightened stress, increased fuel costs and drastically worse air quality. Additionally, it brings wider costs to the economy through the increased costs of doing business. Tax Strategy Group Tax Strategy Group (TSG) papers, published by the Department of Finance, highlight the potential risks that may come from decarbonisation of the economy over the medium to long term, and the need to prepare for eroding energy and transportation tax revenues from the overall Exchequer tax base. In its Budget 2022 TSG paper, the Department of Finance specifically noted the area of vehicle taxation and that changes will be required over the medium to long term, to meet the challenges being faced by the transport sector in decarbonising the economy and in moving towards net zero by 205032. In 2017, the Department of Transport conducted analysis to estimate the Greater Dublin Area’s (GDA) cost of aggravated congestion30. In 2023, the Department carried out further analysis, building on the work in 2017. Results of this analysis show that the cost of congestion is estimated to be €336m in 2022 rising to over €1.5bn by 2040 (both in 2016 prices)31. Results show that planned transport interventions in the GDA are projected to reduce the rate of growth in the cost of congestion for bus users, but that they are not sufficient to offset the overall growth in the cost of congestion which is driven by factors such as population, employment, and economic growth. It noted that while medium term options may encompass newer approaches such as road user charging, in the short-term, policy decisions will have to be made on how the State maintains or adapts revenue streams. In the context of this Strategy, there is now an opportunity to consider the variety of taxation measures, including road user charging, as part of a medium to long term strategy to achieve mutually reinforcing objectives arising from this strategy and wider fiscal sustainability objectives in the COTW report (see Recommendation 2 in Chapter 10). An Alternative Future Scenario, which examined the impact of changes such as increased working from home as a result of the Covid-19 pandemic, was also modelled as part of the study. This scenario resulted in a reduction in the cost of congestion to €263m in 2022 and €1.4bn in 2040. This demonstrates that behavioural change interventions can have significant impacts in reducing the cost of congestion over the longterm. In recent TSG papers, including for Budget 2026, the Department of Finance noted that in the medium to longer term, vehicle taxes may have to shift to a weight based vehicle tax or surcharge in order to protect the vehicle tax base33. However, it also notes that ‘in relation to environmental, road safety and congestion outcomes, expectations should remain modest as a weight-based tax is a complementary measure rather than a central pillar for change. More targeted measures, in relation to vehicle dimensions, speed enforcement, driver behaviour and infrastructure capacity are required in order to fully achieve the latter outcomes’. In respect of the regional cities, a further report was published in May 2025, and featured the three cities of Cork, Galway and Waterford. Results of this analysis indicate that the cost of congestion to the Cork Metropolitan Area (CMA) were €57.5m (in 2022) and is forecast to rise to over €97.2m by 2040. In the Galway Metropolitan Area (GMA), the cost was €35.3m in 2022 and is forecast to hit €106.9m in 2040. In the Waterford Metropolitan Area (WMA), the equivalent figures 30 The Costs of Congestion - An Analysis of the GDA, 2017 31 The Economic Cost of Congestion in the Greater Dublin Area, 2022-2040 32 Climate Action and Tax Paper, Tax Strategy Group - 21/09, 2021 33 TSG 25-10 Energy Environmental and Vehicle Tax ### Public Attitudes to Demand Management Measures *Pages 75–76* ![Figure 16: Reason for Trip: National](assets/p075-f01.webp) *Figure 16: Reason for Trip: National* Travel Behaviour and Public Insights Almost half reported living within a 15-minute walk of a doctor’s surgery (47%). The source of trips was an important input to understanding and designing a Strategy that would support a reduction in demand for unsustainable journeys. For example, the above graphic is illustrative of the breakdown of national trips, showing some differences in patterns between weekdays and weekends as expected.In respect of trip lengths, the NHTS shows that 50% of trips are under 5km and 36% are under 3km. This underlines the clear potential to achieve a significant reduction in car kms for those shorter journeys through a variety of measures such as enhancing shared mobility provision, increased permeability, roadspace reallocation and active travel infrastructure, etc – across all journey types. National Householder Travel Survey The National Householder Travel Survey (NHTS) is a nationwide study of Ireland’s travel habits, which will be published annually from this year onwards as per a commitment in the SMP. According to the 2024 NHTS, work/business is the main reason for travel (21%), followed by education (19%), social reasons (18%) and shopping (15%). The car is the most frequently used mode of transport, accounting for 71% of all trips, followed by walking (18%), bus/coach (4%), truck/van (3%), cycling (2%) and Train/DART/Luas at 1%. Public Attitudes to Demand Management Measures Those aged 55-64 are most likely to travel by car at 77%, followed by those aged 45-54 years (76%). Those aged 15-24 are least likely to travel by car at 59% and are more likely than any other age group to travel by bus/coach (10%). While the NHTS provides a snapshot of actual travel behaviour, we also need to understand the attitudes and motivations that inform these choices. In that regard, the Department of Transport commissioned research in 2023 to test public sentiment and attitudes towards sustainable mobility policies generally, including various demand management measures as part of the development of this Strategy. Key headline findings, arising from a series of focus groups were: The age cohorts most likely to walk are 15-24s and 25-34s (both 22%). Cycling is highest at 3% among those aged 4-14, 15-24 and 35-44. The majority of those surveyed for the NHTS 2024 live within a 15-minute walk of a shop (71%), pub or restaurant (64%), a bus stop (67%), a chemist/ pharmacy (58%) or a public leisure space (60%). ᴏ Driving by car is the default option for the vast majority of people in Ireland today. This is seen to offer convenience and comfort and good time management. A key sentiment that emerged from the research was “If you own a car, you might as well use it!” ᴏ Revisiting initiatives like the Tax Saver Scheme to reflect the hybrid working model and engaging with companies to encourage hybrid working, with leadership coming from the top of organisations and companies for Smarter Travel Schemes. ᴏ Changing individual behaviour away from cars is a tough ask, especially when individuals feel that the impact of their behaviour is far less significant than the changes that can be achieved by industry and Government. ᴏ Looking at incentives such as discounted costs for families traveling on public transport and/ or the use of short term ‘novelty’ discounts, which may help to introduce many people to the advantages of public transport. ᴏ There is a lack of awareness around improvements made, and being made, to public transport services and their relative utility by those who don’t or rarely use it. Improvements that have been made can be overlooked by the public who drive and there is a need to strongly assert the improvements that are being made by Government. ᴏ Drawing attention to progress that has been and will be made in public transport and highlighting all the positives to counteract established negative beliefs. In summary, all of the research, policy analyses and focus group work referenced in this Chapter point to the wide range of benefits to be achieved from addressing travel demand and from supporting greater efficiency in our transport system. They also point to the range of potential measures available (see examples in Appendix 1), which informed the discussions of the expert sub-groups and the final set of recommendations in this Strategy. ᴏ To avoid being seen as ‘anti-car’ and to get drivers on board, it’s vital that a wellconsidered and well-funded plan, showing integration and connection, is presented to people to win their confidence in non-car options. ᴏ The health impact of car driving is largely overlooked. At a high-level, air pollution associated with emissions is acknowledged, but contributions to this at a personal level as well as the local and personal negative impacts, are poorly understood. ᴏ Behavioural change will require a clearly thought-out pathway consisting of data, actions and ease of adoption. It will be important to emphasise the benefits, at every level, to encourage people to make changes. Change at a small level needs to be applauded but underpinned by a sense of urgency. The research also suggested certain longer-term opportunities such as: ᴏ Highlighting a positive plan to enable the public to lessen their reliance on car usage. People need to know that it can be done. ᴏ Reiterating existing initiatives that are available to encourage non-car travel: 90-minute journey, rebalanced public space to create safer streets in cities, Bike to Work etc. ## Six Key Areas of Focus ### Six Key Areas of Focus *Pages 77–77* ![Figure from page 77](assets/p077-f01.webp) *Figure from page 77* ## 9. Six Key Areas of Focus ### Integrated Land-Use and Transport Planning *Pages 78–83* As outlined in the Introduction and informed by the foregoing research in Chapter 8, the Steering Group identified a number of key areas that warranted particular focus – areas that were considered to have the most potential for impacting transport demand reduction, given their role in generating journeys (particularly where historic system design has been less than optimal). In summary, it is clear from the subgroups’ examination of the research and case studies provided that there is already significant scope within existing policies and programmes to strengthen demand management as a focus. It is also clear that solutions here will need to be tailored to specific circumstances particularly at a Local Authority level and that experimentation and innovation will be a feature of demand management schemes in order to test their impact but also to gain support and demonstrate the benefits of related measures. There is also a clear message from the sub-groups deliberations that measures to address travel demand need to work alongside the rollout of supply side measures – and therefore the continued acceleration of the Sustainable Mobility Policy Action Plan is key to the success of this Strategy. Consequently, and as noted in Chapter 1, the National Steering Group established expert subgroups to focus on the following areas: 1. Integrated Land Use and Transport Planning - to consider how a high-level national policy approach to demand management could support and inform the revision to the NPF and current policy approaches to compact growth of settlements. 2. Optimal Use of Space - to examine a range of measures for maximising the well-being of people and the utility of public space, particularly in urban centres. A summary of the outputs from each of the subgroups is set out as follows. These reflect ‘point in time’ considerations and can be reviewed in more detail in the associated reports that were prepared by each sub-group: 3. Fiscal Measures – to consider the role of fiscal measures in encouraging a shift towards sustainable mobility journeys – and greater network optimisation - while ensuring the ongoing fiscal sustainability of the sector’s contribution to the Exchequer. Integrated Land-Use and Transport Planning 4. Generators of Demand (People) - to consider demand generated by escort-to-education trips, including the role of the School Transport Scheme and Safe Routes to School Programme as well as other major generators of transport demand e.g., hospitals/health services, tourism, leisure/sport and large transport hubs like Dublin Airport. Introduction Integrating land use and transport planning is key to ensuring that the built environment is connected in a way that reduces travel demand by private car sustainably. Planning is a system that is reliant on policy and investment decisions across Government. For example, the planning of homes, jobs, recreation, education, and other activities and services is complementary to the planning of transport infrastructure and services required to connect these activities. This approach to integrated planning can contribute significantly to reductions in transport-related emissions, as it requires a rethinking and reversal of decades of development patterns driven by the prioritisation of the private car as the primary form of transport. In practice, this means setting policies across Government that promote: 5. Generators of Demand (Freight) – to consider demand generated by industrial zones, ports, retail parks and consignors, freight hubs and gateways as well as the construction industry. 6. Captive Car Usage - to consider the impacts on, and supports for, captive car usage in line with the principle of just transition. Not surprisingly, there was significant overlap in terms of the findings and recommendations arising from the sub-groups, although each was considered through a different lens. The final suite of recommendations set out in Chapter 10 has been informed by the work and reports of the subgroups along with the research and analysis, case studies and deliberations of the National Steering Group. ᴏ Compact settlements while discouraging urban sprawl; ᴏ Land use patterns that facilitate active travel, decrease the reliance on private cars, and increase the efficiency of existing sustainable transport systems; and Measures focused on intensification and diversification ᴏ Coordinated land use and transport policy objectives to form complementary intervention measures. Densification measures focus on the increase of population and activity in an area through the intensification and diversification of underutilised land. Greater diversity of land use can contribute to more walkable neighbourhoods, thereby avoiding trips that otherwise would have been made by motorised transport. Rather than only equating densification with increases in building height, measures can look to intensify different activities in existing spaces by avoiding underutilisation at different times of the day and week to create consistency and diversity of use across time and place. Ireland’s national, regional, county, and local land use planning system led by the NPF takes into consideration how the development of new and regenerated land might impact transport requirements. This approach aims to ensure that new development projects are accessible and connected by sustainable modes of transport, by tying together the infrastructure needed to facilitate public and active transport journeys with activity centres. The Office of the Planning Regulator (OPR) was established in April 2019 to reinforce this and ensure that Regional Spatial and Economic Strategies and city and county development plans are consistent with the development objectives of the NPF. Measures incentivising densification through intensification and diversification should take into account how growth might contribute to negative impacts, to mitigate unintended consequences. Measures Discussed A comprehensive set of measures for supporting the objectives of this Strategy were gathered and consolidated to address challenges and approaches to integrated land use and transport planning at various scales and locations across Ireland. The high-level measures that emerged address the following areas: Encouraging the redevelopment of brownfield sites and the reuse of underutilised spaces to cater to different activities across different times of the day and week are more sustainable ways of accommodating densification. Funding mechanisms such as the Urban Regeneration and Development Fund and Government policies such as Town Centre First and Delivering Homes, Building Communities prioritise the refurbishment of vacant buildings in centres and infill and brownfield development opportunities along transport corridors to regenerate centres and drive compact growth targets. A mix of uses and activities should also be carried out in accordance with universal design principles such as the provision of adequate facilities to provide ease of movement for people including those with disabilities, children, families, older persons and people with mobility difficulties. Land use taxation can also play a role in incentivising development in key areas. ᴏ Intensification and diversification ᴏ Access to services ᴏ Permeability ᴏ Evaluating plan and policy efficacy ᴏ Behaviour change While many of the measures that are relevant to integrated land use and transport planning are already written into policy, in some areas they have had limited implementation on the ground. When applied in practice, these measures need to be adapted to respond to the challenges specific to the location and its scale. National planning guidelines should discourage private car use where it conflicts with sustainable development and land intensification objectives. For example, the Sustainable Residential Development and Compact Settlements Guidelines require graduated parking rates to be applied based on proximity and accessibility to services and public transport. The guidelines require a graduated approach to be taken with regard to densities, with highest densities in centres and along public transport corridors and more compact and sustainable forms of development overall, noting that densities will be lower in areas where there may be higher levels. The guidelines also encourage the repurposing of car parks in highly accessible urban locations to support densification and make space available for other land uses. Considerations in respect of developing these studies to date has fed into the revision of the National Planning Framework and broader policy development to support implementation of the NPF. This includes consideration of legislative and policy provisions, institutional arrangements, capacity-building measures and funding and resources required to facilitate the delivery of such plan-led development in a timely manner. To finance TOD, local authorities and other statutory undertakers will need to be supported in generating revenue to finance infrastructure needed to support TOD. DHLGH is advancing proposals for Urban Development Zones (UDZs) which may assist in supporting this approach. Measures focused on access to services Linking land development with public transport nodes that connect areas through Transport Oriented Development (TOD) facilitates public and active transport use. This approach can avoid mobility deserts, or places with constrained mobility access. Further co-locating public transport stations with mobility hubs can facilitate sustainable, multimodal mobility and make the full door to door journey more convenient and competitive to the private vehicle alternative. In this context, universal design planning should be considered to assess the effective integration of public transport infrastructure with workplaces, healthcare facilities, education centres, retail facilities and social spaces. Measures focused on permeability Permeability in integrated land use and transport planning refers to the ease of movement in and through an area, particularly via active transport. Areas separated by barriers are unattractive to pedestrians, cyclists or others using active modes of travel as they need to take long detours around the impermeable space. Permeable design aims to create liveable and more inclusive spaces by making the city accessible to all people. Liveable settlements are those that have compact, mixed use design with active building frontages to create lively streets and adaptable spaces to accommodate the changing needs of users. Such issues are highlighted and addressed in the DMURS, published in 2013 and updated in 2019. To discourage reliance on private vehicles, high quality and affordable public transport network development that precedes the development of new housing, services, and employment can encourage sustainable travel patterns before unsustainable habits are formed. From the demand side, to contribute to the development and sustainable use of transport nodes, measures should focus on incentivising companies and services to locate in proximity to the public transport node, supported by fiscal levers where necessary. Permeability should also not only be thought of in terms of physical connectivity, but also consider psychological effects that can make routes impermeable to users. Particularly along pedestrian-only pathways, poor lighting and blocked sightlines can decrease users’ perceived safety of a route and disincentivise them from using it to avoid a longer detour. Perceived safety of cycling and walking/wheeling can also affect how permeable an environment is to an individual. Long stretches of heavily trafficked roads without safe crossing points for pedestrians or dropped kerbs at reasonable intervals can also act as soft barriers. From the supply side, developers should be incentivised to build mixed-use developments that make efficient use of space and create more inclusive environments for different user groups. To deliver transport-oriented development (TOD), multi- department and agency coordination and strategic investment are required. Under Housing for All, a working group was established by DOT and DHLGH to consider opportunities for TOD in major urban centres. The initial focus of the group was on Dublin, with a report published in June 2023. Further reports on the Eastern Region, Cork and Limerick, Galway and Waterford will be published shortly. Measures focused on evaluating plan and policy efficacy maximum parking requirements, physically distancing parking space access from urban centres and pedestrianised areas, introducing pricing for parking that varies spatially and temporarily, and incorporating city, town, and village centres with surrounding residential areas into parking demand management strategies. To ensure that integrated land use and transport policy and plans result in the desired outcomes related to this Strategy’s objectives, measures that support monitoring and evaluation are essential to identifying issues, tracking progress and assessing outcomes. Evaluation of plan and policy efficacy can focus on one or more of the following areas: the alignment between the proposed plan and the policy goals, the extent to which the plan or policy has been implemented, and to what degree the plan or policy has achieved its desired outcomes. Parking management can also take the form of workplace parking levies which typically involve charging employers a fee based on the number of parking spaces they provide for their employees and visitors. To further encourage the use of new infrastructure that supports sustainable travel modes, information campaigns targeting attitudes to, and perceptions of, active travel and public transport are key to induce behavioural change. Engagement and outreach initiatives are needed in communities, schools, and at the workplace to expose people to the negative externalities of private car use and the positive outcomes, such as the health and wellbeing benefits of active travel in particular. The national dialogue regarding climate and transport needs to be ever consistent to fully support this messaging. Co-designing plans with the input of stakeholder groups is a valuable way of designing a plan that meets the target group’s objectives and adequately addresses their challenges. Aligning integrated planning and policy measures with climate action targets helps focus efforts and brings CO2 emissions reduction targets to the forefront of conceptualising how these measures are implemented. Setting performance metrics and measurable targets for determining the effectiveness of integrated land use and transport planning measures is valuable for identifying where and when implementation efforts may be falling short of policy aspirations. Baseline assessments are key to understanding current conditions and provide a basis for determining the outcomes and impact of each measure. Challenges Decades of development that prioritised the role of the private car led to policies that prioritise travel time savings over the need for proximity. Congestion was seen as the primary challenge, and road capacity expansion was seen as the solution, thereby compounding the increasing problem of underutilising space for other functions and thinking about ways to avoid the need for the private car through better integrated land use and transport planning. This has in turn segmented the responsibilities of transport and planning, often minimising the role that land-use and housing decisions play in the performance of transport systems, including in terms of greenhouse gas (GHG) emissions. Measures focused on behaviour change To change attitudes and perceptions in favour of sustainable modes, integrated land use and transport planning should anticipate real-world complexity and account for how travel needs are driven by the types of locations that people may have a reason to access. Providing conveniently located sustainable alternatives, and increasing the availability of services at and between centres, can enable behavioural changes in favour of sustainable transport modes and support the successful outcomes of integrated land use and transport measures. Implementing many of the measures discussed on the ground can present challenges. Retrofitting existing spaces can face pushback from local residents due to fears around how the design changes may result in negative effects. Particularly, creating new linkages in existing areas or planning new roads to accommodate all transport modes to cut through spaces can negatively affect the attractiveness of the Leveraging parking management as a means of encouraging sustainable travel and reducing private vehicle usage is a common strategy employed internationally. Different approaches to parking management include constraining environment to non-car users. Not only does this risk discouraging a shift to sustainable transport modes, but also has little impact on reducing the demand for private car use. ᴏ the enactment of legislative proposals to support National Policy Objective 69 in the NPF, which relates to the extension of statutory arrangements between spatial and transport planning in the Greater Dublin Area to other cities for Metropolitan Area Transport Strategies; That said, it is acknowledged that the main impact of improving the integration of land use and transport planning will be around new developments – rather than in the retrofitting of established developments and, as such, may have limited effects in terms of reducing emissions on an absolute basis. ᴏ the development of policy and guidance in relation to planning for enterprise and employment uses in statutory development plans, noting that these uses continue to occur in peripheral locations which are challenging to serve with effective alternatives to the private car. Measures aiming to improve the perceived ease and comfort of switching to public or active transport, such as requirements for cycle lanes and bicycle parking in tandem with reductions in car parking access, can disincentivise private vehicle use. However, at the same time, when implementing these measures on the ground, consideration needs to be given to how a measure might unintentionally generate demand. For example, park-and-ride facilities placed at train stations might need to impose a nominal parking fee to avoid displacing trips to the station previously undertaken on foot or by bicycle with private vehicle use. Accordingly, it is anticipated that the placing of transport plans on a statutory footing can strengthen the capacity of the Office of the Planning Regulator to address transport matters in city and county development plans and local area plans, allowing them to have a greater focus on transport plans and strategies. The implications of this would require further consideration, particularly its impact on working relationships between with NTA and TII and OPR. Measures aimed at ensuring further integration of land-use and transport planning, taking account of intensification, diversification, access to services and permeability, will be delivered as part of implementation mechanisms under Recommendation 1 of this Strategy as well as through recommendations relating to the development by Local Authorities of Demand Management Strategies and the guidance and supports that would underpin these (Recommendations 3 to 9): Additionally, communications and engagement will be essential to the delivery of these measures. Among other issues, opposition from local residents has complicated several initiatives in recent years and implementing authorities will need to work with local residents to alleviate any fears that they may have in relation to planned projects. Conclusion and Recommendations Recommendation 1: Strengthen policy alignment and implementation mechanisms to deliver NPF National Strategic Outcome 1 ‘Compact Growth’ and NSO 4 ‘Sustainable Mobility’ given the critical role of compact growth in reducing travel demand and enhancing transport system efficiencies. In light of the above, and in an effort to bring a renewed focus to densification, intensification and diversification of underutilised land, which can support the viability of a sustainable transport system and related mobility alternatives, it is proposed to strengthen policy alignment, governance and funding mechanisms to support the achievement of compact growth priorities detailed in the NPF and subject to regulatory oversight via: Recommendations aimed at behavioural change, with regard to parking management approaches, are captured across other sub-groups – Optimal Use of Space, Fiscal Measures and Generators of Demand (People). However, any high-level plans in this area would involve the collating and analysing of data on parking at a national level including ᴏ the functions of the Office of the Planning Regulator; ### Optimal Use of Space *Pages 84–91* availability and charging in urban centres (large towns and cities) in relation to on-street parking, commercial parking, retail parking, workplace parking etc., and the preparation of parking quantum guidelines to better inform behaviour and activities and to support the development of targeted measures aimed at demand reduction. More specifically, the potential undesirable impact and costs to society of expensive urban centre car parking and free peripheral car parking needs to be fully quantified. urban environment. This prioritisation not only improves public health by encouraging physical activity and reducing air and noise pollution but also enhances safety through accident prevention and the creation of safer and more inclusive public spaces, especially for those with physical or sensory challenges. This approach also contributes to environmental sustainability by lowering carbon emissions, providing space for green infrastructure and conserving resources, while economic benefits emerge from increased local business support, job creation, and an increase in public transport patronage. Social inclusivity is promoted through accessible spaces, community engagement, and improved quality of life. This approach is intended for all settlement forms – cities, towns, villages, as well as rural areas – where the benefits and co-benefits that are observed can be realised with context-specific application of the measures for optimal use of space. An inventory would be needed to gather data on how much of the space is being dedicated to parking for bicycles, micro-mobility etc. how the space dedicated to different modes compares and if that is consistent with climate and wellbeing goals. This would require cross-agency collaboration to identify an approach to the development of a national parking inventory, thus allowing for a better understanding of parking provision, and the development of targeted measures aimed at demand reduction. This workstream would be encompassed under the following recommendation: Internationally, cities, towns and villages have successfully demonstrated the power of managing public space, ushering in a paradigm shift in the urban environment. From the cycling and pedestrian-friendly transformations in European cities like Paris, Amsterdam, and Copenhagen to the innovative road space reconfigurations in Asian metropolises such as Seoul and Singapore, these initiatives prioritise accessibility, encouraging walking, cycling, and public transport over private cars. Smaller-scale initiatives have also been undertaken in various cities and towns within Ireland, particularly since the Covid 19 pandemic, which demonstrated how road space can be better utilised to support pedestrian use, cycle lanes, outdoor seating and other public realm improvements. Recommendation 30: Undertake analysis on the effectiveness of reducing car parking as a demand management measure, taking account of wider parking availability. The full list of recommendations is set out in tabular form under Chapter 10. Optimal Use of Space Introduction In the ongoing evolution of land-use and transport planning, the management and strategic allocation of public space has emerged as a critical component of any holistic demand management strategy. Public space management involves the deliberate allocation and reallocation of physical space within the public realm to accommodate the diverse needs of the people who use it, while addressing the challenges and opportunities posed by increasing population density, climate policy, and growing transport demands. Significant research has demonstrated the cobenefits of road space reallocation, when space in cities, towns and villages is made accessible to active and public transport modes. Economic regeneration is one such outcome, with an increase in footfall to shops in pedestrian-planned areas with high-quality public realm. This has been demonstrated across various urban contexts through monitoring and evaluation. Public health is another compelling co-benefit that emerges from road space reallocation. Car-centric cities are seeing the risks associated with air pollution and noncommunicable diseases (NCDs), which are exacerbated by how we design our streets and enable people to move about. Reallocating public space to sustainable transport modes i.e., walking, cycling, wheeling and public transport, yields a range of associated co-benefits fostering a healthier, safer, and more vibrant Measures Discussed promote cycling as a safe, sustainable, efficient, and convenient mode of transport. These measures involve the creation of dedicated cycling lanes, bike-sharing schemes, and the expansion of cycling infrastructure and associated facilities such as parking or changing rooms. By reallocating space for cyclists more people will be encouraged to choose cycling as their preferred means of travel, reducing car use, alleviating traffic congestion, and reducing carbon emissions. In collaboration with various stakeholders, a comprehensive set of measures were considered for the purposes of: ᴏ Reallocating space in favour of pedestrians; ᴏ Reallocating space in favour of cyclists; ᴏ Reallocating space in favour of public transport; As with the reallocation of space in favour of pedestrians, reallocation typically involves repurposing space from on-street parking or reducing car lanes to create dedicated cycling lanes and infrastructure. Segregated space between pedestrians and cyclists is also optimum, to protect those who are most vulnerable from a mobility perspective e.g. elderly, visually impaired etc. ᴏ Improving liveability within urban areas to promote compact growth and regeneration; ᴏ Reallocating space in favour of sustainable logistics; and ᴏ Managing and regulating street space. Underpinning all measures discussed, was an emphasis on the importance of safety and accessibility for everyone; elements that should be integral to every optimal use of space measure. Measures focused on reallocating space in favour of public transport Measures focused on reallocating space in favour of pedestrians The primary objective of measures focused on reallocating space in favour of public transport is to enhance the safety, attractiveness, efficiency, and sustainability of public transport systems while reducing dependence on private car use. The primary objective of measures focused on reallocating space in favour of pedestrians is to prioritise the safety, accessibility, and well-being of pedestrians and those with additional mobility needs, creating more walkable and human-centric urban and rural environments. This involves redesigning roads, streets, and public spaces to include wider footpaths, pedestrian zones, street furniture and improved crossings, as well as implementing traffic calming measures. By reallocating space for pedestrians and the most vulnerable citizens, walking will be encouraged as a preferred mode of transport, reducing the need for short car trips, and promoting physical activity and public health. In the case of those who have limited mobility options due to physical or health issues, adequate space will be reallocated to provide access for such cohorts e.g. elderly, disabled etc. This involves the creation and reallocation of space to dedicated bus lanes, tram lines, and transport hubs, as well as improving the accessibility and connectivity of these systems within urban and rural areas. By reallocating space to prioritise public transport, citizens will be incentivised to choose more sustainable modes of commuting, thereby reducing greenhouse gas emissions, and promoting a shift toward ecofriendly transport options. Measures focused on improving liveability within urban areas to promote compact growth and regeneration Measures focused on reallocating space in favour of cyclists The primary objective of measures aimed at improving liveability within urban areas to promote compact growth and regeneration is to create inviting, secure, and easily accessible urban spaces and public realm that foster community life, while also promoting sustainable consumption, local business growth, and mixed- The main objective of measures focused on reallocating space in favour of cyclists is to use development. These measures involve the revitalisation of streetscapes, pedestrian zones, and public spaces through the addition of greenery, public amenities, cultural installations, and accessible street infrastructure. By enhancing the public realm, the street environment will be more appealing for residents and visitors, liveability within urban areas will promote compact growth, and regeneration and safety will be enhanced by calming and/or removing traffic. These improvements encourage local business development and mixed-use planning, leading to sustainable consumption patterns. urban accessibility, and foster a more inclusive and resilient urban environment. Challenges When analysing road space reallocation measures, it was evident that several challenges were common across all measures. Often, this reallocation involves repurposing space previously dedicated to on-street parking or reducing the number or size of car lanes in favour of wider footpaths, segregated cycle lanes, pedestrianfriendly amenities, and public transport. For this reason, the main challenges discussed by the subgroup for these types of measures usually included divergences in the views of businesses and communities, negative media coverage, concerns over traffic flow, legal and regulatory processes and requirements, and potential points of conflict between pedestrians (particularly those with visual or mobility impairments), cyclists and vehicles. The intersection of cycle lanes with pedestrian paths or footpaths, can cause particular issues for those with physical or sensory issues and for disabled people. Another challenge faced by existing schemes designed and implemented in Ireland is their lack of connectivity with a wider and well- designed local network (sometimes welldesigned lanes start and end abruptly), preventing people from planning longer trips. Measures focused on reallocating space in favour of sustainable logistics The main objective of measures focused on reallocating space in favour of sustainable logistics is to enhance the overall performance of the logistics network, reduce congestion, lower emissions, and improve the overall sustainability of urban freight operations. By strategically reorganising and prioritising space within cities, towns and villages, these measures aim to facilitate the seamless movement of goods while minimising the negative impacts associated with traditional freight transport. Some examples of potential interventions include allocating dedicated spaces to eco-friendly delivery vehicles, cargo-bikes, or micro-consolidation centres. To move away from Ireland’s car-dependent system and make the reallocation of road space work, convenient sustainable transport alternatives need to be in place, starting with a robust public transport network as the system backbone. However, full delivery of this can be a lengthy process consisting of the public and stakeholder engagement needed to refine proposals, planning and design, complex approval procedures and the potential requirement for land acquisition and compulsory purchase orders. Another challenge faced by implementing authorities is funding constraints. Policy and regulation measures focused on managing and regulating street space The primary objective of policy and regulation measures focused on managing and regulating street space is to create a more efficient, sustainable, and equitable transport system. These measures encompass initiatives such as traffic management policies, lane reallocation, kerb management strategies, parking regulations or the creation of assessment tools e.g. healthy streets assessments. By implementing such policies, countries aim to reduce traffic congestion, encourage the use of public transport, cycling, and walking, and minimise the environmental impact of transport, including greenhouse gas emissions. Additionally, these measures are seen as necessary to improve road safety, enhance Repurposing road space in cities to support sustainable urban logistics faces several obstacles. These include physical limitations, such as space scarcity and infrastructure gaps, as well as institutional barriers, such as zoning regulations that may restrict efficient operations. The effective implementation of the measures requires a strategic and collaborative approach and alignment with other objectives, strategies Conclusion and Recommendations and plans to avoid conflicting and overlapping objectives. Several considerations were identified as essential to the success of the delivery of the measures. These considerations were: As above, strategic allocation and management of public space has emerged as a critical component in urban transport planning. Taking account of the analysis and conclusions of this sub-group, a number of recommendations are set out below reflecting the vital role of Local Authorities in particular. ᴏ Communication and engagement; ᴏ Tactical urbanism; ᴏ Equity and inclusion; and ᴏ Planning legislation. Demand Management Strategies and Schemes Communication, whether through campaigns, information sharing, public consultation or meetings, has emerged as an essential step to successfully implement any demand management measures. Community buy-in is not just desirable but is a prerequisite for the success and sustainability of measures. In recognition of the role that urban centres have in generating transport demand, particularly the quantum and use of space designated to cars, it is recommended that LAs develop a strategy to reduce transport demand in their jurisdiction, with a particular focus on urban centres. It is intended that such strategies and related schemes will, through best practice, encourage the integration of demand management principles within statutory plan making processes and contribute to the national CAP target of reducing vehicle kilometres travelled by 20%. Work is already underway on a Demand Management Scheme for the GDA, which is being progressed by the NTA. Tactical urbanism, involving small-scale, low-cost interventions, can play a pivotal role in testing the proposed measures before moving towards fullscale implementation. Pilot projects allow for realworld experimentation, offering tangible evidence of potential benefits and addressing concerns in a controlled setting. This approach is particularly effective in building public confidence and showcasing the positive impacts of the measures. An emphasis on equity and social inclusion must be embedded in implementation considerations. Strategies must ensure that the proposed reallocation of space does not disproportionately impact key groups that face systemic exclusion. Equity-focused assessments can guide decisionmaking to create an inclusive urban environment that benefits all residents. For LAs outside of the GDA, these strategies and schemes will augment work already underway to transform urban centres into people-centered destinations – places that work better for all (pedestrians, cyclists, buses, drivers, disabled people, families, business, delivery workers, children, visitors, and residents), ensuring equity and inclusion. This Strategy recognises the transformative potential of optimal use of space in reshaping cities, towns, and villages, fostering sustainability and improving the quality of life for Irish residents. Organisations, like the OECD and ITF, collectively offer a wealth of knowledge and expertise that validates the crucial role of such strategies, lending credibility to their adoption and integration by countries striving for sustainable urban development. These changes not only have significant implications for enhanced traffic management and decarbonisation, but also yield co-benefits in terms of public health, wellbeing, and the revitalisation of urban spaces as vibrant centres for human interaction, diversity, and exchange. However, rather than placing another requirement on LAs, it is proposed that approaches to demand management would be mainstreamed within existing planning mechanisms – i.e. form part of Metropolitan Area Transport Strategies and City and County Development Plans, as appropriate. As many LAs have recently finalised their LATPs, these may have to be revised, with potentially significant resource implications. Further consideration will also be needed around how to fully embed any strategies and schemes into new ‘urban area plans, priority area plans and coordinated area plans’, as per the Planning and Development Act 2024 as well as City and County Development Plans. Among the measures that may be included in strategies and schemes are street space assessments (data gathering), targeted reductions in dominance of space for cars, prioritisation for pedestrians, cyclists and public transport, kerbside digitalisation and management strategies for urban logistics including zero emissions delivery (such as rapid uptake for cargo bikes, micro consolidation centres), targets for reducing public car parking, market-based pricing of parking, levies on private car parking spaces at retail areas and industrial zones, removal of free car parking in urban centres, accessibility audits, and healthy streets assessments. This list is not exhaustive. In respect of parking, clarity will be needed on objective and measurable target requirements at national level, to ensure urban centres are not unfairly penalised to the benefit of out-of-town centres. A county-level target for demand reduction may be needed, with a staged delivery focussing on cities, regional growth centres and key towns as per the NPF. This will capture the largest population and provide a clearer focus for implementation. Public transport and suitably located Park and Ride services could facilitate rural access to larger centres. The strategy recommends that Local authorities should be supported in this work through: ᴏ the development of guidelines and appropriate modelling for demand management strategies and schemes (see Recommendation 4 below); ᴏ the updating of national guidelines and standards in support of demand management measures (e.g. DMURS, NTA Rapid Build Document, Section 38 Guidelines etc) and the strengthening of national coordination through the existing National Guidelines and Standards Group (Recommendation 5); LAs are already encouraged to create inviting and vibrant centres - incorporating greenery, public art, lighting, seating, and cultural elements into the public realm. By further reducing the dominance of the car in our urban centres, LAs can create even better conditions for community well-being, safety, health and a sense of place - thereby attracting more people to live in towns, which in turn supports business and reduces car travel demand. ᴏ the broadening of LA resources under the ‘Active Travel’ brand - with team responsibilities and resourcing expanded to include work on the development and implementation of schemes (Recommendation 6); ᴏ support for communications and engagement (Recommendation 8); and It is acknowledged that urban spaces are multifunctional and subject to competing demands. Moves towards space re-allocation in favour of sustainable transport modes and the introduction of urban greening can also support other policies such as nature-based management of urban rainwater, nature restoration and climate adaptation. The use of such nature-based solutions is in line with NPO 57 “Integrating sustainable water management solutions, such as Sustainable Urban Drainage (SuDS), porous surfacing and green roofs, to create safe places” and NPO 58 “Integrated planning for Green Infrastructure and ecosystem services will be incorporated into the preparation of statutory land use plans”. ᴏ a fund for the piloting of measures (Recommendation 31). Guidelines In relation to the guidance and modelling, these will be informed by the Five Cities Demand Management Study and the analysis underway in developing a Demand Management Scheme for the GDA. They will be developed by the NTA and will build on the good practice guidance already in place through the Design Manual for Urban Roads and Streets DMURS, the NTA’s Permeability Best Practice Guide and Walkability Toolkit Advice Note on Street Space Reallocation, and the Cycle Design Manual. A DMURS Advice Note on street space reallocation is also being prepared. As well as integrating with work already underway e.g., five cities’ Pedestrian Enhancement Plans, the guidance will encourage LAs to take a coherent approach to the development of a suitable It is also important that future demand management schemes take a holistic view and avoid an exclusive focus on town centres, given the potential displacement of commercial activity to suburban and out of town shopping/retail centres if measures are not equitably distributed. walking and cycling environment and to prioritise interventions that will also reduce transport demand. ᴏ smart parking systems that make it easier for drivers to find available parking spaces, thereby reducing congestion and time spent searching for parking; It is intended that the demand management guidance will be additional to what is already available, and that this guidance would be supported by a National Demand Management Toolkit. The latter would tie everything together and would identify the tools that are available to local authorities and what works best and under what circumstances – building on the case studies from the Five Cities Demand Management Study and this Strategy. ᴏ the role of traffic signals, ramp meters and roadside displays in improving the efficiency and convenience of sustainable transport modes like public transport and active modes compared to private motorised vehicles; ᴏ the use of speed limits within the context of demand management including the application of suitable roadway speeds to reduce the variation in private vehicle speeds throughout a given journey or to reduce the travel time differential between cars and sustainable modes of travel; and Taking account of national policy priorities, it is recommended that the guidance will include advice on: ᴏ the creation of safe, attractive, and easily navigable environments for walking and cycling, and for the use of shared and public transport through the optimal use of available street space; ᴏ the involvement of local residents in the planning and decision-making process to ensure that projects align with community needs and preferences. In relation to existing national guidelines, it is recommended that these are strengthened, streamlined, and further updated to ensure demand management objectives are supported in a coherent way that avoids any overlapping effects. Measures aimed at reducing demand are most effective when not deployed in isolation. The existing National Guidelines and Standards Group will support, through their work, the coordination and implementation of demand management measures across the sector with the aim of revisiting and prioritising space for transport modes that are less carbon and space intensive; as well as for reallocation of destinations to promote proximity. A DMURS Advice Note in relation to reallocating street space is being developed and this recommendation envisages that further work may be required to develop other documents such as an NTA Rapid Build Document and Section 38 Guidelines. ᴏ the development of kerbside management strategies to efficiently allocate kerb space for activities such as loading/unloading, deliveries, and passenger pick-up/drop-off, thereby helping to reduce congestion and promote well-being; ᴏ the implementation of flexible kerb space usage, which allows dynamic allocation of space based on the time of day or specific needs, optimising road space for various activities, including deliveries, and reducing congestion; ᴏ parking controls for on-street and offstreet parking, as well as the public and private parking supply with the intention of controlling the availability or price of parking spaces i.e.-who, when and how long vehicles may park at a particular location as well as time restrictions, user restrictions, limits on the number of parking spaces and their spatial distribution (including parking hierarchies), and parking pricing; While standards have a key role in supporting the integration of packages of measures, it is recognised that such measures will need to be clearly defined before they could be transcribed into design standards or Project Management Guidelines. Providing for ‘new’ space should also be included. For example, in upcoming changes to the TEN-T Regulations, there may be requirements for the provision of space for active modes and better integration of different modal networks. ᴏ opportunities for reducing parking and encouraging the redevelopment of parking spaces for more productive uses where redevelopment of urban centres/sites arise; Resourcing to upskill, and this needs to be a recognised as part of their job description to allow for meaningful engagement in training/education. It is clear that this Strategy will have resourcing implications for LAs but also present opportunities to enhance revenue streams. While it is recommended that local government structures are reviewed for their capacity to implement demand management, this Strategy proposes that LAs will be able to prioritise the establishment of multidisciplinary teams by extending the roles of Active Travel teams to include sustainable and accessible mobility, demand management, shared mobility, provision of infrastructure for EVs and enhancing the visibility of these teams across the LA system. Active Travel Officers should also be consulted with regard to preparation of local area and transport plans as well as planning applications. A more flexible approach to resourcing and recruitment is needed, including the types of contracts offered. As above, multi-disciplinarity within teams is key. As part of the recommendation to broaden the role of LA teams to allow for greater multidisciplinary resources (Recommendation 6), it will also be important for LAs to establish priorities within the wider remit – especially in times of low resources – and to ensure that current Active Travel work continues to be prioritised. Appropriate levels of funding will be a critical part of ensuring the expansion of resources within LA Active Travel teams. Active Travel teams were put in place to support LAs to deliver an increased number of projects following the uplift in funding under the Programme for Government. Approximately 320 posts were allocated, with circa 240 now in place – with a significant delivery record in a few short years. There is therefore potential to utilise the remaining sanctioned capacity to work in other policy areas e.g. the development of demand management schemes and measures, shared mobility initiatives and infrastructure for EVs. In terms of funding, the Department of Transport currently provides circa €300m on an annual basis to the National Transport Authority to support Active Travel projects with a further €60m provided for the development of greenways to Transport Infrastructure Ireland. Most of this funding (around €290m) is allocated to infrastructure projects while a smaller amount is allocated to behavioural change programmes. Other external cycling initiatives such as CycleRight and Bike Week also come from the overall AT budget. While the NTA and the Department of Transport (through DMURS and the Pathfinder Programme) have been active in supporting and building capacity through training in the Active Travel area, demand management is much broader in scope and local authorities (and elected members) would benefit from further training, especially where practitioners, institutions, agencies and local representatives (i.e. those associated with the various case studies) could be brought in to share their experiences. This Strategy recommends the involvement of demand reduction and sustainable accessibility impacts within active travel scheme developments, including updated criteria for related funding applications. However, other funding mechanisms may be reviewed to better utilise where overlapping and mutual benefits are likely to arise (i.e. public realm, traffic management, liveability, regeneration etc). For this reason, it is important that capacity is built within LAs for the long-term delivery of policy and quality outcomes, and not focused within one team (e.g., such as the current Active Travel Teams). To ensure LAs are adequately resourced – across functions – a review of processes and structures at LA level may need to be undertaken to implement that long term cultural change and capacity building. Upskilling and capacity building go together, and a longer-term view should be taken. Staff will need to be specifically encouraged It should be noted that greenway schemes can also contribute to modal shift in varying degrees. While greenways are most popular for recreational trips, they also have a function in enabling greater levels of travel via walking and cycling rather than private car use amongst leisure users and tourists but also by residents for non-recreational trips – shopping, education and work/business. ### Fiscal Measures *Pages 92–101* Demand Management strategies, starting with cities outside GDA and major urban towns. Finally, and building on the good work that is already underway at a national level (see Chapter 4), the successful delivery of transformative projects and initiatives – particularly at local level - will be heavily dependent on communications, co-creation, and engagement. Communication campaigns and engagement are critical to increasing awareness about the need for, and benefits of, demand management measures and to help mitigate against opposition from businesses and from drivers, and negative media coverage etc– engagement that goes beyond statutory processes, such as those related to under Section 38 of Road Traffic Act or Part 8 of Planning and Development Act (or relevant sections of the Planning and Development Act 2024, once commenced). Recommendation 5: Update national guidelines and standards in support of demand management measures in relation to road space reallocation and strengthen supporting oversight and co-ordination structures. Recommendation 6: Enable LAs to prioritise and deliver demand management through greater integration, collaboration and the establishment of multidisciplinary teams. Recommendation 7: Incorporate demand management principles into Active Travel Schemes while assuring alignment with sustainable accessibility and road safety requirements Accordingly, a key recommendation of this Strategy is to consider a funding mechanism to support LAs in the delivery of ‘behavioural change campaigns’ at neighbourhood/local community level, through in-house skills enhancement as well as through the procurement of specialists. No such support currently exists. Recommendation 8: Communications and engagement support for LAs. Recommendation 31: Establish mechanism to support demand management pilot measures The full list of recommendations across the whole Strategy is available in Chapter 10. Demonstration Fiscal Measures To support tactical urbanism, and to allow for the real-world experimentation of proposed measures, it is intended to establish a fund to support exemplar pilot projects that can demonstrate opportunities related to demand management, trial innovative interventions, and share best practice to allow for the scaling up of successful projects at a national level. This fund will support the trialing of demand management measures by agencies and LAs so that a best practice approach can be developed, and impactful measures can be accelerated and successfully delivered. Introduction Fiscal measures have a long-standing and continuing influence on travel behaviours across Ireland. In the context of this Strategy, fiscal measures can broadly be considered across three primary axes: 1. Incentivising: measures that incentivise and encourage desired travel behaviours and outcomes, In summary, taking account of the wide range of expert input from this sub-group, the following recommendations have been put forward to help optimise space – for the public good - in urban centres across Ireland. 2. Penalising: measures that penalise and discourage undesired or avoidable travel behaviours and outcomes, 3. Revenue generating measures that increase the available revenue and funding to support the delivery of demand management outcomes. Recommendation 3: Develop Demand Management Strategies at Local Authority level taking account of delivery of sustainable mobility alternatives. Individual fiscal measures will encompass at least one, and often multiple of these axes as part of an overall effort to achieve the desired outcomes of the Strategy. Recommendation 4: Prepare guidance and develop modelling and other supports for Local Authorities on the development of tailored The implementation of a fiscal measure has the capacity to impact the relative cost of travel between modes, vehicle types, and local areas depending on the approach taken to its design and implementation. Fiscal measures create the opportunity to better capture the external costs (economic, environmental and social costs) of transport so that the ‘user pays’ for the full extent of the impacts they are creating e.g., carbon and air pollutant emissions. Recent research34 indicates the estimated average external costs of driving to be €0.11 per kilometre. Likewise, it is also possible to incentivise behaviours that have positive external impacts. For example, the same research estimates that a kilometre of walking or cycling can lead to an external benefit to society of between €0.18 and €0.37 from improvements in physical and mental health. Strategy Group Paper 23/07, and the fact that ‘There have been many calls for equalisation of diesel and petrol excise rates in Ireland on environmental and public health grounds. The Climate Change Advisory Council, the Joint Oireachtas Committee on Climate Action, the European Commission, and the Commission on Taxation and Welfare have made recommendations regarding phasing out this excise gap’35. The Review also considered the potential phasing out of the current Diesel Rebate Scheme (DRS) and the potential to equalise the treatment of businesses ability to reclaim VAT on petrol and diesel. Consideration of these issues are summarised in the associated sub-group report. Vehicle Taxation (including measures to reduce the weight and size of vehicles) The measures discussed by this sub-group included interventions which affect the cost of vehicle purchase, ownership and use as well as measures that reduce the cost and barriers associated with more sustainable alternatives, including reducing the need to travel. Measures identified may be most appropriately implemented at either a national or local level depending on their specific characteristics. The current VRT scheme disincentivises the first registration (i.e. new and 2nd-hand imports) of high-emission passenger vehicles, by applying a vehicle registration tax which varies based on the tail-pipe emissions of CO2 and NOx per km of the vehicles being registered. However, heavy goods vehicles, buses, non-road mobile machinery and other such vehicles (VRT Category C) are not subject to an emissions-based rate and are charged a flat rate of €200. In addition to VRT, drivers also pay motor tax which is an annual charge on motor vehicles registered in the State, which varies according to the vehicle’s CO2 emissions band for private cars. As with all measures, fiscal measures can both directly and indirectly impact finances and affordability for individuals and businesses. It is therefore essential to fully understand both the macro-and micro impacts of these measures. This includes analysis of the distributional impacts of incentives and penalties to understand which groups within society (social, economic, demographic, or geographic subsets) are benefitting or being unduly burdened by the implementation of fiscal measures. This is a central requirement to ensure the measures implemented support a just transition to a more environmentally friendly and sustainable future for the transport system and its users. However, it was agreed that other forms of taxation should be explored moving forward. Stakeholders felt that there is merit in estimating the additional ‘cost to society’ externalities of larger/heavier vehicles, including their increased emissions of particulates from tyres and brakes, traffic noise, their need for additional roadspace (parking and lane width), the severity of injuries caused to pedestrians and cyclists and incorporating these additional externality costs into the VRT system. Additionally, annual vehicle tax based on annual mileage was considered. This was seen as having the potential to incentivise high mileage drivers to drive less or purchase lower emissions vehicles. Measures Discussed This subgroup also discussed and put forward recommendations in respect of the following. Fossil Fuel Subsidies At the outset, the sub-group noted the Tax 34 The Social Cost of Automobility, Cycling and Walking in the European Union 35 Climate Action and Tax, Tax Strategy Group – 23/07, July 2023 Fuel Pricing Measures Congestion Charging The easiest-to-implement distance-based road user charging system which targets fossil fuel use and incentivises the uptake of Zero Emisions Vehicles (ZEVs) is to increase the pump price of fossil fuel. This also broadly follows the ‘polluter pays’ principle. In Ireland, excise duty on petrol and diesel as well as the carbon tax represent fuel pricing measures. As recommended by the Five Cities Demand Management Study, those responsible for managing traffic in all of the large urban areas in Ireland should consider the costs and benefits associated with applying a daily charge for vehicles to use some or all of the streets within congested urban areas. The revenues generated by any congestion charging scheme(s) should be ring-fenced to pay for attractive alternatives to car use to/from/within the charged area. These measures also have the potential to generate a significant revenue stream for funding the alternatives to (fossil-fuelled) vehicle use, accepting that they would need to be considered carefully from a just transition perspective. Stakeholders discussed how charges could be applied to all vehicle types (ICE, PHEV and BEV), as they would be designed primarily to tackle congestion, not emissions, and that such charges could be varied over time, to incentivise the early purchase of low and/or zero tail-pipe emission vehicles. Road Tolling and Road Usage Charging The sub-group recommended consideration of the work and findings of Transport Infrastructure Ireland’s BRUCE project on the future potential options for road user charging across the Irish national road network. Other Measures to Incentivise LEV and ZEV Uptake (including EV charging infrastructure) To date, much of the funding emphasis around electric vehicles, including Low Emissions Vehicles (LEVs) and ZEVs, has been on supporting early adopters to overcome prohibitive upfront investments needed to purchase EVs. To support the widespread, equitable adoption of electric vehicles, Zero Emissions Vehicles Ireland (ZEVI) are shifting, in the coming years, from fiscal incentives for private vehicle purchases to funding programmes to support the implementation of a country-wide publicly accessible EV charging network. Recognising that any plan to introduce a new approach to road taxation would be implemented in a phased manner over time, it is suggested that work continues on examining the range of available options and on creating alignment across the Department of Transport and the Department of Finance on the future direction of road taxation across Ireland over the medium to long term, taking account of the recommendations from the Commission on Taxation and Welfare (COTW) in this regard. Low, Ultra-Low and Zero Emission Zones As noted in the Department of Finance’s Tax Strategy Group paper (TSG-06 2023), any VRT and Motor tax discounts for EVs should be time-limited, to balance the need to incentivise the early uptake of these vehicles with the corresponding need for financial sustainability of the Irish fiscal system. In areas which are identified to have particularly poor local air quality (based on concentrations of NO2 and/or particulate matter – PM10 and PM2.5) and particularly close to sensitive receptors (roadside residential properties, schools, high pedestrian footfall, popular cycle routes etc), there is merit in introducing ‘bans’ on the most polluting vehicle types, starting with pre-Euro 6/VI diesel vehicles, but potentially being subsequently expanded to include all diesel vehicles. Sustainable Transport Incentives Examples of these include: ᴏ Allowing drivers to retain their No Claims discount without requiring continuous car ownership; The group did not agree to the widespread introduction of ‘free public transport’, given that this encourages a shift from active travel modes to public transport use for short journeys, but rather proposed that the current concessionary travel for specific segments (e.g., seniors) be retained, given the other benefits which this free travel delivers to these often-low-income groups. However, the sub-group suggested that the overall public transport fares strategy should be designed to maximise the benefits of the multimodal transport system, not simply to rely on over- charging an inelastic ‘captive’ cohort of noncar owning bus users, while remaining financially sustainable. ᴏ Removing any impediment to the expansion of car-pooling from an insurance perspective; ᴏ Working with insurance companies to find ways to incentivise drivers to reduce their mileage and receive more affordable insurance; Fiscal Measures to Encourage Sustainable Land Use Local authorities responsible for planning and controlling local development, delivering and maintaining active travel infrastructure, local parking policy and provision, residential parking etc., need to be incentivised to reduce the need for unnecessary car ownership and use. Measures which reduce barriers to cycling are unlikely to suffer from the risks associated with providing ‘free’ public transport. However, tax incentives which encourage the purchase of bikes and e-bikes should remain available or be extended where possible. There was consensus in the subgroup for introducing a system which rewards local authorities that achieve reductions in the need for car ownership and car use. In particular, the role of fiscal measures in land use should be considered in this context. Fiscal measures could also be considered to incentivise employers, particularly large employers, to achieve specific targets for the car mode share of employee commuting patterns (both % trips and % of total commuting kms). The requirement to provide/support alternatives to car travel should be accompanied by the widespread adoption of a Workplace Parking Levy scheme, designed to reduce the availability of ‘free parking for all’ and with employers encouraged to allocate their reduced number of spaces on the basis of need, rather than pay grade. This scheme would be explicitly designed to avoid encouraging the development of additional ‘edge-of-town’ employment locations. These could include tax incentives (or conversely tax penalties) for employers who achieve (or fail to achieve) required targets. In line with recommendations from the Climate Change Advisory Council (CCAC), the sub-group suggested that the current Tax Saver Scheme should be reviewed/revised, to ensure that it offers appropriate sustainable transport incentives to those who now work on a hybrid basis and therefore commute fewer than five days per week. Challenges Measures associated with Vehicle Insurance All measures identified and recommended as part of the Fiscal Measures sub-group require further study and development prior to their implementation. Many measures are highly complex and careful consideration is necessary, including in relation to the potential for impact on existing taxation and related measures, in their design and delivery to ensure they are most effective. A detailed holistic examination of their potential secondary and tertiary impacts on individuals and communities will be critical to Vehicle insurance legislation should be used to remove any aspects of the current vehicle insurance system which encourage unnecessary car ownership or use, and to instead reduce (unnecessary) car use and incentivise the uptake of ZEVs. ensure undesired outcomes can be avoided or mitigated to the greatest extent possible, and to ensure a just transition. range of taxes and tolls applying to transport (motor tax, excise, VRT etc), and to consider the role that other charges e.g. distance-based road user charging, clean air zones, could have on behaviour, fuel and engines choices (passenger and freight vehicles). It is also recommended that an options report be developed on the above for consideration by Government, with a view to ensuring a coherent, and fair approach to transport taxes – one that is well-communicated, easily understood and publicly accepted. Solving a defined problem must sit at the heart of any fiscal measure considered – for either the adjustment of existing measures or the introduction of new measures - and it will be essential for agencies considering the implementation of any new measure to clearly articulate the purpose and impact of that measure on achieving one or multiple of this Strategy’s objectives. The sub-group recognised that there is no silver bullet and that some measures are more suited to short-term application while others are more suited to the long-term. Facilitating a just transition will be essential to the process, but Ireland can continue to look to, and learn, from international trends. This will be even more important when the rapidly changing mobility landscape is considered. Finally, it was advised that close coordination across Government and the private sector will be necessary when modifying or introducing any fiscal measures. Such work would be informed by: ᴏ Climate and Environmental Assessment of the National Development Plan Review (2022). ᴏ The Department of Finance’s Tax Strategy Group Climate Action and Tax paper 2023. ᴏ Department of Finance (2023) paper, ‘Potential fiscal impacts of the transition to a lower carbon economy in Ireland’. ᴏ Department of Finance (2025) Paper: A Decomposition of Economic Activity linked to Greenhouse Gas Emissions in Ireland June 2025. Conclusion and Recommendations ᴏ Department of Finance Tax Strategy Group (2025) paper: TSG 25-10 Energy Environmental and Vehicle Tax. In light of the above, a suite of recommendations related to Fiscal Measures are included in this Strategy. These recommendations are set out below and form part of the full suite of recommendations in Chapter 10. Any proposals of a fiscal nature that may emerge from these recommendations in the future will be informed by social, economic and distributional analysis and will ultimately be the subject of Government decision. ᴏ Budget 2026: Beyond GDP - Quality of Life Assessment, Green Budgeting (Chapter 6): Budget 2026: Beyond GDP - Quality of Life Assessment. On the flip side of taxation is the issue of subsidies. ESRI research in 2019 examined how removing fossil fuel subsidies would impact both the economy and carbon emissions. It found that the removal of such subsidies, such as the lower excise rate on diesel, would directly improve our emissions performance plus provide substantial fiscal headspace for the government to use for other climate and social policies. Vehicle Taxation, Fuel Pricing and Road User Charging In line with the observations of the sub-group, close collaboration will be required between a number of departments and agencies to help develop a coherent taxation approach to transport in order to support costs arising from infrastructural maintenance as well as costs of externalities (congestion, climate, air quality/ health, accidents and noise) while also ensuring the financial sustainability of the State as the transport system transitions to EVs. Accordingly, it is recommended to review the current broad The CCAC’s ‘Analysis on reform of Fossil Fuel Subsidies 2022’ stated that the removal of fossil fuel subsidies in the transport sector is recommended above other fossil fuel subsidy reforms. The Commission on Taxation and Welfare in its Foundations for the Future Report also recommended reducing fossil fuel subsidies and developing new taxes to replace the revenues from fossil fuel taxes. Further work in this area would be informed by the Review of Fossil Fuel Subsidies and Other Potentially Climate Harmful Supports (2023) and work relating to ‘environmentally harmful subsidies’ at EU level and obligations to phase these out. Legislation to introduce a version of the above in Irish cities would be required. Such a measure is also likely to have implications for the Traffic Signs Regulations, Traffic and Parking Regulations, Traffic Signs Manual, etc. The sub-group recommended that a review of existing legislation be undertaken to establish whether amendments and/or new legislation would be required for creating appropriate powers. Also aligned to taxation and subsidies will be the need to explore broader financing options for delivering on demand management objectives e.g. development contribution schemes, retail parking levies, EIB. LAs will also be encouraged to develop internal protocols for harnessing private financing. It would be important to also develop a methodology/process to determine the need/ impact of any proposed LEZ. In line with the recommendation in the Clean Air Strategy, it is suggested that more modelling or a theoretical pilot on the impact versus the cost of such zones be considered to determine if they will be effective for pollution and cost effective particularly taking into consideration the other measures. Low Emission Zones and Congestion Charging Ireland does not operate low-emissions zones or congestion charging. LEZs and congestion charging have the potential to dramatically reduce air pollutants in cities. Congestion charging, if implemented correctly, can both reduce congestion and be a valuable source of finance for transport infrastructure projects and services. It is worth noting the differences between congestion charging and LEZs. LEZs and clean air zones, for instance, can have limited impact on congestion (as people simply procure replacement low emission vehicles). The main objective of such zones is to remove high polluting vehicles from city centres. While supporting legislation may be in place, it will be important for LAs to determine if LEZs are needed, what the impacts on air quality will be (modelling support) and any unintended consequences. This would need some standardised guidance to make sure all LAs are using the same approach. Finally, to ensure parity, it will be important that out-of-town retail parks and industrial zones will not enjoy any beneficial fall out from congestion charging in urban centres. Accordingly, it is recommended that a review of LA powers to introduce parking levies on out-of-town retail parks and industrial zones also be undertaken. The penalties/fines for nonconforming vehicles are generally used to operate the scheme. Congestion charging, however, is a form of urban tolling, and therefore reduces congestion (as it affects all cars, not just high polluting vehicles). It also raises revenue. Incentivising LEV and ZEV Uptake (including EV charging infrastructure) In London, since the introduction of the congestion charging and LEZs, congestion has reduced by 30%, bus travel has increased by 33% and it has enabled 10% of journeys to switch to walking, cycling or public transport. In terms of air pollutants, since the Ultra LEZ or ULEZ was introduced in 2019, London has seen a 46% and 21% reduction in NOx emissions in central and inner London respectively. Additionally, over the last two years in London, the combined congestion charge and low-emission zone has generated approximately £884m in net revenue which is reinvested in transport services in the city. With regard to other measures for supporting LEVs and ZEVs, it was acknowledged by the subgroup that there is a broad suite of supports for EVs already in place including low VRT, motor tax and BIK rates, VRT and BIK reliefs and purchase grants. However, taking captive car users into account, the sub-group gave consideration to the need for reviewing tax breaks, benefit schemes or subsidies (full or partial) to aid in the purchase of a zero or low emissions private vehicle particularly for people who by virtue of their circumstances, are more reliant on their cars for long journeys e.g., those in isolated locations. This could also include short term incentives for ‘first car’ transition to EV or a targeted scrappage scheme, via a grant scheme, to make EVs more affordable for captive car users. Financial incentives for EV charging infrastructure would also encourage greater uptake. There are issues that need to be closely considered by policymakers and industry as this area develops. The Strategy recommends working with the industry, to explore options for supporting the overall objectives of this Strategy, including the delivery of targeted consumer communications on related activities. Accordingly, it is intended to review existing incentives for encouraging uptake of EVs, with a focus on targeted supports for captive car users. Encouraging Sustainable Land Use Consideration will also be given to increased grant support for HDVs through ZEVI’s zero emission purchase grant scheme (ZEHDV) which succeeds the AFHDV scheme in 2024. This recommendation will also consider the need for expanding the ZEHDV scheme to provide financial incentives for EV depot charging infrastructure to also encourage uptake. As outlined by the sub-group on Integrated Land Use and Transport Planning, compact settlements are critical to the delivery of sustainable transport options. As such, full implementation of the NPF, and the revised NPF, will be essential to achieving a 50% reduction in carbon emissions in the transport sector by 2030. It is acknowledged that fiscal measures can play an important role in influencing sustainable land use but these need to be carefully designed and managed in order to avoid unintended consequences. Vehicle Insurance It is proposed to explore, working with the insurance industry, opportunities for incentivising safer and more sustainable travel behaviours, including less car use and better incentives for car-sharing and carpooling. Identifying and addressing any practices that inadvertently incentivise unnecessary car ownership would also be considered. While some of the supports could lead to reduced car ownership, with associated impacts on the numbers of premiums sold, it is anticipated that lower traffic volumes would help to reduce overall risk of accident including a consequent reduction in the costs of pay-outs to the industry. It is clear from previous experience in Ireland and elsewhere that appropriately targeted and timebound tax-related measures that are integrated with broader policy objectives and properly managed, can be transformational. Focused application of taxation measures would underpin national planning policies and objectives relating to provision of 30-50% of new homes within and close to the existing ‘footprint’ of built-up areas as set out in the National Planning Framework (50% in the five cities, 30% elsewhere). The objective of this would be to rebalance the attractiveness of greenfield development over brownfield regeneration in terms of cost, attraction of investment and viability of projects, in favour of brownfield development. The role of telematic technology in measuring driving behaviours (including distance driven) will also be considered. This is an emerging feature of insurance products in the Irish motor insurance market. Such technology has the scope to reward better driver behaviour, and encourage better driving habits, by offering discounts to drivers who achieve a series of targets set by the insurance provider, including lower premiums for lower mileage. At the same time, there is a need to be mindful that increased focus on technology brings challenges in terms of the ethical use of data and the potential for individualised risk profiles, which can potentially prevent consumers accessing appropriate insurance cover. Whilst not a ‘tax’ measure in the normal sense, the use of the obligations relating to development contributions under the relevant provisions of the Planning and Development Act 2000 is an essential tool in providing the ability for the State, through local authorities, to secure either financial contributions or works associated with delivering the infrastructure required to support development including housing, such as transport infrastructure projects and other facilities required by the community. The aim is to bring forward measures to improve the infrastructure-financing model, supporting the delivery of more homes and benefits to the wider community, including reviewing development contribution arrangements. on the land and with sufficient service capacity available for such development. These residential zonings are considered to reflect the housing need set out within the core strategy for the relevant local authority area. As acknowledged by the sub-group, the CTW recommended the introduction of a Site Value Tax (SVT) on all land currently not subject to Local Property Tax. This includes all commercial (developed and undeveloped), mixed-use, agricultural, undeveloped zoned residential lands, and State-owned lands as well as all land on which derelict and uninhabitable premises sit. The CTW recommends that SVT should replace the existing system of Commercial Rates over time and that there should be differential treatment in the application of Site Value Tax to agricultural land. The RZLT aims to ensure that lands which are zoned for residential purposes, and which have benefitted from investment in services by the State are actively managed to ensure a constant supply of housing to meet identified need, thereby acting as an incentive to support implementation of the National Planning Framework, including the compact growth objectives focused on the consolidation of settlements, and the Government’s housing action plan Delivering Homes, Building Communities. Having regard to the extensive dereliction and vacancy of buildings in city and town centres, the Department of Housing Local Government and Heritage has also made several updates to commercial vacancy rates and vacancy provisions under Section 9 of the Local Government Rates and Other Matters Act, 2019. This provides a new legal framework for commercial rates from 2024 onwards. The aim of this section is to discourage commercial vacancy and to allow elected members to devise vacancy abatement schemes targeting specific types of vacant commercial properties to incentivise usage. While this is positive progress, it is recommended that taxes for derelict or vacant properties are more onerous to prevent property hoarding. It is noted that there are strong commitments in the Government housing plan Delivering Homes, Building Communities to end dereliction and vacancy, including legislating for a Derelict Property Tax in 2026. However, it is worth noting that Finance Act 2021 introduced Part 22A Residential Zoned Land Tax (RZLT) into the Taxes Consolidation Act 1997. The RZLT is designed to prompt residential development by owners of land that is zoned for residential or mixed-use (including residential) purposes and that is serviced. RZLT is an annual tax, managed by the Revenue Commissioners, calculated at a rate of 3% of the market value of the land within its scope. The tax is due and payable from 2025 onwards. Lands in scope for the tax are identified annually by local authorities, who are required under the legislation to prepare and publish draft maps in respect of which landowners can make submissions, and subsequently final maps identifying the lands to which the tax will apply for the following year. It is important to note that, to come within the scope of RZLT, land must be both zoned for residential use and serviced. Land that is zoned for residential use within a statutory land use plan, but which is not currently serviced, is not within the scope of the tax and will only come within the scope of the tax should the land become serviced at some point in the future. It is worth noting that any changes to rates system would require extended consultation across Government departments, LAs, state bodies and stakeholders, and full consideration of impacts on policy that is beyond the remit of transport. Given the range of measures that are currently being implemented, it is considered preferable to allow these measures to progress before undertaking a review of additional fiscal measures in land use. Land will be considered to be serviced for the purposes of the tax where it is reasonable to consider that the land has access to, or may be connected to, public infrastructure and facilities, including roads and footpaths, public lighting, foul sewer drainage, surface water drainage and water supply, necessary for dwellings to be developed Within the context of incentives, the Strategy recognises the existing Living City Initiative - a very specific tax measure with the aim of encouraging businesses and home-owners back to the centre of Irish cities in order to preserve historic buildings in special regeneration Workplace Parking Levy areas. The scheme offers relief from income or corporation tax for qualifying expenditure incurred on the refurbishment and/or conversion of qualifying buildings located within the special regeneration areas in the centres of Dublin, Cork, Limerick, Galway, Waterford and Kilkenny. In relation to the Workplace Parking Levy, it is intended to review existing legislative provisions in this area. The Finance (No. 2) Act 2008 facilitated the introduction of a workplace parking levy - that is a charge on employees for the use of car parking facilities which have been provided by their employer in designated urban areas. It did so by inserting Part 18B into the Taxes Consolidation Act 1997. Finally, there is a commitment in the Government’s housing action plan, Delivering Homes, Building Communities, to publish a National Planning Statement that will set out relevant planning criteria to be applied in local authority development plans for rural housing, based on the high level policy framework set in the National Planning Framework. The CCAC have recently called for the workplace parking levy to be introduced. The NTA also raised the prospect of a workplace parking levy in its Greater Dublin Area Transport Strategy, with a view to discouraging the use of existing car parking spaces at all workplaces in Dublin city centre, key towns and large metropolitan centres. These Guidelines will ensure ongoing consistency with legislation at national and EU levels related to rural housing, such as environmental protection, Gaeltacht and climate action legislation and provide a framework for the sustainable management of housing in rural areas. A workplace parking levy is in operation in Nottingham in the UK, with a Transport for London briefing note saying that around 25,000 car parking spaces are liable for the payment (see detailed case study in Appendix 1 of this Strategy). The sustainable management of housing in rural areas will have a critical role in reducing demand as part of this Strategy. When the legislation was introduced, the intention was that the levy would apply in the five urban areas of Cork, Dublin, Galway, Limerick and Waterford, with the exact areas to be designated by order of the Minister for Finance. However, the legislation as currently framed could pose implementation difficulties – it is administratively complex, and inflexible. The levy amount prescribed in the legislation is considered too low to be effective as a disincentive. Other alternatives to the workplace levy could also be considered, e.g. removing the income tax BIK exemption for employee car parking. This Strategy recognises and strongly supports the potential positive impacts and strong alignment with demand management objectives of the range of proposals and initiatives currently being developed as outlined. It is recommended that the advisory arrangements proposed in relation to alignment with the NPF (Recommendation 1) would also be sighted on developments in relation to these measures and offer any support it can in advancing these. Alternatively, free parking at work could continue to be tax-exempt only if commuters who do not drive to work are offered a benefit of equivalent value. Called ‘parking cash out,’ this policy does not take anything away from commuters who drive to work. Instead, it creates a new benefit for commuters who do not drive to work. In summary, it was recommended to review the provision in the Finance Act, provide an update in context of the objectives of this Strategy and bring forward recommendations as part of the budgetary process. This element of the review was undertaken by Department of Finance as part of the Tax Strategy Paper process for Budget 2025. ### Generators of Demand (Education, Sport, Public Sector and Tourism) *Pages 102–110* Generators of Demand (Education, Sport, Public Sector and Tourism) The second element of the Review will evaluate a wider set of options to disincentivise workplace parking including the provision of a cash alternative to parking BIK. Further detail on all of the recommendations, summarised below, is provided in the Implementation Plan. Recommendations around sustainable transport incentives are captured later in this chapter under the work of the Captive Car Users Sub-Group. Introduction For most trips, transport is a derived demand in that people don’t travel for travel’s sake, but because they wish to access places to satisfy a need (work, education, leisure, etc). In this way transport is personal, it is a means to an end, e.g. for pupils to get to school. An important component of an effective demand management strategy is to explore generators of large quantities of travel demand and to identify physical and motivational interventions that will influence travel choices. In Ireland, many trips every day are associated with public sector employment, education, tourism and sports. The focus of this subgroup was to discuss and identify transport demand measures that aim to change mobility habits associated with these generators of demand, to support a reduction in personal car use whilst addressing the need to travel and access services. Recommendation 2: Develop a pathway for the development of a cohesive, equitable and futureproofed taxation approach on transport based on a ‘user and polluter pays’ principle. Recommendation 9: Supplement, through alternative financing options, existing supports from national Government. Recommendation 14: Review existing incentives for encouraging uptake of EVs, with a focus on targeted supports for Captive Car Usages. Recommendation 17: Review relevant legislation to ensure powers are sufficient to bring forward demand management measures. Recommendation 24: Strengthen focus on transport/mobility related dimensions of corporate sustainability requirements. Demand management interventions targeted at key generators of demand often enhance the effectiveness of wider investment in sustainable transport infrastructure and the operation of services. Measures that support and encourage mode shift will increase the benefits of active travel and public transport improvements. On the other hand, measures that reduce car use can result in more efficient use of road infrastructure leading to lower levels of future investment need. Recommendation 26: Work with the insurance industry to examine how it can contribute to the achievement of the objectives of this strategy, particularly in respect of consumer communication on activities that may reduce unnecessary car ownership There are many wider benefits to encouraging sustainable travel linked to generators of demand, such as direct improvements to people’s health and wellbeing. For example, encouraging children to walk, cycle or scoot to school helps them build physical activity into their day. In turn, physical activity on the way to school is linked to measurable increases in concentration, positivity and academic performance leading to further advantages. Reducing car traffic around schools helps address air quality and noise pollution, bringing about more benefit to children’s health and wellbeing. Measures Discussed In collaboration with various stakeholders, this sub-group gathered a comprehensive set of measures aimed at delivering the objectives of the Strategy. These measures have been grouped as follows: | Encourage sustainable transport through information and promotion | Support behaviour change with targeted interventions to lower barriers to sustainable transport use | Improve the availability of sustainable transport though measures targeted at generators of demand | | --- | --- | --- | | • Public information campaigns • Sustainable transport auditing / awards | • Travel planning and management for large and special events • Remote working • Smart travel plans | • Bike libraries • Carpooling programmes • Expanding sports grants • Destination amenities • Workplace shuttle buses | | Sustainable transport for schools | | | | • Bicycle training in schools • Safe Routes to School programme expansion • School Transport Scheme | | | Encourage Sustainable Transport Through Information and Promotion Organisations may take a number of steps to support sustainable travel practices among staff, such as implementing travel plans and providing amenities that support active travel. These efforts can be assessed against a set of criteria, with organisations audited and accreditation provided based on these criteria. Awards can be granted for outstanding achievements in growing sustainable transport. Communicating the success of such change also plays an important role. This measure is about using wide-reaching public information campaigns to increase awareness of and promote sustainable transport. In areas where car preference is strongly embedded, public information campaigns and sustainable transport promotion brings about better overall results when delivered alongside other interventions to address shortcomings in the availability of alternatives. Support Behaviour Change with Targeted Interventions to Lower Barriers to Sustainable Transport Use Another role of public information campaigns is to communicate the outcomes of sustainable transport investment and so support wider change. Promoting the benefits of sustainable infrastructure projects in a pre-emptive way can minimise opposition to change. There is potential to integrate sustainable transport campaigns with other relevant public information activities, such as promoting healthier lifestyles. Special events, such as major sports matches, cultural events, exhibitions and music festivals, can draw large crowds. Some large transport and tourism hubs, such as airports, also generate significant additional transport activity. The way in which attendees travel to a venue can be a big contributor to transport emissions and puts intense pressure on the existing transport network. There are ways in which sustainable travel to and from events can be supported. This may include event advertising, temporary cycle parking, travel guidelines focused on traffic and transport management, and the provision of Information and promotional campaigns can be scaled to suit varying needs. They may be targeted at a specific group such as the ‘Walk on Wednesday’ campaign to promote walking to school and Discover Ireland’s “Car-free, carefree” advertisements promoting sustainable tourism. shuttle buses between the venue and rail stations and park and ride facilities. Depending on the scale and location of an event as well as its nature, additional rail services could have the potential to meet the associated transport demand, for example to bring thousands of supporters to matches in Croke Park. Bike libraries and mobility hubs are new initiatives that meet these needs. Bike libraries provide the opportunity to borrow and test-ride bikes for a period of time. Bikes, and especially e-bikes, folding and cargo bikes, can be prohibitively costly to purchase and as such this cost can be an obstacle preventing people from opting to cycle. Bike libraries, therefore, provide a risk- and commitment-free way to try or get back into cycling. Mobility hubs can vary in their offerings with some simply providing access to a bike or scooter hire scheme and others offering enhanced connectivity to multiple modes including public transport and car sharing schemes. The journey to work is one of the main sources of transport-related carbon emissions and measures targeted at this can have a significant impact. Remote working can reduce the need to travel to work. This measure would look at building upon the existing policies and financial supports that are available for public sector remote working, to reduce or eliminate commuting distances. However, this would need careful consideration as research on travel patterns suggest hybrid working is not as effective on reducing kms travelled as initially expected. Evidence on the consequent redistribution of emissions related to remote or hybrid working is still evolving and should be taken into account as policy in this area develops. The provision of additional amenities within a workplace such as shower facilities, changing rooms, lockers, secure bicycle parking and repurposing car parking for other uses to support active travel can support a change to sustainable travel modes. It can also include the provision of clear and direct on-site walking paths. These should minimise travel times through the grounds and from nearby public transport stops and the local surrounding area and avoid the need to navigate chaotic car parks in order to reach the desired destination. To further facilitate travel behaviour change among staff and other visitors, travel plans can be designed and implemented at workplaces, educational campuses, and at other organisations. A Smarter Travel Plan is a package of measures aimed at supporting sustainable travel for work related journeys. A smart travel plan comprises actions to promote walking, cycling, public transport, and carsharing instead of private car use, and the use of technology and flexible working practices instead of travel. Survey results from the Smarter Travel Programme show a shift from single car usage to more sustainable modes of transport, with single-car usage declining on average by 7%. Campuses and Partners located outside Dublin registered the largest declines in single car usage; -8% and -14% respectively. Noticeable movements towards greater walking and cycling modes are also reported. For workplaces that are located some distance away from public transport or active travel options, carpooling programmes and workplace shuttle buses can help bridge the gap. This can be a useful solution for businesses located at outof-town business park sites. Shuttle buses may be offered for an entire site or may be specific to individual employers. Workplace shuttle buses can form a useful part of a Workplace Travel Plan. At present the sports capital and equipment programme provides funding for EV charging facilities, as well as security measures such as CCTV and bicycle parking. There are potentially, however, more opportunities for reducing the impact that travelling to sports events has on carbon emissions. At present, the purposes for which sports grants can be received do not include funding for minibuses or footpaths, both of which could reduce private car trips. It could also be made a requirement to meet certain sustainable transport criteria to qualify for nontransport related sports grants so that investment in sustainable transport is delivered alongside other improved facilities. Improve the Availability of Sustainable Transport Through Measures Targeted at Generators of Demand By improving the sustainable alternatives on offer, people are encouraged to make a more sustainable choice. The sub-group discussed a variety of measures which could achieve this. Sustainable Transport for Schools Funding will also be an issue. In many instances, ongoing funding is required to deliver initiatives. School trips generate a substantial amount of journeys in Ireland. While bicycle training is already available in many schools, this could be expanded. Providing all children with the opportunity to get on a bike and learn to ride will help to embed active travel into each generation. Training children with the skills to become confident cycle users who can, when age appropriate, navigate roads, will help them to do so safely. This could be rolled into an expansion of the already successful Safe Routes to School Programme. This funding may be for the hiring of staff or for the delivery of infrastructure. Fixed-term contracts are proving prohibitive for many potential employees with organisations unable to fill active travel roles. Additionally, many projects will need a certain amount of ongoing funding after completion for maintenance or programme costs. This will need to be catered for long-term. High quality connected infrastructure will be needed to support participation. In addition to new infrastructure, consideration for the integration of existing and planned active travel and public transport networks will be required. School bus services provide a convenient alternative to taking the car. A review of the School Transport Scheme was brought to Government recently. The review has been conducted with a view to examining how expanding the current scheme would impact its effectiveness and sustainability, while ensuring that it serves students and their families adequately. More widely, there may be potential to integrate schools bus services with other transport provision, such as public transport services. Some of these measures will require the collection of data before and after the measure is put in place. This would include data on the modes of transport used, to find out how many people switched to sustainable travel as a result of a measure. It can be valuable to get specific data, such as for bike library users to find out the proportion who switch from car to cycling, separate from those who may have switched from walking to cycling. Challenges Further considerations would include location, accessibility, and social impacts and risks. While it was considered that most measures could broadly be applied to all geographies, some environments presented unique challenges. Initiatives in rural areas may have to differ in implementation to urban areas for example. Different mobility requirements might necessitate a difference in approach for some measures. This would be to ensure that there is equity of opportunity to participate. Resourcing has been, and will continue to be, a challenge for the implementation of the measures discussed. Resourcing is the lynchpin of all these measures since, without it, delivery will not be achieved. Resourcing includes resourcing for staff expertise, the provision of time and funding for staff to deliver the measures, and the funding of the measures themselves. Staff will need to be knowledgeable and equipped to deliver these initiatives. Given that many of these initiatives will be organisation-led, this will fall outside of the normal expertise of their staff. Additionally, in many of these sectors, volunteers are relied upon extensively. Any additional roles and requirements may risk placing an additional burden on employees. In some sectors, staff shortages will be an issue. For example, there is currently a shortage of bus drivers to deliver services across Ireland. Another key challenge is that for most staff tasked with leading on these initiatives, it is an add-on to their day-to-day tasks meaning their time is often very limited. Finally, leadership (particularly from the top down) and communication campaigns were deemed essential to ensure delivery and buy-in from the public. Without this, initiatives will struggle to get off the ground. Measures that were discussed have the potential to be transformative for transport, health and inclusion if implemented correctly and with the buy-in of the relevant organisations and the public. Conclusion and Recommendations to walk, cycle, use public transport or carpool in their commute will contribute to staff wellbeing as well as reducing transport-related emissions. The installation of bike racks for staff and customers would be essential. Encourage Sustainable Transport Through Information and Promotion As part of the strategic development of Ireland’s hub sector, the Department of Rural and Community Development and the Gaeltacht (DRCDG) in conjunction with the Department of Enterprise, Tourism and Employment (DETE) are leading on the formulation of a National Hub Strategy. As part of this Strategy, DETE will lead on the enterprise pillar while DRCDG will be the lead department for coworking in hubs and digital services at Broadband Connection Points. Given the important role that companies can have in shaping travel behaviour, recommendations have been developed to support and strengthen focus on transport and mobility related dimensions of corporate sustainability requirements. For example, working in a collaborative way, it is expected that larger businesses, or groups of businesses (for example, in business parks) would be encouraged to prepare a Smarter Travel Workplace Plan and to apply to the NTA’s Smarter Travel Mark. Supported by the NTA Smarter Travel Programme, plans would include targets for supporting a reduction in carbased business travel, and the removal of free workplace car-parking, coupled with supports for sustainable mobility options and incentives for the delivery of online services and the promotion of remote work. The initial focus of the Connected Hubs initiative was on establishing a network of remote working hubs and achieving the initial critical mass. As part of the strategy and in this instance the strategic development of the Connected Hubs network, businesses that can work remotely will be encouraged to support remote working from hubs to (amongst other things) reduce commuting distances for workers. The remote working pillar of the National Hub Strategy will be developed to incorporate specific named commitments in this area. A number of large employers already provide shuttle bus services to staff as a way of improving access through sustainable transport measures. Examples include Microsoft in Sandyford, the staff shuttle bus at Galway University Hospital (linked to the park-and-ride but also offering transport between sites), and services operated by businesses such as Enterprise Ireland, which run from bus and Luas stops to the East Point Business Park. At a national level, it is proposed to review the latest data and research on remote working to optimise emissions reduction potential, including incentives for workers and employers, and to look at expanding existing supports and policies for remote working, to reduce or eliminate commuting distances. This would include a consideration of a proposal raised by the sub- group to allow workers to work from home for one month a year in addition to their existing hybrid working patterns. However, it is worth noting that there is a risk that remote working could lead to otherwise unsustainable development patterns becoming more attractive and trips for other purposes being more likely to be undertaken by private car. As such, these recommendations should only be implemented in a manner that is consistent with sustainable planning and development policies. There may be opportunities to integrate this with Great Places to Work and to develop a Pilot Public Engagement Programme on this theme. System changes could be introduced so that companies with a Smarter Travel Plan accredited through the NTA scheme will be given formal recognition for this in their interactions with the State. There is also an opportunity to work with companies to encourage a review of delivery demands on freight and logistic services, which is driving demand for inefficient journeys, thus sharing liability with consignors – particularly in the retail industry. In addition, under this recommendation, companies would ensure that everybody who drives as part of their work receives training in efficient driving practices. Where driving is a necessary part for business, it is critical that all drivers employ practices to reduce emissions, which can help save on fuel and on businesses As part of this recommendation, and in line with DETE’s Climate Toolkit 4 Business, companies could support all staff to adopt more sustainable commutes and work options. Supporting staff carbon footprint. The SEAI Energy Academy is a free online training resource and offers a module on eco-driving to help you learn the basics of ecodriving techniques. ᴏ Incentives for sustainable business travel such as employer-led shared mobility allowances, exploring how shared mobility uptake could be promoted through tax efficient incentivisation. One example might be a ‘gift’ to employees of pre-paid credit for the use of shared micromobility (bike, ebike and/or Personal Powered Transporters/PPTs) over the course of a tax year on a tax-free basis. Finally, it is proposed that DETE will engage directly with the Department of Transport, TII and others on improving the transport sustainability messages for business, with a particular focus on ensuring that the ‘Climate Toolkit 4 Business’ actions which get recommended to businesses are up-to-date and as precise and impactful as possible. ᴏ An early, short review of existing park and ride facilities (e.g., New Park and Share Facility (M1), and if proven to be successful, the preparation and publications of a plan for extending these facilities nationwide by 2030. In summary, the recommendations being proposed in this area are: ᴏ Also suggested is a plan for the rapid rollout of further park and ride facilities - to be published within a year of the publication of this Strategy. This plan could also include park and share/pool, and park and stride i.e., opportunities to park outside of the town where people can walk or take an alternative mode of transport, preferably EVs. The NTA’s Park and Ride Development Office, which was established in February 2020 on foot of the Climate Action Plan 2019, would be expected to play a key role in this area. The Office was set up in 2020 to enable the delivery of key Park and Ride sites in collaborationwith Local Authorities, Irish Rail and transport agencies in the Greater Dublin Area and Regional Cities. Recommendation 15: Continue to evolve opportunities for flexible and remote working and digitalisation. Recommendation 16: Encourage greater utilisation of remote working from hubs. Recommendation 24: Strengthening focus on transport/mobility related dimensions of corporate sustainability requirements. Improve the Availability of Sustainable Transport Through Measures Targeted at Generators of Demand ᴏ Continued roll-out of bike libraries, cycle training in schools and promotion/ updating of Bike to Work Scheme, as well as ongoing progression of SRTS with a strong commitment to delivery of this work over the period to end 2030. In line with market research, it is clear that there is also a need to reiterate and re-publicise existing initiatives such as the Bike to Work Scheme. Further to rich discussion by the sub-group and building on the 91 actions that were progressed under the 2022 SMP, the following are recommended for advancement as actions in the next iteration of the SMP Action Plan 2026-2030. Among the measures suggested for consideration that would support the objectives of this Strategy include: ᴏ LAs plan for the provision of shared mobility alongside other facilities, including bike storage, shelter, information, signage, integration with existing public transport services and infrastructure. It is recommended that this be a joint responsibility of local authorities, NTA, TII, Bus Eireann and Local Link informed by the policy statement on shared mobility hubs that is currently being developed by the Department of Transport and a large-scale Mobility Hubs pilot that is being led by the NTA. ᴏ Review fares to consider possible further incentives. Such incentives could potentially be funded from revenue that is raised through the deployment of demand management measures. ᴏ In line with recommendations from CCAC, update Tax Saver Scheme (so that it offers incentives to the many people who now work on a hybrid basis and commute less than 5 days a week). The market research undertaken to inform this Strategy also pointed to the potential role of short term ‘novelty’ discounts in introducing many people to the advantages of public transport as well as discounted cost for families. In this context, a review of public procurement policy is recommended to ensure that the public sector, including its suppliers, are not – by virtue of policy design - increasing private car demand unnecessarily. Significant procurements should place appropriate requirements on service providers to reduce travel demand in the delivery of the service being procured. As outlined in earlier sections, certain policies can create an increase in travel demand by the manner in which they are implemented. For example, in the area of special education, continued collaboration is needed between the Department of Education and Youth, the National Council for Special Education (NCSE) and local authorities with regard to school planning and building policy, to help reduce the travel distances that some children with special educational needs face each day in order to access appropriate school places while at the same time recognising that dedicated or bespoke transport services will continue to be required for children with additional needs in order to attend school, given either the nature of their special needs or the location of their school. ᴏ Improved data on the types of journeys being made, and by whom and for what reason (origin/destination data). ᴏ Improved real time data for rural public transport services to improve public transport predictability. ᴏ Greater role for LAs in delivery of local public transport services, so that there can be greater integration with infrastructure projects that fall within remit of LAs. ᴏ Carpooling between work colleagues, classmates or people who live within a close proximity can be an efficient mode of sustainable transport. Carpooling generally suits locations where public transport, walking and cycling options are limited. The NTA provides guidance on carpooling schemes. Among the supports that were considered needed to embed the practice in Irish society are a sustained publicity campaign, suitable apps for shared car users, and possible facilities for using bus lanes (if the car has four passengers etc). In the public sector more broadly, and supported by NTA Smarter Travel Programme, public sector organisations will be required to have plans in place that will include targets for supporting a reduction in car-based business travel, and the removal of free workplace car-parking, coupled with supports for sustainable mobility options – walking, cycling, shared and public transport - and incentives for the delivery of online services and the promotion of remote work. Employers may choose to provide additional amenities within a workplace to support sustainable transport trips. ᴏ Measures that would encourage a move away from car ownership such as incentives to dispose of second cars and to move to greater use of public transport including sustainable travel credits combined with a targeted scrappage scheme for older fossil fuelled cars. ᴏ Review potential for greater alignment of Government policy and supports in respect of escort to schools and Green Travel Programmes. For example, this may include the provision of shower facilities, direct walking paths on-site and secure bicycle parking to support active travel. As well as Smarter Travel Plans, building programmes in the public sector (particularly the Education and Health sectors) should seek to minimise or reduce transport demand by private car. Planning decisions to locate services in areas that generate demand and/or have no public transport/active travel provision should be prohibited. Public authorities must lead by example in this area and ensure that any future development of public buildings are provided in locations that reduce transport demand. ᴏ Consideration of wider Local Link role in the provision of sustainable mobility services including to educational centres. It is also proposed to review and identify existing Government programmes that potentially generate increased travel demand with a view to ensuring these impacts are minimised by identifying good practice models which can be introduced more widely and appropriate reporting to assess impacts. This will help to embed demand management principles across all relevant Government funding programmes. Recommendation 18: Embed demand management principles across all relevant Government funding programmes In relation to procurement, all procurement using public funds must incorporate sustainable procurement principles, taking into account the Green Public Procurement (GPP) guidance and criteria sets produced by the EPA, as well as the OGP’s Opportunities and Approaches for Sustainable Public Procurement. The following could be reviewed to ensure such principles are fully developed from the perspective of supporting the objectives of this Strategy: Recommendation 19: Reduce transport demand created by Public Sector services Recommendation 20: Leverage potential of Civil Service Motor Travel Rates to effect change, including the introduction of single rate for all cars regardless of engine type. ᴏ OGP Guidelines for Goods and Services (updated October 2023) which have guidance for social and green procurement. Support Behaviour Change with Targeted Interventions to Lower Barriers to Sustainable Transport Use ᴏ Circular 20/19 Promoting the use of environmental and social considerations in public procurement In order to effect behavioural change and reduce induced demand for car travel across sectors, attractions with annual visitor numbers over 300,000 would be encouraged to target a higher % of arrivals by sustainable travel options via Vehicle Proportion Reduction Plans. Where public transport alternatives are in place, all airports and events attracting over 20k will also be encouraged to identify measures, including the promotion of available public transport, to support captive car users/event attendees. ᴏ Circular 05/23 – initiatives to assist SMEs in Public Procurement ᴏ National GPP guidance and criteria sets produced by the EPA. The public sector can also lead on the avoidance of transport demand through support for Connecting Government 2030 – A Digital & ICT Strategy for Ireland’s Public Service including Better Public Services & Life Events digital service set up which should have a reasonable impact on people needing to travel to government offices. This would include a range of initiatives aimed at supporting sustainable travel to/from events. This may include raising awareness about sustainable travel options at the time of booking or at the time of arrival. Event-specific shuttle bus provision could also be provided - linked to fixed public transport such as rail stations and temporary cycling parking, or event travel guidelines focused on transport management. Among the measures could be a targeted reduction in car parking spaces. Another avenue to explore is licensing and the potential within this context of stipulating usage of public transport to/from events. Aligned to supporting a systemic change across the Government sector, which would have wider influence and behaviour change implications for the private sector, is the need for a review of the civil service mileage allowance system to encourage an incremental reduction of incentives for business-related car travel, particularly ICEs. All of the above is encompassed under the following Recommendations in Chapter 10: Recommendation 13: Develop further ‘supply side’ measures, particularly shared mobility interventions, to augment sustainable mobility alternatives in next iteration of SMP Action Plan. Similarly, for sports events, and building on the sports capital and equipment programme, which provides funding for EV charging facilities and bicycle parking, consideration could be given to expanding criteria to include mini- buses. These proposals are encompassed within the following recommendations: Recommendation 25: Work with the operators of visitor attractions, tourist hubs, and major event organisers to increase the proportion of visitors arriving at sites/festivals by public transport and other sustainable options. ### Generators of Demand (Retail, Industry, and Freight) *Pages 111–117* Recommendation 23: Sporting organisations will encourage less car travel to sports fixtures and training sessions in collaboration with local communities. continue to be a challenge in meeting extra demand. Therefore, a phased implementation of the review’s recommendations commenced in September 2024. Planned pilot projects in the 2024/2025 school years will provide valuable insight on the impact on the scheme of increased demand, the possibilities to integrate public transport services with school transport services and the possibilities to facilitate more sustainable modes of transport. The findings from the evaluation will guide the planning and implementation needed for a national rollout of a revised School Transport Scheme. Implementation of the recommendations will continue to be planned, subject to resources being available to meet the increased demand. Recommendations with a focus on the education sector are defined as follows: Sustainable Transport for Schools It is clear from discussions above that support measures are needed to expand the School Transport Scheme (STS) and to continue to progress the Safe Routes to School Programme. Throughout the review, the value of the School Transport Scheme to both families and in supporting wider Government policies has been very apparent. In summary, school transport not only plays an important part in supporting children’s access to education, but it also aligns with wider Government objectives, including supporting climate action targets, supporting working parents and the labour market, supporting families to live and work in rural Ireland and teaching life skills for children. Recommendation 22: Increase sustainable mobility supports for primary and secondary school-going children Generators of Demand (Retail, Industry, and Freight) As referenced above, the School Transport Scheme 2030 report has now been published. Arising from the recommendations in the review, it is projected that access to the School Transport Scheme will be expanded so that an additional 100,000 pupils (over 2024 levels) can be carried by 2030. It is clear that if achieved, the overall way forward recommended in the review to decrease car journeys to school and get more children and young people to access school via public transport and safe cycling and walking routes, if achieved will bring enormous benefits to local communities. Introduction Ireland’s domestic and international freight sector is an integral part of the economy. Most domestic freight movements take place by road whilst international movements (including those between Northern Ireland and Ireland) include more significant multimodal elements covering road, air, sea and rail freight. The freight sector has faced many overlapping challenges in recent years including Brexit, COVID-19 and the war in Ukraine. These challenges have highlighted the importance of the freight sector and have also demonstrated how complex international supply chains have become. This underlines the importance of all stakeholders working together – industry, Government and international partners - to ensure the resilience of Ireland’s supply chains. The proposed changes to eligibility criteria as set out in the recommendations in the review are expected to expand the numbers of students availing of transport, reducing reliance on individual car journeys to access education. Overall, the recommended changes to the future operation of the Scheme concern: ᴏ expansion of the current eligibility criteria, addressing current operational challenges charges and grants The significance of the need for a sustainable freight system cannot be underestimated, and, as the economy grows, demand for goods and the requirement for bulk movement continues to grow in Ireland. This growth puts strain on the people, infrastructure and businesses operating in ᴏ over time, moving towards better integration with public transport to ensure optimum value for money to the Exchequer. It is recognised that resources including contractor supply of vehicles and drivers would the freight, haulage, logistics and transportation sector. There is a need to assess how this growth and demand can be best managed and supported by Government, industry, and the public. and infrastructure planning would be beneficial. Further consideration of rail access to ports will be summarised within local implementation considerations. Modelling future demand for freight to a greater level of specificity is key to understanding future constraints to capacity and investment priorities. Demand modelling is currently undertaken across rail, roads, ports and land use and given the essential nature of freight, should be interfaced to provide a multimodal perspective of future demand. Additionally, the need for a certain level of infrastructure provision was required to encourage hauliers to move to alternative fuels. In particular, the need for a critical mass of electric charging infrastructure and alternative fuel supply infrastructure was emphasised. Tied to the need for infrastructure provision was the need for subsidies. Feedback from the group on the availability and level of subsidies available for a number of freight-industry related items – particularly drivetrain transition and alternative fuels – was that these are insufficient. Moving forward, more accurate subsidy setting will increase uptake, drive change and deliver the policy outcomes necessary while limiting financial deadweight. This sub-group considered the impact and management of goods demand on haulage and road freight and associated aspects of the wider transportation system, and how we may best collectively work to support growth while reducing the environmental impact in a sustainable way. Measures Considered Discussions related to modal shift focused on two main areas: large scale bulk movements and disaggregated light movements. Bulk movement such as construction materials, quarried aggregates etc. are dominant by tonnes per kilometre (TKM). However, light vehicle fleet numbers and kms travelled have increased significantly over the past decade. Bulk movements internationally arrive or leave the island of Ireland via its ports. Support was given to the development of port facilities, including the additional space allowances and the potential extension of rail links as indicated within the All- Island Strategic Rail Review, and Iarnród Éireann Rail Freight Strategy. While it was anticipated that bulk movements will continue to be via HDVs in the main with a focus on developing these movements on the TEN-T network, positive sentiment was held towards the continued development of rail freight where possible. It was noted also that the benefits of the ongoing National Roads 2040 Strategy will accrue in part to the alleviation of congestion for road freight haulage. Continued investment in infrastructure to support freight haulage is necessary to ensure that the growth demands of road freight do not exceed the constraints of the road network. When considering measures, the sub-group grouped them into national, regional and local measures. Measures implemented at a national scale include those related to policy, centrally administered subsidies, industry standards and certification, cross-industry engagement, large infrastructure interventions and measures related to the interface between national and international interests such as port administration requirements. Regional measures included regional infrastructure networks and hubs, county level and regional economic planning forums, hinterland access networks, and sub-national consolidation programmes. Local measures discussed related to implementation and included micro consolidation, load sharing, access control and emissions zones, local land use planning and urban multimodality. National Measures Planning and the delivery of infrastructure were identified as being essential to the sustainable movement of goods around Ireland. The subgroup felt that the freight sector is an afterthought when it comes to the delivery of new land-use policies and that going forward the needs of the sector must be incorporated more completely into policy planning. Particularly, integrated planning both between ports (regarding forward balance planning), industry forecasting and signalling for hauliers and also in terms of hinterland access Smaller, disaggregated goods delivered via LDVs and vans in urban areas are considered to be a separate and different challenge. It was noted that, in many cases, breaking bulk loads into smaller vehicles can increase vehicle kilometres travelled Regional Measures by up to 16-fold. Additional implementation considerations for consolidation hubs included feedback on the reality of collaboration across commercial delivery entities. In this case, focus was given to creating partnership agreements including government partners. National level measures also included support and pathfinding projects for urban mode shift including loadsharing hubs facilitated via public transport operators and subsidies for active mode systems such as cargo bikes. Specific discussions were had about the role of consignor liability and procurement standards, and what role liability has in procurement relationships between demand generators and hauliers. Sustainable procurement measures should include the consideration by representatives such as the Office of Government Procurement to set a baseline of consignor liability expectations and potentially to legislate minimum safety and sustainability practices associated with consignor liability and related practices. Measures practically implemented at a regional scale held valid aspects of national considerations also, but received specific feedback relating to the delivery of interventions at sub-national levels. Such measures included logistical planning for large-scale infrastructure investments, delegated autonomy from national policy for regional policy implementation, and port access and hinterland infrastructure access. The sub-group noted the potential benefit of utilising city coordination policies for large scale infrastructure programmes, helping to identify, coordinate, and optimise the movement of construction-related movements for urban and large regional projects. Such policies have been employed effectively in the City of Sydney for Sydney Metro and during London 2012’s Olympic development. It was indicated that Dublin and Cork could benefit from such policies during Metrolink and potential Light Rail projects in the future. The benefit of engagement and collaboration between the Department, TII and NTA was highlighted particularly on the multifaceted agenda of decarbonisation and demand management. Engagement and alignment across multiple programmes - electrification, demand management, alternative fuels infrastructure, rail freight planning and ports capacity - were all noted as areas with considerable collaboration potential. Alignment in messaging is essential across all programmes. The challenges faced at sub-national level to dictate the implementation of programmes that can have industry-level transformational impact were highlighted, particularly the national level focus on predominantly urban issues. It was noted that regional and rural distribution is still a significant challenge, and it was recommended that actions taken by large food producers around consolidation should be investigated for best-practice and replication. Rural distribution in communities and for rural businesses is still challenging and often not suitable for support by TEN-T Core Network. TII continue to work on implementation of multi-point tolling initiatives and feedback from the subgroup with regard to such initiatives was focused on ensuring that regional and national movements via the TEN-T network were supported, and that pricing was applied in a manner to deliver on policy aims and on keeping HDVs off local roads. The existing model for access pricing on the Iarnród Éireann network was raised as a current barrier to entry for increasing rail-freight proportions of overall freight tonnage. It was noted that for a sustainable balance of multi-modal freight across road and rail to be established, in line with policy aims, evaluation of a more economic access charging basis would be required. In addition to the previous noted feedback on port infrastructure planning, regional integration planning particularly at Dublin Port and Port of Cork were considered as being beneficial to improve flow and access with the potential to also support multimodality including hinterland access via rail freight links and dry-dock infrastructure. Local Measures The scale and implementation of local measures was given specific consideration, in particular the constraints, challenges and needs of logistics, freight and goods supply in urban areas. A number of key themes were raised with an overall message of ensuring the needs of the essential deliveries to businesses, places of work, education centres and homes are considered across all subgroup interventions proposed. minimum number of hours on one site to support such demand management. Local measures discussed included kerbside management and loading access, delivery access and times, freight management strategies, construction management planning, and urban multimodality. As noted in previous sections, the potential use of active modes and public transport for deliveries was discussed. Enabling infrastructure and the provision of cycling facilities in urban areas were particularly important, as well as limiting interactions between heavy vehicles and vulnerable road users such as cyclists. Sharing public transport facilities to support micro consolidation hubs was noted for consideration of key public transport providers as well as the potential for multimodality that local hubs could provide. Kerbside management and loading bay access was discussed at length, particularly with regard to parking, access restrictions and potential pedestrianisation initiatives. Key insights for implementation focused on planning requirements for adequately sized loading bays, smart-loading bay solutions, loading bays that can facilitate just in time delivery, enforcement of parking around loading bays and the encouragement of planning requirements for logistics plans and adequate loading bay infrastructure. Challenge The freight sector poses a unique challenge as it is expected to significantly grow in the coming years and the upfront costs for alternative technologies are significantly higher than for diesel HDVs. Significant weight was also placed on ensuring that the needs of deliveries are adequately considered in pedestrianisation and access-based measures. For example, anecdotal evidence was offered in respect of heavy deliveries having to be undertaken at significant distances due to an inability to gain access close to served businesses. Allowances for out-of-hours access in pedestrianised and shared areas are widespread and consideration should be made for these in all cases. As noted above, logistics plans should be included in all planning considerations. Additionally, as an island our ability to transport goods long distances by train is limited compared with mainland Europe. At regional and local levels, consideration should be given to ‘last mile’ logistic operations for freight and associated deliveries. How this is implemented will need careful consideration as space for delivery trucks is not always factored into the rollout of demand management measures such as road space reallocation which has had unintended consequences for deliveries in some cases. The management of kerbsides, ensuring deliveries are built into proposed measures, will be essential to maintaining levels of service and preventing disruption. As with all measures, consistent communication will be important. It was raised that an interfacing suite of city and regional freight management strategies should be developed on a coordinated and collaborative basis with industry, to enable forward planning of freight management in urban, peri-urban and regional-rural areas. Sharing the approach between jurisdictions will create a network of best practice and will allow for transport, ports, energy and other related national agencies to sufficiently plan for the future. Conclusion and Recommendations National Measures Planning processes that require construction management should be coordinated across similarly linked projects. Submissions should be site- specific and not generic, and focus on the breakdown of material types, delivery types, labour types and the mode of transport to be used and its management. Where possible and on larger projects, labour in urban areas should use public transport and provide secure storage for tools and equipment for contractors that have a critical Given the positive sentiment towards the continued development of rail freight, and working collaboratively across multiple agencies, it is intended to develop a policy for the development of Strategic Rail Freight Interchanges. This will ensure that the transport system is capable of meeting demand from a growing market in intermodal goods and parcel services in a sustainable way. The All-Island Strategic Rail Review (AISRR) acknowledges the role that heavy rail can play in supporting a sustainable freight, logistics and transport system and its suitability, in particular, to the traditional bulk freight market (which are generally non-time critical flows), as well as the growing market in intermodal goods and parcel services (which are more time critical). Rail freight is generally considered to be most competitive over relatively long distances. In Ireland, this means the potential role of rail freight will be focused on serving inter-regional journeys between the island’s largest cities and busiest ports. The All-Island Strategic Rail Review recommends the following: Recommendations to develop national level measures for freight are set out in Chapter 10 and summarised here as follows: Recommendation 10: Continue to enhance rail freight capacity and explore potential for future growth in the sector. Recommendation 27: Raising consumer awareness on vehicle buying and ownership. Regional Measures As outlined in the Road Haulage Strategy, the preparation of strategies for sustainable freight distribution for the Greater Dublin Area and the metropolitan areas of the four regional cities would provide a solid basis to achieve more effective management of goods movement. ᴏ Develop a sustainable solution for first-mile last mile rail access for Dublin Port; ᴏ Reduce Track Access Charges for freight services; The sub-group concurred with this position but reinforced the need for stakeholder involvement in this work. For this reason, it was advised that the NTA, TII, regional assemblies, Local Authorities, Irish Rail, port and airport operators, the haulage sector and key freight-generating sectors of the economy should be represented in any process to develop such strategies. ᴏ Strengthen rail connectivity to the island’s busiest ports; and ᴏ Develop a network of inland terminals close to major cities on the rail network; Aligned to the above is Iarnród Éireann’s Rail Freight 2040 Strategy, which commits to providing rail connectivity to Ireland’s Tier 1 ports, including connections from the ports at Foynes and the Port of Cork to the rail network, direct rail connections to industrial facilities and increasing the market share of rail freight in line with other European countries. Of the AISRR recommendations, the policy could consider the potential for accelerating a reduction in rail access charges. The Greater Dublin Area Transport Strategy 2022- 2042, includes a Measure ‘FREIGHT 1’ which will support the decarbonisation of the freight sector, seek to further integrate smart technologies in logistics management and reinforce the role that the strategic road and rail network, and the location of ports, have in the efficient movement of freight. Key in this are two elements– the Strategic Traffic Management Plan, as required under Section 64 of the Dublin Transport Authority (DTA) Act 2008 and the Demand Management Scheme as provided for under Section 71 of the DTA Act. Another national level intervention would involve the ongoing implementation of measures related to energy efficiency, for example widespread eco-driving training and practice for HGVs– in line with the Department of Transport national standard, recently established. Also of importance in this area is the potential role of vehicle fuelefficiency labelling (VFEL). This would help to raise consciousness about the fuel efficiency of the vehicles on sale, based on the assumption that properly informed consumers/ businesses will be more likely to purchase vehicles that are more fuel efficient. Intelligent Transport Systems (ITS) technologies can also help to progress energy efficiency, providing drivers with real-time feedback to directly control vehicle speed to improve traffic flow and reduce the incidence and severity of collisions. Consistent with GDA Strategy Measure ‘FREIGHT 1’, a consultant team appointed by the NTA has developed a framework for the future development of a Sustainable Freight Distribution Strategy, in consultation with key stakeholders. This work has now been completed and is intended to inform how the GDA Strategy’s freight-related objectives are progressed. The NTA will also consider the applicability of this framework to the regional cities’ metropolitan areas as part of the implementation of their respective transport strategies. Local Measures In addition to the five largest urban centres, consideration of goods movement at regional level via Regional Freight Strategies would add value. Building on outputs from the SENATOR project, it is proposed to review national and international best practice case studies and identify what options are best suited for implementation in Ireland. Additionally, information on activities and projects already underway in Ireland in relation to freight operational efficiencies will be gathered and the capacity for building on, or replicating, those initiatives where relevant and appropriate will be examined. These should be consistent with the objectives of the RSESs, with a particular focus on intersettlement freight movement and on the preparation of regional freight distribution plans. The RSES Monitoring Plans and Local Transport Plans, currently being prepared in conjunction with statutory Local Area Plans, would be relevant in this context. When evaluating infrastructure investment, the operational impacts on freight should also be considered. This work could also: ᴏ assess and identify possible incentives for supporting urban consolidation centres, last-mile green delivery and the promotion of cycling/walking for deliveries; The NTA commissioned consultants in June 2023 to carry out research on the different types of innovative logistics hubs that would, if implemented at scale, have the potential to reduce carbon emissions from road freight to a significant extent in Ireland. The scope of this research included recommendations for some practical pilot actions that could be taken over the next 2-3 years to demonstrate (on a smaller scale) the inherent potential of such hubs to the market, such as: ᴏ consider the potential for shifting urban delivery trips to off- peak times to reduce trip times (emissions), leading to more efficient freight operations and reduce congestion; ᴏ consider the options for the creation of a single destination for delivery vehicles that can be shared by multiple users in the same neighbourhood/ vicinity; ᴏ Operating a sustainable distribution centre, using zero emission HGVs; ᴏ consider the use of various interventions to optimise freight transport including (but not limited to): asset sharing and digital platforms (addressing any existing barriers), spatial modelling of logistics demand, dynamic routing, AI and machine learning, autonomous deliveries and ITS; ᴏ Operating a ‘Green Port’ which uses zero emission equipment and offers ships the opportunity to use shore power; ᴏ Developing and operating a Construction Consolidation Centre; ᴏ Developing and operating a micro-hub for ‘last mile’ deliveries to a city centre; and ᴏ strategies for increasing awareness of the environmental impact of same/next day deliveries and setting out alternatives and their benefits; ᴏ Developing and operating a decoupling point for ‘last mile’ deliveries. In summary, there is one key recommendation being made in respect of the above as part of this Strategy: In summary, the measures recommended would be encompassed in the following. Recommendation 12: Improve opportunities for freight consolidation, last mile green delivery and use of technology. Recommendation 11: Develop Sustainable Freight Distribution Strategies for 5 Cities. This recommendation would also be aligned to the national position on rail freight arising from the AISRR. ### Captive Car Users *Pages 118–122* Captive Car Users Shift car travel to more sustainable modes, ᴏ where possible and practicable. Given that car captivity stems from a lack of transport alternatives, shift measures primarily focus on shortening the car portion of certain journey types by shifting part of a trip to more sustainable modes, recognising that for many captive car trips, a vehicle may still be required for the first or last mile. Introduction In the realm of demand management, implementing measures to address the needs of captive car users plays a pivotal role in ensuring a more inclusive and efficient transport system while advancing broader societal and environmental objectives. Captive car users are individuals who rely on their personal vehicles due to limited viable alternatives, often driven by factors such as lack of suitable public transport options, physical disabilities, various journey types, or specific job requirements. As cited in the CSO’s National Travel Survey in 2021, for over three quarters (76.4%) of journeys to work by car as driver, there was no alternative mode of travel to using the car for going to work, suggesting that a significant portion of the Irish population find themselves to be captive car users for some or all trips. Improve the carbon emission per km for those ᴏ who do not have an option but to travel by car. This approach acknowledges the necessity of minimising social and economic disparities during the transition towards sustainable mobility. As noted by the sub-group, it will be crucial that the just transition component is integral when defining the above group of measures. “Avoid” measures should consider the impact on employment and community well-being. ”Shift” measures, encouraging sustainable alternative transport modes, must prioritise equitable access and affordability. “Improve” measures, such as enhancing public transport and car emissions, should focus on preserving and creating jobs in the new markets, affordability of new technologies and accessibility to charging infrastructure. A just transition ensures that the benefits of reduced car dependence are shared inclusively, addressing potential challenges to employment, accessibility, and social cohesion. This approach not only promotes environmental sustainability but also fosters a fair and balanced evolution of the transportation system for all members of society. Representative cohorts of captive car users were considered by this sub-group to assess the potential impact of the potential demand management measures under consideration. The cohorts have been informed by sub-group discussions and insights from the NTA National Travel Survey. The NTA National Travel Survey provides insights into the purpose of journeys that are undertaken by car nationally. The survey results identify differences in the purpose of car usage across urban, suburban and rural areas, as well as across a range of demographic and socioeconomic categories. It is recommended by the sub-group that additional analysis and quantification of captive car users is undertaken to better inform an assessment of all proposed demand management measures from a just transition perspective. Avoid The primary objective of “Avoid” measures is to reduce or avoid the overall amount of travel and, therefore, kilometres travelled by car, by supporting shorter distance trips or fewer trips. These measures promote compact, mixed-use, and transport-oriented development, as well as remote working, e-commerce, and other forms of digitalisation that can substitute physical trips. Moreover, measures that discourage the consumption of fossil fuels and carbon-intensive products, such as carbon taxes, also could encourage people to avoid unnecessary trips. Measures Considered In collaboration with various stakeholders, a comprehensive set of measures aimed at delivering the objectives of this Strategy was considered through the Avoid-Shift-Improve lens in order to: Avoid the need for car travel and, therefore, ᴏ the total kilometres travelled. Shift Another key action will be to increase the share of low-emission vehicle kilometres for goods and public transport vehicles. The most intensely used (and most fossil fuel-consuming) motor vehicles should be the first to transition to low emission technology, including light and heavy goods vehicles and public transport vehicles. The primary objective of “Shift” measures is to provide attractive and convenient sustainable travel options to captive-car users. This will, in turn, reduce the total number of kilometres travelled by car and allocate them to other modes. With the ‘just transition’ principle in mind, these measures are aimed at addressing issues such as accessibility, affordability, frequency and coverage of public transport, last-mile connectivity, park and ride facilities, shared mobility alternatives, incentives or education and behavioural change campaigns. The scaling-up of on-demand shared services was also deemed to be an essential measure. When planning for this transition, it will be key to design the measures to be implemented from a just transition perspective in order to minimise disproportionate impacts on specific car dependent groups. Challenges To create a more sustainable and efficient transport system across both urban and rural Ireland, it is essential to develop targeted strategies and policies that not only address the unique challenges faced by captive car users but also encourage and facilitate the choice of more sustainable modes for those who have viable options already in place and lower emissions transport where this is not possible. By considering the diverse needs of the national car-dependent population, the country can promote more equitable and effective demand management solutions that benefit both individual car users and the transport ecosystem. In the context of just transition, it is critical to focus and target supports to the most vulnerable captive car users when considering transport demand management. Improve The primary objective of “Improve” measures is to decrease the carbon emissions per kilometre travelled by enhancing the efficiency, sustainability, and overall quality of transport systems. These measures are targeted at improving the GHG efficiency of residual vehiclebased transport or the efficiency of the network itself. While less directly transformative than avoid and shift measures in terms of behaviour, fleet electrification and biofuels will continue to play a pivotal role in decarbonising transport, particularly for populations living in more isolated areas. Measures within this category will focus on preserving and creating new jobs, and the affordability of new technologies. While “Avoid” transport demand measures, such as promoting remote working, offer environmental benefits, there are potential undesired social consequences, especially in rural areas. As per the OECD report referenced previously, to increase the level of transformation through the electrification of vehicles, it will be key that Ireland’s electrification policy supports the overall system transformation, particularly the goal of reducing car travel. This requires prioritising the electrification of frequently used cars (such as taxis). Reducing the privileges of private cars compared to frequently used electric cars (e.g. parking privileges) can help to electrify the remaining car-kilometres more quickly. Defining the electrification target as the share of the remaining reduced car-kilometres has several benefits: it avoids rewarding efforts that increase overall car ownership and use, as the current subtarget does. It also focuses electrification efforts and resources on frequently used cars, which helps to favour shared over private car ownership and to speed up electrification. As highlighted by the sub-group members, while strategies such as incentives for individuals to work remotely may be effective, an increase in the numbers working at home may lead to decreased social interactions, which can impact mental health and contribute to feelings of isolation of marginalised populations. Another implementation consideration is the impact of increasing demand for public transport on riders’ experience, especially for disabled people or people with limited mobility. For younger or newer workers in an organisation, it may also negatively impact their full integration into the company, and it may inhibit their progress within the organisation. Another potential challenge of remote working policies, as discussed by the subgroup, was the phenomenon of people relocating further away from their workplace. This is particularly relevant in the Irish context, where housing prices in urban employment areas are high and available options are limited. This can lead to an increase in car dependency and the overall distance travelled. To overcome this challenge, measures targeting captive car users need to be coupled with policies that encourage sustainable and compact urban development. longer time-horizons is required to facilitate better longer-term planning and implementation of new and upgraded PSO services. While significant effort is being made in Ireland in the area of “Improve” related measures, further investment and policy supports will be required to maintain momentum and achieve the ambitious targets set by the CAP. As discussed before, studies such as the OECD’s 2022 report acknowledge that attempting to decarbonise a car-dependent system, such as the one we have in Ireland, via private vehicle improvements is unlikely to lead to substantially different patterns of behaviour, rapid emissions reductions, or large well-being improvements. Car-dependent systems make rapid electrification slow and difficult, by locking-in large and growing vehicle fleets. Even with improved (and fully electric) vehicles, they also fail to reduce life-cycle emissions, address accessibility gaps and reduce other negative impacts (e.g. road fatalities). While there is significant investment, planning and delivery already underway under the ”Shift” theme, the sub-group members acknowledged that these efforts need to be ramped up to achieve the level of transformation required. There are several challenges that will need to be addressed when designing demand management measures aimed at achieving a modal shift to active travel among captive car users. One significant obstacle is the deeply ingrained car-centric culture, where there is a perceived convenience and comfort associated with private vehicles over other alternatives. Convincing captive car users to adopt active travel modes requires overcoming what are now well entrenched behavioural and cultural norms, perceptions related to inconvenience, safety concerns, and weather-related challenges. The scaling up of communication efforts has high transformative potential and is needed to build political support for any proposed policy. Sub-group members also identified other significant barriers such as human capacity, communications/buy-in, and a lack of necessary data to design evaluation into measure design. A focus on piloting and iteration was identified as a response with potential to aid in achieving buy-in from citizens. In terms of financial impacts, these include the risk of subsidising or providing financial incentives to existing users (with a limited impact on behavioural change), start-up costs (for solutions such as Mobility as a Service (MaaS)) and other derived costs such as marketing, app costs and ongoing engagement for the implementation of other carpooling measures. In the financial area it was also mentioned that it would be important to compare the implementation costs versus the cost of doing nothing, with the possible resultant costs to the state under EU carbon credit and statistical transfer systems. Inadequate or unsafe infrastructure for pedestrians and cyclists is another critical issue, as the lack of well-designed paths and lanes can discourage individuals from choosing active modes. Additionally, the perceived time constraints associated with active travel, especially in comparison to the speed and efficiency of car travel, may dissuade individuals from making the shift. To provide convenient public transport alternatives to captive car users, CAP23 notes that the level of service enhancements needed to drive the required modal shift is significant (e.g. NTA modelling work applies a 3-fold increase in service frequency to drive modal shift). Not only will costs of existing services need to be met, but delivering the required modal shift to public transport is predicated on significant further expansion in services and frequency. Greater clarity as to the availability of current funding over Conclusion and Recommendations In line with CAP23, a targeted communications strategy is being undertaken to promote action being taken by Government, and the citizen’s role, in climate action in the transport sector. In the first instance, this sub-group recognised the need to challenge the deeply ingrained car- Recommendation 15: Continue to evolve opportunities for flexible and remote working and digitalisation. centric culture that currently exists in Ireland. For this reason, it is intended that the Strategy will seek to engage and motivate the citizen to make sustainable travel choices, supported by robust research. This will include campaigns aimed at raising consumer awareness around car emissions and the cost of ownership, focusing on financial, environmental and social costs of ownership compared to other modes, including the potential for car advertising regulation and mandatory disclosure of emissions data. In this way, people will have more information to help compare costs and benefits of various travel choices. As well as an increased need for data, to help better target supports for captive car users, the effectiveness of regulatory measures relating to advertising will also be considered. To assist in identifying who exactly is a captive car user, the subgroup recommended that a definition of Just Transition in this instance be developed. This is being progressed by the NTA as part of the GDA Demand Management Strategy and Scheme, and which can be adopted by others. Along with a ramping up of sustainable transport alternatives, as reflected in previous recommendations arising from other sub-groups, the following summarise the next steps that must be taken to develop a deeper awareness and understanding of the challenges and opportunities ahead. Recommendation 16: Encourage greater utilisation of remote working from hubs. Recommendation 27: Raise consumer awareness on vehicle buying and ownership. Recommendation 28: Enhance modelling tools to better understand the impacts of specific demand management measures as part of wider climate action initiatives. Recommendation 29: Commission research to measure and model the cumulative and relative impacts of the recommendations. It also recognises the importance of supporting captive car users through the following: Recommendation 13: Develop further ‘supply side’ measures, particularly shared mobility interventions, to augment sustainable mobility alternatives in next iteration of SMP Action Plan. Recommendation 14: Review existing incentives for encouraging uptake of EVs, with a focus on targeted supports for Captive Car Usages. ## Recommendations ### Recommendations *Pages 123–127* ![Figure from page 123](assets/p123-f01.webp) *Figure from page 123* ## 10. Recommendations The Strategy is not a prescriptive set of top-down actions. It is clear from the deliberations of the expert sub-groups that this type of approach will not work. As such, it is a strategic framework intended to provide the policy direction required at a national level to achieve these objectives, identifying the wide range of options that could be deployed at national, regional and local level, and supporting, guiding and enabling the appropriate authorities and entities, both in the public and private domain, to take ownership and shape their own actions in a coherent, evidence-based manner. It is vital to the credibility of the Strategy that its implementation is demonstrably fair and equitable. This has been the approach taken in developing the Strategy and it will continue to be the approach taken to its implementation. Broadly speaking, the recommendations are grouped to reflect those areas that are deemed to be of critical importance to effective demand management: the national planning system, taxation policy, local government, enabling legislation, and key sectors (freight, public, education, sports, business, tourism). The recommendations also reflect the supports needed such as availability of sustainable mobility or ‘supply side’ alternatives, public engagement, good data and the need for strong implementation and review mechanisms. Implementation methods and capacity to deliver were a key factor in designing the recommendations from the outset of the Strategy. The recommendations are summarised below and further detailed in an Implementation Plan, which is appended to this Strategy (Appendix 3). The Plan provides additional details on the steps envisaged under each recommendation, the timelines, ownership, and outputs involved. The 32 recommendations set out are the product of a constructive, collaborative and concerted effort across a broad range of Government departments, members of the National Steering Group, expert sub-groups and feedback from the public consultation and engagement processes, to identify the type of interventions that can cumulatively make a lasting and positive impact. Strengthened implementation of demand management across national planning system | No. | Recommendation | | --- | --- | | 1 | Strengthen policy alignment and implementation mechanisms to deliver NPF National Strategic Outcome 1 ‘Compact Growth’ and NSO 4 ‘Sustainable Mobility’ given the critical role of compact growth in reducing travel demand and in enhancing transport system efficiencies. | | Embed No. | ding polluter pays principle in taxation policy over medium to long term Recommendation | | 2 | Identify a pathway for the development of a cohesive, equitable and future-proofed taxation approach on transport, based on a ‘user and polluter pays’ principle. | Empowering and supporting local authorities | No. | Recommendation | | --- | --- | | 3 | Develop Demand Management strategies at Local Authority (LA) level, taking account of the delivery of sustainable mobility alternatives. | | 4 | Prepare guidance and develop modelling and other supports for LAs on the development of tailored Demand Management strategies, starting with cities outside GDA and major urban towns. | | --- | --- | | 5 | Update national guidelines and standards in support of demand management measures and strengthen supporting oversight and coordination structures. | | 6 | Enable LAs to prioritise and deliver demand management through greater integration, collaboration and the establishment of multidisciplinary teams. | | 7 | Incorporate demand management principles into Active Travel Schemes while assuring alignment with sustainable accessibility and road safety requirements. | | 8 | Communications and engagement support for LAs. | | 9 | Supplement, through alternative financing options, existing supports from national Government. | Driving efficiency in freight sector | No. | Recommendation | | --- | --- | | 10 | Continue to enhance rail freight capacity and explore potential for future growth in the sector. | | 11 | Develop Sustainable Freight Distribution Strategies for 5 Cities. | | 12 | Improve opportunities for freight consolidation, last-mile green delivery and use of technology. | Strengthening supply side measures to complement demand management | No. | Recommendation | | --- | --- | | 13 | Develop further ‘supply side’measures, particularly shared mobility interventions, to augment sustainable mobility alternatives in next iteration of SMP Action Plan. | | 14 | Review existing incentives for encouraging uptake of EVs, with a focus on targeted supports for Captive Car Usages. | | 15 | Continue to evolve opportunities for flexible and remote working and digitalisation. | | 16 | Encourage greater utilisation of remote working from hubs. | Providing enabling legislation to support appropriate measures ![Figure from page 126](assets/p126-t01.webp) *Figure from page 126* Review relevant legislation to ensure powers are sufficient to bring forward demand management 17 measures. Embedding demand management principles and practices across public sector | No. | Recommendation | | --- | --- | | 18 | Embed demand management principles across all relevant Government funding programmes. | | 19 | Reduce transport demand created by public sector services. | Leverage potential of Civil Service Motor Travel Rates to effect change, including the introduction 20 of single rate for all cars regardless of engine type. Engaging with education and sports sectors to embed demand management principles and practices | No. | Recommendation | | --- | --- | | 21 | By sharing good practice, third level institutions will lead on reducing private car journeys to and from campus through climate action strategies and Green Campus Programme. | | 22 | Increase sustainable mobility supports for primary and secondary school children. | Sporting organisations will encourage less car travel to sports fixtures 23 and training sessions in collaboration with local communities. Engaging with business sector to embed demand management principles and practices | No. | Recommendation | | --- | --- | | 24 | Strengthening focus on transport/mobility related dimensions of corporate sustainability requirements. | | 25 | Work with the operators of visitor attractions, tourist hubs and major event organisers to increase the proportion of visitors arriving at sites/festivals by public transport and other sustainable options. | | Supporting public engagement and consumer awareness | | | --- | --- | | No. | Recommendation | | 26 | Work with the insurance industry to examine how it can contribute to the achievement of the objectives of this strategy particularly in respect of consumer communication on activities that may reduce unnecessary car ownership. | | 27 | Raising consumer awareness on vehicle buying and ownership. | | Building the evidence base to inform policy choices and demonstrate success | | | --- | --- | | No. | Recommendation | | 28 | Enhance modelling tools to better understand the impacts of specific demand management measures as part of wider climate action initiatives. | | Commission research to measure and model the cumulative and relative impacts of the 29 recommendations. | | | 30 | Undertake analysis on the efef ctiveness of reducing car parking as a demand management measure, taking account of wider parking availability. | | 31 Establish mechanism to support demand management pilot measures. | | | 32 | Establish an oversight mechanism to monitor and evaluate the Strategy. | ## Delivery and Implementation ### Delivery and Implementation *Pages 128–128* ![Figure from page 128](assets/p128-f01.webp) *Figure from page 128* ## 11. Delivery and Implementation ### Cost Implications of Delivering this Strategy *Pages 129–129* Cost Implications of Delivering this Strategy A strategy’s value and impact depend on its capacity for implementation. As part of the development of this Strategy, delivery was a key consideration from the start of the process, with an emphasis on understanding the capacity and capability of government, business, industry and the citizen to get behind and implement measures where required. The Strategy points to the need for further analysis in this regard, particularly a need for implementing authorities to assess the feasibility of certain measures for their local areas – especially where they are being introduced for the first time in an Irish context. Guidance on demand management schemes will have a crucial role to play in shaping this analysis. While the Strategy presents no immediate costs for the Exchequer (beyond the proposed identification of funds envisaged in Recommendation 31 to support demonstration and capacity building), it is anticipated that there will be government and economy-wide costs associated with pivoting towards an environment that supports more sustainable transport options – although these are not quantified within this document. For example, the Strategy encourages effort across the private and public sector to develop Smarter Travel Programmes and to seek recognition for this effort by applying to the Smarter Travel Mark. These initiatives would have cost implications for the organisations involved but these are likely to be met from existing resources. The Strategy identifies who is responsible for implementing measures and what legislative powers exist or may be needed to ensure the delivery of recommendations, including the timescales involved, as well as the enforceability of the options proposed. It considers the acceptability of the proposals, from a political and public perspective, and suggests supporting measures to improve acceptability where needed such as through communications, public engagement and further supply-side measures and incentives. There are many interventions that have upfront costs but are cost neutral over a period of time. For example, while new infrastructure and technologies would be needed to implement roaduser charging, it is likely that such costs would be recouped over the long-term. The costs and benefits of such an approach would need to be fully examined and considered by Government. Similarly, there would be administrative costs associated with developing any legislation for new or enhanced demand management measures but the model deployed for operating related systems could be cost neutral or have a negative cost due to the likely co-benefits of increased air quality and improved health along with the potential to invest any revenue that might be raised from interventions into, for example, enhanced public transport services. An analysis of all costs - Exchequer, environmental but also the regulatory burden on citizens and business as appropriate – will need to be undertaken as and when specific measures are brought forward for consideration by local councils or by Government. The cost of doing nothing will also require consideration. The Strategy considers whether relevant ‘owner’ organisations are sufficiently resourced or competent to carry out functions effectively, particularly in new areas of policy or where more innovative interventions are required. Consideration is also given to financial resourcing and whether current funds, revenue raising powers or incentives are sufficient to support the likely new measures. Finally, the Strategy has taken account of what is needed to achieve the strategic objectives, the relative impacts and challenges of measures involved, the likely high-level quantum of associated costs, and the timing and sequencing of measures relative to ‘supply-side’ interventions, particularly those being funded under the National Development Plan 2021-2030, which was recently revised as part of a commitment under the Programme for Government 2025. As mentioned earlier in the Strategy, analysis undertaken by the Department of Transport estimates that the cost of congestion in our cities is expected to rise substantially by 2040. Congestion is a symptom of an inefficient system, one that is at capacity at certain times. These costs do not consider the health costs associated with sedentary travel, air pollution (inside and ### EU Taxonomy *Pages 130–130* outside of the vehicle) and stressful travel. Neither do these costs take account of the fines that will be applied to Ireland for not meeting its legally binding climate targets by 2030. successful delivery of recommendations, ensuring a strong focus on Value for Money. EU Taxonomy This aim of this Strategy is to communicate the high-level direction, consisting of a set of guiding principles, that will define the type of the actions that implementing authorities may take out to 2030 and beyond. It aims to identify where potential barriers to implementation exist and sets out a work programme to remove them. As it is not prescriptive on the nature of measures to be taken by implementing bodies, the full cost of measures to be deployed is not yet know. The EU Taxonomy for sustainable activities, established by EU Regulation 2020/852, is a classification system designed to guide investments towards environmentally sustainable economic activities. It aims to clarify what constitutes a sustainable activity and, in doing so, support the European Green Deal’s goals of carbon neutrality and a circular economy. The regulation, which came into force in July 2020, lays the groundwork for the taxonomy, while the European Commission is elaborating on it through delegated and implementing acts. Value for Money Any future funding associated with this Strategy will be contingent on compliance with the appropriate expenditure, legislative and value for money frameworks including the Public Financial Procedures, Regulatory Impact Analysis Requirements, and the Infrastructure Guidelines. The European Commission’s website provides a useful tool, the Taxonomy Compass, which sets out Taxonomy conditions by sector including for transport36. To comply with the Taxonomy, an economic activity must: This Strategy sets out the pathway for future demand management measures. Agencies and LAs will finalise implementation plans for various Demand Management strategies in liaison with the relevant departments. These schemes will encompass the principles of this Strategy and will be developed alongside national guidance as per recommendations 4 and 5. Where programmes emerge, a cost-benefit model can be used to assess the viability of a range of proposals and the relative impact of potential options. Relevant departments will work with the Department of Public Expenditure Infrastructure, Public Sector Reform and Digitalisation in relation to ensuring appropriate project appraisal at all stages of the project lifecycle. It is not envisaged that the Strategy will give rise to any schemes or projects over the €200m threshold requiring Government approval. Nonetheless, all necessary procedures outlined in the project lifecycle contained in the Infrastructure Guidelines will be followed in progressing individual projects. 1. Make a substantial contribution to one or more of six environmental objectives and do no significant harm to all others. The environmental objectives are as follows: a. Climate change mitigation b. Climate change adaptation c. Sustainable use and protection of water and marine resources d. Transition to a circular economy e. Pollution prevention and control f. Protection and restoration of biodiversity and ecosystems37 2. Meet technical screening criteria – contained in the delegated acts and relating to how to perform the above contributions in practice. 3. Meet minimum social safeguards, namely complying with human rights and labour standards. As part of this Strategy, the Department will work closely with relevant stakeholders to develop an appropriate governance structure to provide the necessary oversight and management required for Given that reporting on Taxonomy alignment will become increasingly widespread in the EU 36 https://ec.europa.eu/sustainable-finance-taxonomy/sectors/sector/6/view 37 In line with the EU Taxonomy for Sustainable Activities, the CSO are building Ecosystem Accounts that follow the United Nations System of Environmental Economic Accounting (UN SEEA) framework and ongoing work to develop a monetary valuation of the accounts which will connect with the System of National Accounts ### Financing Options *Pages 131–131* over the next few years, companies and financial services firms are expected to develop systems to comply with these requirements efficiently. This could propel the Taxonomy into becoming a leading-standard setter in sustainability in the Irish and European economies. The process to increase the monitoring of sustainability within public expenditure and increase the sustainable use of public funds, in general, is essential regardless of whether the framework underpinning it is a domestic one or the EU Taxonomy. Government should aim to lead by example in applying sustainability best practice and monitoring the sustainability of expenditure throughout its life-cycle. Though the Taxonomy regulation is developed for use by the private sector, there are applications for it in the public sector in terms of tagging public expenditure in the green budgeting process. The system for climate-tracking EU budget funding from the Recovery and Resilience Facility provides an example of how determining and monitoring climate and sustainability contributions of government expenditure might look under the Taxonomy. Financing Options This Strategy also includes a recommendation aimed at exploring broader financing options for helping transport to transition to a cleaner and greener people-centered system. Among the options that may be explored are development contribution schemes, retail parking levies, European funding schemes, adoption of internal protocols within implementing bodies for harnessing private investment and financing supports from the European Investment Bank. ## Evaluation and Review ### Evaluation and Review *Pages 132–133* ![Figure from page 132](assets/p132-f01.webp) *Figure from page 132* ## 12. Evaluation and Review The success of this Strategy will be measured against its objectives. Measuring such success is complex because this Strategy does not stand alone. Firstly, it is one of two key policy documents involved in the effort to reduce vehicle kilometres travelled - by reducing transport demand (this Strategy) and by increasing the opportunities for shifting to more sustainable journeys (the Sustainable Mobility Policy). This Strategy relies on the implementation of the SMP and the SMP’s objectives will be heavily assisted by this Strategy. means to people in Ireland. For example, the Wellbeing Framework 2023 provides policymakers with a more holistic way of thinking about the success of policies and consists of eleven dimensions which cover outcomes associated with sustainable quality of life. The most recent report under the Framework, Understanding Life in Ireland 2025: The Well-Being Framework 2025, states that ‘Ireland’s Well-being initiative seeks to inform Government priorities and policy objectives, and to think about longer-term challenges in a new way, by reviewing economic, social and environmental outcomes together. It places an explicit focus on sustainability and equality.’ Equally, a reduction in kilometres travelled, and associated emissions reduction, will not happen unless other conditions are also favourable e.g., the proliferation of compact settlements, transport oriented planning, people-centred design, public sector leadership, appropriate location of schools, hospitals, health centres, libraries etc. Having defined well-being in broad terms, the Department of Transport’s Spending Review paper (2023) advises that it is important to consider the transport sector’s contribution to well-being and how transport can enable people to live meaningful lives. While it is difficult to connect the provision of transport infrastructure and services to the dimensions of the Well-being Framework, there are several ways in which the transport sector can both directly and indirectly impact on individual and societal wellbeing. Given the complexities involved, it is proposed to incorporate a wellbeing approach to the monitoring and evaluation of this Strategy. Assessing the well-being impact of public policy interventions has begun to gain prominence both internationally and in Ireland in recent years. The focus on well-being has emerged in response to a recognition that tracking indicators such as economic growth, while useful, does not provide a holistic view of what is intrinsically valued by a society. As set out in the report ‘Beyond GDP – Quality of Life Assessment’, Government has come a long way in understanding what quality-of-life For example, transport directly affects the Built Environment in many ways, particularly its role in shaping how land is used and how public spaces and neighbourhoods are designed. Within this context, developments need to take account of the implications for nature restoration and climate adaptation. ![Figure 17: Well-being framework](assets/p133-f01.webp) *Figure 17: Well-being framework* ### Air Quality *Pages 134–134* Transport also impacts the Built Environment by influencing the proximity of users to transport services and the accessibility and choice of those services. used to assess transport policies and projects from such a perspective – utilising the associated policy analysis tool developed by the Department of Public Expenditure Infrastructure, Public Sector Reform and Digitalisation. This tool provides a step-by-step guide to analysing the well-being impact within a specific policy area. The transport sector also indirectly impacts several other dimensions of well-being. At a societal level, the provision of transport is responsible for negative externalities including road deaths and accidents and the production of greenhouse gases and local air pollution. The OECD notes that improving the monitoring of metrics related to overall Transport GHG emissions, sustainable accessibility, transport affordability, safety and security and local air pollution will help assess the well-being impacts of climate policy interventions across a range of dimensions of well-being. In addition to these societal level impacts, the transport sector is also responsible for a number of impacts on quality of life and well-being at the individual level, including time-use, and the degree to which people are enabled to use their time effectively by the transport sector. The evaluation of the Strategy will also have regard to the Just Transition Framework. This Framework was set out in the Climate Action Plan 2021 to guide approaches to implementing climate action policies, through the following key principles: For example, long commutes are linked to lower levels of physical activity, lower job satisfaction, and a reduction in subjective quality of life. The transport sector can also have an impact on the physical and mental health dimension of well-being. By enabling the use of active modes such as walking and cycling, the transport sector can influence the levels of physical activity and support positive health outcomes. In addition to time use, another transport factor which can influence an individual’s subjective well-being is their satisfaction with their mode of transport - this depends on a variety of factors including the safety, comfort, and cleanliness of the mode of transport. ᴏ An integrated, structured, and evidence-based approach to identify and plan our response to just transition requirements. ᴏ People are equipped with the right skills to be able to participate in and benefit from the future net zero economy. ᴏ The costs are shared so that the impact is equitable and existing inequalities are not exacerbated. ᴏ Social dialogue to ensure impacted citizens and communities are empowered and are core to the transition process. The transport sector can also contribute indirectly to other dimensions. By enabling access to key services and amenities such as healthcare, educational facilities and employment opportunities, transport can impact on dimensions such as Connection to Community and Participation, Work and Job Quality and Income and Wealth. These impacts are evident when considering the transport sector through an accessibility rather than a mobility lens. Taking all of the above into account, the following metrics will be used in assessing this Strategy: Air Quality Air Quality is one of the greatest environmental health risks facing Ireland today. In recent years, the EPA has significantly upgraded its national monitoring network. This monitoring network allows the EPA to access localised, up-to-date air quality information. There are two key drivers of localised air pollution in Ireland - solid fuel and traffic. Solid fuel is the main source of particulate matter (PM10 and PM2.5) which are the air pollutants that are most detrimental to human health. Building on the OECD’s Redesigning Ireland’s Transport for Net Zero Report, which recommended that Ireland move away from targets based on enhanced mobility and instead target sustainable accessibility in order to enhance well-being, this Strategy aims to identify appropriate metrics for the transport sector which, in addition to more traditional metrics, could be ### Percentage of Urban Road Space Designated to Vehicles *Pages 135–135* Transport, particularly from congested traffic, is a significant contributor to nitrogen dioxide (NOx) which is more of an issue in towns and cities. Given the localised impact that many demand management measures could have, the EPA’s monitoring and reporting of air quality to ensure compliance with limits under the EU’s Ambient Air Quality Directive provides the basis for assessing the potential impacts of any interventions, particularly in areas at risk of exceedances. As such, the annual Air Quality in Ireland Report will be used to track progress in improving transportrelated air quality. undertaken nationally have a duration of less than 30 minutes (74%). Tracking the number of journeys over a specific distance would be useful too e.g. journeys of less than 2km. The NHTS also includes respondents’ selfreported 15-minute walk time to a variety of amenities such as a health centre, post-office or public transport stop. This could also be used to track the relationship with transport and landuse planning including concepts such as the 15-minute city. Both surveys have merits, and the latest figures for 2019 - 2024 will serve as the baseline for measuring future performance. In December 2023, the CSO launched their new Transport Hub which will replace the Transport Omnibus and will house all their transport-related statistics in one area for ease of access and will be a useful resource for tracking performance in meeting the objectives of this Strategy. For example, TII traffic counter data is now available, and odometer readings from the NCT will be available in the Hub. Statistics on a broad range of topics, including journey times, are also integrated into the Regional Development Monitor Hub maintained by the Regional Assemblies in collaboration with the All Island Research Observatory and Ordnance Survey Ireland (via GeoHive). From an acute health perspective, changes in acute hospital admissions for respiratory (asthma & COAD) and cardiac conditions may also be evaluated over time. NTA National Household Travel Survey The NTA’s National Household Travel Survey (NHTS) is a nationwide study of Ireland’s travel habits. From 2023 onwards, this is an annual survey and as such will give the most up-to-date information. The CSO’s National Travel Survey (NTS) is also worth utilising although there are a number of similarities between both. The CSO’s NTS was last carried out in 2019, and the next iteration is expected shortly. The sample for this survey is stratified using administrative county and population density. The sample used in the NTA’s NHTS is weighted using population estimates from the CSO Labour Force Survey (LFS). Economic Cost of Congestion As outlined earlier in this Strategy, the department prepares regular reports that detail the likely economic cost of congestion to Irish cities, most recently the Economic Cost of Congestion in the Regional Cities 2022 – 2040. The NHTS collects information on distance, duration and mode of transport used, making it a useful tool for measuring success. For in-depth analysis, it looks at travel in six regions Dublin City and suburbs, the GDA, the regional cities, urban towns, rural areas and other urban districts. The most recent NHTS highlights the dominance of car travel, with seven in 10 (71%) trips being made by car across Ireland. This is in line with the 2022 Census results. Future studies by the Department will capture any changes in trends related to congestion – positive or negative - following the implementation of demand management measures. Percentage of Urban Road Space Designated to Vehicles As road space reallocation is expected to play a significant role in transport demand reduction, it is proposed to explore a mechanism whereby LAs would catalogue their public space on an annual basis to better understand how such space is used and to track reductions in the percentage of public space dedicated to private and commercial Tracking the profile of private car journeys is also important. As well as tracking the distance and duration of journeys as part of the National Travel Survey (NTS), the NHTS collects information on the distance, duration and mode used. For example, it notes that the majority of car journeys ### Distance from Public Transport Services *Pages 136–136* Distance from Public Transport Services vehicles compared to that for pedestrians, in particular, and also for cycling and shared mobility services. In order to assess well-being under the Housing and Built Environment dimension of Ireland’s Well-Being Framework, the CSO tracks the Average Distance to Everyday Services. This indicator refers to the average distance of residential dwellings to everyday services in Ireland such as schools and hospitals and provides insights on the differences in service accessibility within urban and rural areas. This indicator also provides information on the average distance of households to their nearest bus stop. The results of this indicator shows that the average distance for a house to the nearest public transport stop was 2.7km. However, as expected, this distance was significantly lower for urban areas and higher for rural areas. This reflects the greater provision of public transport services in more densely populated urban centres. Noise Harmful Effects Assessments Noise caused by transport is considered the second most significant environmental cause of ill health in Western Europe and as such, the reduction of noise pollution will be a benefit of this Strategy. To assess the impacts of the transport sector on noise pollution, the department will review the work of LAs and the other Noise Mapping Bodies (NMBs) (e.g. TII) in undertaking harmful effects assessments as required under S.I. No. 663/2021, European Communities (European Noise) (Amendment) Regulations 2021. Road Traffic Volumes The Central Statistics Office (CSO) periodically produces Road Traffic Volumes data38. This Road Traffic Volumes data comes from two important datasets: Separately, the CSO, in conjunction with Transport for Ireland (TFI) conducted an examination of the share of the population located within a variety of distance-based catchments from public transport stops, (Luas, Train and Bus stops), and also assessed the frequency of services provided at those stops. Results are based on the 2016 Census and the Transport for Ireland Network survey in 2019. In addition to providing information on the national average distance to access public transport services, this metric also provides insights for specific cohorts of the population, such as the distances households who do not own a car or van, or older people aged 66 and over, have to travel to access public transport services. These indicators show that on average older people tend to be located further away from public transport services compared to the population as a whole. Conversely, households who do not own a private car or van tend to be located nearer to public transport services. This has important implications for monitoring wellbeing as ensuring that transport is accessible to older population cohorts and those who may not have access to alternative private transport modes. 1. The number of vehicles in the fleet 2. Regular odometer readings from roadworthiness tests The number of vehicles in the fleet are obtained from the National Vehicle and Driver File (NVDF), administered by the Department of Transport. Odometer readings are available from two separate administrative sources; the National Car Testing (NCT) Service and the Commercial Vehicle Roadworthiness Testing Service. These sources are linked to the NVDF by vehicle registration number. Odometer readings are typically captured for private cars (four years old or more) at least every second year. Odometer readings are typically captured for commercial goods vehicles, public service vehicles and other selected categories of vehicles on an annual basis. Given that the principal unit of measurement used to assess Road Traffic Volumes is vehicle kilometres travelled (VKT), and one of the main metrics in CAP is a reduction in 2030 VKT, Road Traffic Volumes data will be used to assess the effectiveness of this Strategy and various measures rolled out in the coming years. Information on average Vehicle Kilometres Travelled is available on the CSO’s Transport Hub here. 38 Road Traffic Volumes - Methodology ### Safety Indicators *Pages 137–138* Public Transport Accessibility Levels This data shows that a greater proportion of Irish transport expenditure was spent on transport services compared to other peer countries. Only the United Kingdom is recorded as spending a greater proportion of transport expenditure on transport services over the period 2011-2021. While the indicators discussed above provide an indicative sense of the level of sustainable accessibility provided by investments in public transport and active travel infrastructure and services, they have issues such as the use of selfreported data, or infrequent reporting periods. This indicator can be used to provide useful insights on the accessibility of the transport system. There is therefore a need for an indicator based on observed data, which is updated on a regular basis to provide insights into the level of sustainable accessibility provided by the transport network. Safety Indicators Road safety is another important aspect of wellbeing within the transport sector. Currently, data on the number of road fatalities per year is tracked by the Road Safety Authority (RSA) and reported as an indicator under the Safety and Security dimension of the CSO’s well-being dashboard. This indicator is also used to assess the performance of investment in the road network. However, as more road-space is reallocated to active travel, in order to achieve the walking and cycling modal shift targets set out in CAP23, and in order to support the monitoring of wellbeing when assessing the performance of Programme A, which relates to the provision of cycling and walking infrastructure, it may be useful to highlight the number of walking and cycling deaths or serious injuries that occur on Irish roads. These deaths could be reported as a proportion of the total number of fatalities. A potential source of this indicator is the Public Transport Accessibility Levels (PTAL) tool. This tool was initially developed by Transport for London (TfL) to assess the level of accessibility provided by the transport network and is currently being adopted for an Irish context by the NTA39. The PTAL tool measures the connectedness of an area combining the walking/cycling journey time to a public transport stop and the level of service at that stop. In general, an area will have a higher PTAL score if: ᴏ It is a short walk to the nearest station or stop ᴏ There are short waiting times ᴏ Multiple services pass by the stop In the five years between 2021 and 2025, Active Travel Road User Fatalities (cyclists and pedestrians) accounted for roughly 1 in four (27.7%) of all road user deaths. During this fiveyear period, the proportion of Active Travel Road User fatalities ranged from 19.6% in 2021 to 32.2% in 2022. ᴏ A major rail station is located in the area Affordability Indicators Another important element of the concept of well-being related to climate policy is ensuring that sustainable modes are affordable to transport users. This can be assessed through examining the proportion of total household expenditure spent on transport over time. As mentioned in the Department of Transport’s Spending Review 2023, the OECD reports on the percentage of a household budget spent on transport, which includes expenditure on private vehicles and operational expenditure on personal transport equipment. Every Citizen is entitled to use our roads without concern for their safety. Tragically, road fatalities have significantly increased in the last number of years. As per the RSA’s 2025 provisional review of fatalities, there were 185 road fatalities in 2025, the highest since 2014 when the figure was 192. Analysis of the provisional data for 2025 show that there were 174 fatal collisions resulting in 185 fatalities, representing an increase of 8% in deaths compared to the previous year. The OECD also provides data on the proportion of household expenditure which is spent specifically on transport services such as the purchase of bus and rail tickets. 39 ABTA, How To Guide, Guidance Document - Pilot Methodology By reporting on the proportion of active travel fatalities that occur, the Department of Transport can acknowledge trends in fatalities in a subgroup of road users which is important not only due to the tragic loss of life of the individuals involved but also because of the future needs and ambitions of the Department of Transport to decarbonise the transport sector. The Transport Infrastructure Ireland, “Travelling in a Woman’s Shoes” Report found that creating a safer travelling environment and improving the perception of safety was particularly important for encouraging more women to engage in sustainable mobility. As above, the National Household Travel Survey (NHTS) captures data on the travel behaviour of the Irish public across different demographics including gender, and can be used to track any emerging trends particularly in travel by women. While the tracking of adverse safety outcomes, such as the number of annual road deaths, provides useful information to support the monitoring of well-being, it is also important to assess factors which contribute to subjective well-being when travelling. One of these factors is perception of safety when using a transport service. More broadly, it should be noted that CAP23 also introduces more detailed modal split targets setting out specific growth rates for the number of journeys undertaken by sustainable mode. This is aligned with adopting a sustainable accessibility approach to monitoring the implementation of the Climate Action Plans. The evaluation of the Climate Action Plans’ performance will also be reflected in the evaluation of the Strategy. The following represents the KPIs in CAP23 relevant to this Strategy. Key Performance Indicators – Targeted Under CAP21 and CAP23 | Area | CAP21 KPI | CAP23 KPI | | --- | --- | --- | | Vehicle Kilometres | Reduce ICE km by 10% | Reduce total vehicles km by 20% Reduce total Car km by 20% Reduce “commuting” car km by 20% | | Fuel Use | N/A | 50% reduction in fuel usage | | Sustainable Transport Journeys | 125,000 additional public transport and active travel journeys, and the rolling out of sustainable demand management measures | 50% increase in daily active travel journeys 130% increase in daily public transport journeys. 25% reduction in daily car journeys Daily Mode Share: 2018: 72% (car), 8% (PT), 20% (AT) 2030: 53% (car), 19% (PT), 28% (AT) | | Escort to Education Journeys | N/A | 30% shift to sustainable modes | The Strategy will also be reviewed, and recalibrated as necessary, to maximise its effect after three years following publication. ## Case Studies ### 1 Sligo County Council: *Pages 140–145* An essential element of the Strategy is recognising existing and ongoing success, which can be harnessed to deliver impact. While the concept of demand management may be in its infancy in Ireland, there are many national and international examples of successful implementation in this area – examples that could be leveraged by other local authorities and agencies to achieve the objectives set out in this Strategy. The following represents a sample summary of case studies that were gathered to inform this Strategy and published as part of the public consultation process in 2024. As well as a case studies compendium, the subgroup reports featured many relevant examples of learnings from practice40. Background In 2023, as part of the Pathfinder Programme, Sligo partnered with Bolt to extend their shared e-bike scheme. Part of the motivation for this project was to make Sligo a “3km Cycle Friendly Town”. The Bolt e-Bike pilot had initially begun in July 2022. Initially intended as a 6-month pilot, it was extended for 12 months due to its popularity and success. The trial scheme included 40 designated bike parking areas around Sligo Town, with 80 bikes. The trial was successful, and has now been further extended, with additional charging stations, and more than 10,216 unique users recorded as of May 2025. National Case Studies Measure Impact The pilot sought to understand if a shared e-bike scheme could encourage the desired modal shift from private car usage towards sustainable transport within Sligo. Since its introduction, over 194,844 trips have been taken on the e-bikes, travelling over 371,534 kms (as of May 2025). The average journey is 9 minutes and covers a journey of 2km. The high uptake and usage following the pilot demonstrated the success of the scheme and helped to justify the case for an active travel corridor connecting Carraroe, Sligo Town and Atlantic Technological University which is currently being developed. 1. Sligo County Council: Active Travel Sligo County Council established a partnership with mobility companies, to provide a new active travel offering to its citizens and tourists with minimal cost to the local authority. Through this partnership, Sligo gained access to data to support future decision making on further provision of active travel infrastructure. ![Figure 18: Bike and e-bike rental schemes in Ireland as of 2023](assets/p140-f01.webp) *Figure 18: Bike and e-bike rental schemes in Ireland as of 2023* 40 https://www.gov.ie/en/department-of-transport/consultations/public-consultation-moving-together-a-strategic-approach-to-theimproved-efficiency-of-the-transport-system-in-ireland/ Lessons Learned Background Utilising a pilot approach is an effective tool for delivering impact in a short timeframe and can be easily replicated through the continuation and broadening of current schemes. Additionally, shared mobility including e-bikes, scooters or on-demand shared transport offer the benefits of geocoding and GPS tracking to collect detailed trip data. This is helpful to understand where travel demand exists and can be used to support the justification of more sustainable infrastructure, as seen with the planned active travel corridor connection between Sligo Town and ATU. Cork City Council pedestrianised the streets of Cork City centre temporarily in the summer of 2020 as part of ‘Reimagining Cork City’ programme. In January 2021, the seventeen streets in Cork City centre were permanently pedestrianised. Initially, the scheme was established in response to the Covid-19 pandemic and the need for accessible public space – reallocating road space so that pedestrians could move about at a safe distance from each other. Good air quality is an important long-term objective for Cork City Council. The pedestrianisation initiative not only supports public health, but also creates a liveable and people-friendly city. Cork also hosted its first car-free day on September 23rd, 2023, in the city centre as part of a pilot initiative. The car-free area stretched from Grattan Street in the west of the city centre as far as the Custom House building in the east of the centre, a total of 1.7km by car. 2. Cork City Council: Pedestrianisation and Carfree Initiatives Cork City Council reallocated road space to active travel and pedestrians across the city centre, utilising a variety of funding streams. These pilots allowed Cork City to establish an evidence base (e.g. measured improvements in air quality) and to take on board learnings in order to better refine future iterations of these initiatives. Measure Impact Both initiatives provided the public with the opportunity to reimagine a different reality for the city centre and to understand how the absence of cars on the pedestrianised streets could improve the day-to-day experience of residents and ![Figure from page 141](assets/p141-f01.webp) *Figure from page 141* Figure 19: Map of cork city pedestrianised streets visitors alike. As part of the car free day pilot, air quality impacts were analysed via air-node sensors installed at appropriate locations. The sensors measure nitrogen oxide (NO2), which is strongly associated with traffic-related emissions. At midday on 23 September 2023, the car-free day pilot commenced, and within 10 minutes, there was a recorded reduction in NO2 of 50%. Over the next 50 minutes, the sensors recorded further reductions in NO2 until 3pm. From 3pm, the levels of NO2 steadily rose, before returning to typical pre-car free day levels by 5pm. Blackrock. The combination of these projects entitled Living Streets is in essence a 10-minute town model. A key part of the Living Streets case study is the 4.5km coastal mobility route (CMR), which links five villages along the South Dublin coast between Blackrock to Sandycove. Measure Impact DLRCC worked with Technological University Dublin (TUD) to develop an evaluation framework to define what data needs to be collected for monitoring and analysis. The independent evaluation of the CMR by TUD found that the route demonstrated positive impacts both in terms of mobility and from a socio-economic perspective. It is the highest performing cycle route in the DLR area, with bike trips increasing through the provision of quality cycle infrastructure. In terms of business and economic impact, businesses interviewed along the CMR were largely positive regarding its economic impact and accepted or supported its ongoing presence. Several businesses noted an increase in footfall. Recommendations and Lessons Learned These initiatives are replicable across all scales and settlement types but there is a need for monitoring expertise. By collaborating with institutions such as universities, there is the possibility to access equipment, skills and resources which may not otherwise be available in the local authority. Vehicle restrictions on some streets can lead to more air pollution on other streets, where the air flow is less. Using low-cost sensors for street scale monitoring can provide enhanced data. The Blackrock main street redesign also had significant stakeholder support with 84% and 72% of surveyed residents and businesses, respectively, confirming the new layout is a good addition. Lessons Learned 3. Dun Laoghaire-Rathdown County Council: A lesson learnt from implementing the schemes in Blackrock and Dun Laoghaire is the need to use tactical urbanism or pilots to illustrate the benefits of a scheme. It is important to use language that highlights the benefits to the community – focus on improving the streets and green spaces. Regular engagement helps to bring people along on the journey, furthering support. Having strong input and buy-in from resident or business community is important and valuable to success. Public Realm and Coastal Mobility Route Background DLRCC introduced initiatives including segregated cycleways, public realm design, and reconfigured vehicle circulation to support pedestrians and cyclists in the area Dun Laoghaire as well as Engaging with a single representative body (e.g. a chamber of commerce) can be useful, while seeking broader inputs. One recommendation is to manage the narrative of the scheme, in terms of highlighting the long-term success and positive qualities that the scheme brings. Telling the story well creates buy-in. Dun-Laoghaire Rathdown County Council (DLRCC) has taken a multi-disciplinary approach to public realm improvements and the enhancement of active travel infrastructure, drawing on expertise across communications and accessibility to complement technical excellence. By prioritising engagement and leveraging realised success in other areas, they were able to secure buy-in and build public support across the Blackrock and Dun Laoghaire areas. A multi-disciplinary team that can work without silos and understands the project is efficient in implementing the scheme. Ensuring universal design and engaging with disability or community groups on co-design of the scheme is crucial to ensure accessibility and inclusion. 4. Dublin City Council I: Parking Regulations When existing schools apply for alterations and extensions, DCC seeks removal or reduction in car parking on site, the provision of cycle and scooter parking and the preparation of a School Travel Plan. Dublin City Council utilises carparking policy as a tool to deliver modal shift and behavioural change in urban areas. In addition, Dublin City is actively innovating to support the optimisation of freight, introducing freight consolidation, last-mile green delivery and innovative technologies in the movement of goods in the city. In recognition of hospitals as large employment centres with some in Dublin having thousands of staff, DCC has been working proactively to make hospital campuses more sustainable. Since the mid-2000s DCC has required hospitals to undertake car parking and staff travel surveys. DCC has worked with hospitals to develop sustainable mobility strategies for the hospital campuses with restriction of car parking and proactive car parking management central to the approach. Background Over the last two decades, Dublin City Council has embedded sustainable car parking policies in the city development plans with a particular emphasis on car parking as a mechanism to reduce congestion and encourage modal shifts. Limiting car parking at destination has been policy for Dublin City Council since the early 2000s, and this was strengthened by the 2005-2011 Dublin City Development Plan, which brought in maximum, accessibility-based car parking standards based on three zones across the city. DCC has been working to remove free on-street carparking over the past two decades and on-street Pay and Display schemes have been implemented in efforts to reduce long term on-street commuter parking in favour of short-term parking. Car clubs have also been a new feature of shared mobility over the last decade to address changes to car parking at destination. Regarding residential car parking, maximum accessibility-based standards are also applicable to residential developments. DCC has developed an integrated approach to mobility planning for new residential developments in collaboration with the developers of the sites41. For each site, an integrated mobility strategy is developed. Measure Impact The implementation of all these policies results in minimal car parking at destination, maximum accessibility-based standards at origin and the introduction of sophisticated travel and mobility planning in schools, businesses and hospitals. In the case of business use, the policies have been effective mechanisms for behavioural change. Dublin City Council II: Kerbside Management Pilot Background Kerbside management refers to the planning, organisation and regulation of activities that take place at the edge of the roadways, specifically the areas adjacent to the kerb. The kerbside plays a crucial role in urban transportation as it provides space for various activities, including parking, loading and unloading, public transit stops, pedestrian facilities and cycling infrastructure. With the growth in technology and new modes of transport, it has become increasingly important to manage competing demands on the kerbside in order to create an urban space where communities can thrive. DCC works proactively with the Department of Education and Youth to develop sustainable mobility strategies for the new schools. New schools have been developed as car-free with only limited accessible car parking spaces. This approach is supported by the provision of highquality cycle and scooter parking provision, maximisation of permeability to the schools, improvements to the surrounding environs and the preparation of School Travel Plans. Measure Impact Led by Smart Dublin, two kerbside management platforms were trial and tested with different teams in Dublin City Council. Different data 41 Dublin City Development Plan, 2022 - 2028 - Volume 2: Dublin City Council III: Micro Consolidation Centres (Eco Hubs) sets that were either surveyed or pulled from open data sets and made available on the digital platform. The pilot captured more than 15 unique kerb regulations with 4000+ data points for 60+ kerb kilometres. Background Recommendations and Lessons Learned A Micro Consolidation Centre refers to a strategically positioned logistics facility situated within the boundaries of the urban area, specifically focusing on Dublin City Centre. This hub serves a defined geographical scope and facilitates a transition to low-emission vehicles or alternative modes of transportation, such as walking and cargo bikes, for the final phase of product deliveries. Keeping the kerbside maps up-to date posed as a real challenge for the pilot. Smart Dublin realised that the data could be kept updated in two ways (1) the City Council teams update the maps whenever any changes were made on the streets. This would require major process changes and would not be viable for a small pilot project; (2) A third party would be required to resurvey the area, under contract, on a quarterly basis using either LiDAR or mobile mapping. The Dublin City Development Plan sets out policies and objectives to guide how and where development will take place in the city over the lifetime of the Plan. Under the plan for 2022- 2028, Dublin City Council commit to achieving a significant reduction in the number of motorised delivery vehicles in the city through supporting and promoting the use of the ‘last-mile’ delivery and the development of sustainable deliveries eco hubs and distribution centres. It is also important for the local authorities to use common data standards to advance their kerb management journey. Smart Dublin, which is part of the Open Mobility Foundation (OMF), is also exploring Curb Data Specifications (CDS). CDS is developed as an open standard by a public Curb Management Working Group that began work in 2020 and includes 160+ leaders of major US cities, transit systems, global automotive and delivery enterprises, and technology startups. ![Figure 20: Kerbside management tool](assets/p144-f01.webp) *Figure 20: Kerbside management tool* Measure Impact Dublin City Council published an Eco Hub Bye Law in 2018 under which a Sustainable Deliveries Eco Hub Operator (Delivery and/or Logistics Companies) can apply to the Council for a Licence to operate an on-street Sustainable Deliveries Eco Hub prior to commencing operation. UPS (United Postal Services) is operating eco hubs successfully at two locations and through these hubs UPS has eliminated the use of five diesel delivery vehicles in the city centre, easing congestion and reducing CO2 emissions by up to 45% in 2020 . Recommendations and Lessons Learned Public space in Dublin is ever-changing and this can make it difficult for local authorities to accommodate the demand of public space to host the eco hub. Hence, Dublin City Council is now seeking solutions to facilitate the sustainable deliveries of eco hubs and distribution centres in off-street locations in Dublin City by working closely with the delivery companies and infrastructure providers. ### Case Studies *Pages 139–139* ![Figure from page 139](assets/p139-f01.webp) *Figure from page 139* Appendix 1 Case Studies ### International Case Studies *Pages 146–152* International Case Studies The WPL charge started at £288 per annum per liable car parking space and was increased each year by inflation along with a three-year accelerator. The cost per space for the 2023/24 period is £522. Nottingham City Council included certain exemptions and discounts in the Scheme. Nottingham, UK: Workplace Parking Levy Measure Impact Nottingham, UK, addressed carparking through the introduction of a workplace parking levy in 2011 which currently operates at 100% compliance. A lengthy process for the city, it took four years to get from business case to implementation. Nottingham prioritised public and industry engagement throughout the planning and development process and continued this through to implementation, providing access to supports for businesses in travel and transport planning. As the Nottingham WPL was introduced as part of a wider strategy to reduce car use, the impact of the WPL in isolation cannot be identified. However, the impacts of the wider strategy have been monitored and reported, from which the likely impacts of the WPL can be discerned, for example: ᴏ Liable parking space numbers reduced by 25% initially and then levelled out. ᴏ 80% of employers now pass the levy charge onto employees – covering just over half of the liable spaces. ᴏ The public transport improvements paid for by the levy create better alternatives to the car. Around 40% of workplaces are served by the tram and 55,000 employees use it to commute to work. Background ᴏ Traffic has declined by 9% since 2004. Nottingham introduced a Workplace Parking Levy (WPL) in the city in 2011. WPL is a charge on the occupier of premises (typically the employer) for the number of parking spaces they provide that are used by employees, business customers, business visitors, and anyone parking in the course of their business or education (including students). A WPL is a pricing mechanism intended to help directly manage car demand and generate revenue streams that are often ringfenced to be invested in local sustainable transport. There is an incentive for employers who are subject to the levy to reduce the number of parking spaces they provide. ᴏ Reducing car parking demand leads to redevelopment potential on brownfield sites, which reduces demand on greenfield sites which are normally more difficult to serve by sustainable modes. This has been very important for some large employers such as the two universities. ᴏ The number of employers with travel plans has doubled since 2012 – one third of larger employers now have travel plans. There is no evidence of any significant negative economic impact in Nottingham. WPL has raised almost £90 million in 10 years. Multiple benefits are associated with WPL, including reduction in car trips and the associated air pollution, carbon emissions and traffic. These charges applied can generate funds that can be invested in sustainable transport and lower demand for car spaces providing opportunities for alternative land uses. Indirectly, a WPL can help manage the wider impacts of traffic on communities and the environment, such as air pollution and poor land utilisation. Recommendations and Lessons Learned There are several takeaways regarding the Nottingham Workplace Parking Levy, including: ᴏ Parking levies are best applied in areas that are well suited to public transport investment or are already served by public transport, thereby offering an alternative. ᴏ Timeline for introduction can be lengthy with a need to allow for constructive consultation. It is important to clearly identify the allocation of funds raised by the WPL, and ideally use the monies raised to invest in sustainable transport as an alternative to the car. design and the ability to grow active travel mode share while supporting economic development. Amsterdam also runs two on-demand transport services in AMLflex and Mokumflex and takes an economic approach to the allocation of urban space. Public space is described as holding more economic value than ever before. Streets, squares and parks are not only a location requirement for residents and companies, but also a production environment. Amsterdam Amsterdam’s car and bicycle parking development standards encourage residents to own more bikes than cars, while their approach to the design of public spaces makes it simple and affordable to create high quality public spaces. Amsterdam, the Netherlands has standardised and simplified the planning processes in urban areas to provide a transport system that prioritises sustainable modes. Sustainable mobility (via active travel and on-demand public transport) is seen as the preferred option to users due to the transparency of planning processes and the prioritisation of craftmanship, innovation and user experience across design and implementation. Parking standards in Amsterdam are divided into three zones: ᴏ “A localities” (purple), have very good public transport accessibility and easy access to intercity train stations, so the municipality only prescribes a maximum parking standard. ᴏ “B localities” (grey), have good public transport, but are further away from intercity stations. In these locations, the municipality applies both minimum and maximum parking standards. Background The Amsterdam metropolitan area offers a lot of lessons learned to Ireland with regards to urban ![Figure 23: Zonal mapping of Amsterdam car parking standards](assets/p147-f01.webp) *Figure 23: Zonal mapping of Amsterdam car parking standards* ![Figure 24: Zonal mapping of Amsterdam bicycle parking standards](assets/p148-f01.webp) *Figure 24: Zonal mapping of Amsterdam bicycle parking standards* ᴏ “C localities” (orange), are more rural areas that don’t have good public transport options. Parking numbers in these areas are more customised – the municipality may require that parking is provided on private property, but parking on the street may also be allowed. Lessons Learned The standardisation and simplification of urban design processes can improve the speed and quality of completed street redesigns. Framing sustainable transport and urban space developments from an economic perspective, attracting investment and young knowledge workers and encouraging retail and hospitality spending makes it easy to get stakeholders on board with changes to the status quo. Bicycle parking standards similarly vary by area of the city, with Zones 1, 2, and 3. Bicycle parking is always provided as a minimum standard. For residential developments, individual bike storage facilities are the preferred parking method, but communal storage facilities are permissible. In practice, this typically means that individual storage is most logical for low-rise housing, while collective storage is most logical for multi-storey housing. All of these standards are higher than car parking standards, encouraging households to own multiple bikes, but not multiple cars. Amsterdam’s parking standards that encourage residents to own more bikes than cars and require developers to support the municipality’s reduction of on-street car parking is a cost-effective way to reduce car usage and improve the quality of the public realm. These standards cost very little for the municipality to enforce, while allowing them to completely transform streetscapes without removing the net amount of parking in the city. Measure Impact On-demand transport may have its place in the more rural and peri-urban areas of Ireland, and the possibility of partnering with private operators may make this form of transport a cost-effective way of bringing public transport to areas where traditional public transport is infeasible. Car vehicle-kilometres travelled has largely stayed the same since 1990, despite its population growing approximately 25%. This would indicate that growth is being facilitated by public transport and active travel, rather than by private car. Copenhagen Metro and Cycle Superhighway The Copenhagen Metro is a light rapid transit system throughout the three municipalities of Copenhagen, Frederiksberg and Tarnby. The system operates 24/7 and is a world leading public transportation system. The metro system is served by a network of driverless trains and does not operate on a timetable but rather has fixed intervals (between 2-4 minutes) depending on the time of the day. Copenhagen has rolled out ambitious and extensive public transport and active travel projects in an effort to promote modal shift and reduce car usage in the city. The delivery, and extension of, the Copenhagen Metro and the development of cycle superhighways can act as two examples of how large projects can influence travel patterns. The cycle superhighways in Copenhagen are a coherent network of cycle highways across the capital region, where the needs of cyclists are given the highest priority in the road hierarchy. A cycle superhighway is defined by its location and physical qualities. The highways connect work, study, and residential areas as well as public transportation hubs making it easy to combine a commute with public transport. The superhighway network ensures a safe, smooth ride with fewer stops and increased safety with the aim to increase the number of commuters who bike 5-30km daily. Background The expansion of the metro network and the development of cycle superhighways in Copenhagen have resulted in a significant shift from car use in the city, while encouraging a transport network which is sustainable, fast and safe for all ages, persons and abilities. ![Figure 25: Copenhagen metro line network map](assets/p149-f01.webp) *Figure 25: Copenhagen metro line network map* Measure Impact Lessons Learned Overall annual ridership of the metro system grew significantly between 2010 to 2019, from 52.5 million to 78.9 million. The expansion of the network, along with the existing network lines, has resulted in approximately 85% of citizens in Copenhagen having access to a metro or train station within 600 meters from their home, as well as being a part of the 75% of total resident journeys covered by foot, bicycle or public transport modes. The use of public/private financing structures to develop a highly efficient and highly used metro network in the capital, which is possible through the re-development and renewal of urban areas and land, could be an avenue to support the heavy investment and financing required for transportation developments. The development of cycle superhighways, combining new and existing cycle pathway infrastructure, could also work in the context of Ireland’s cities and their surrounding commuter belts. Through the improvement to existing cycling networks, there will be a reduction in travel disruptions caused by the provision of new routes. After the development of the first 8 cycle superhighways in 2019, the following outcomes were found: ᴏ 23% increase in number of cyclists when route is upgraded to a cycle superhighway. Overall, across both projects, establishing clear frameworks, collaborations and partnerships were crucial for the successful implementation. User buy-in is equally important. Finally, the various forms of public and active travel modes in the city are well integrated to each other. Across the metro line, there are many stations which are shared by other s-train services in the city and are all well connected to bus routes and stops. Most stations on the network are fitted with bike racks, and bikes can be brought onto the Metro. The cross integration across the different transport offerings is something Ireland could seek to incorporate in their own travel network, to make the utilisation of multiple forms of public and active travel modes for users easier, and more accessible. ᴏ 14% of the increase in cyclists are from new cyclists that previously travelled by car. In terms of environmental benefits, the development of the 45 superhighways are projected to result in annual reductions of 1,500 tonnes of CO2 emissions per year, as well as leading to an avoidance of 2,500 kg of NOx emissions per year. Outside of emissions reduction, wider benefits include reductions in hours spent in traffic, reductions in commute times, reductions in car journeys, reductions in public cost spend due to a reduction in sick days taken due to the wider health benefits of cycling and economic benefits resulting from reduced congestion. ![Figure from page 150](assets/p150-f01.webp) *Figure from page 150* Figure 26: Financing model for metro expansion New Zealand Road User Charging Road user charging apples to both heavy duty vehicles (HDVs) and light duty vehicles (LDVs) in NZ. Under the current system, operators of all vehicles that do not use a fuel that is charged Fuel Excise Duty (FED) are subject to paying road user charges (note Petrol vehicles pay FED). Therefore, diesel vehicles and most recently LDV Electric Vehicles (EVs) pay road user charges. Currently, road user charges for LDVs are NZ $76 per 1000 Km prepaid licence for a vehicle <3500 kg (€0.043 cents/km). NZ petrol excise duty is currently charged at $0.70 per litre43 (approx. €0.043). The cost of road user charging for HDVs is greater (from €82 - €1,087 per 1,000 km) and varies depending on vehicle type and weight)44. New Zealand has long been a pioneer of road user charging (RUC). Introduced in 1978, RUC in New Zealand is mature and the ringfenced revenue is used to maintain the country’s extensive road network and to fund the New Zealand Transport Program (NZTP). Background New Zealand (NZ) is one of the pioneers in road user charging having first introduced it in 197842. From its introduction which was initially driven by a need to generate revenue to fund road maintenance, the NZ road user charging system is now also a funding source for the land transport system. Its core concept is a road user charging approach based on vehicle’s distance travelled (i.e. it does not vary by time and location) and contribution of these funds to transport investment, operations and maintenance. NZ provides a number of key considerations and potential lessons learnt for other jurisdictions, such as Ireland, considering the implementation of a road user charging system. Measure Impact The NZ road user charging system generates a significant revenue stream ($NZD 2 billion, equivalent to €1.1 billion, in the 2020/21 financial year). This revenue supports (and is ringfenced for) investment in road maintenance, ![Figure from page 151](assets/p151-f01.webp) *Figure from page 151* Main sources of revenue for NLTP - NZ (2020/21 - y/e June 2021) Road User Charging 45% Motor vehicle registration and annual licensing fee 50% Fuel excise duty 5% 42 First introduced via the Road User Charges Act (“RUC Act”), 1977 43 Road user charges: light vehicles (Factsheet 38) | Waka Kotahi NZ Transport Agency (nzta.govt.nz), Rates of petrol excise duty and road user charges | Ministry of Transport 44 RUC rates and transaction fees | Waka Kotahi NZ Transport Agency (nzta.govt.nz) subsidies in public transport, enforcement, and road safety. The NZ Road user charging system materially contributes to the funding for broader National Land Transport Program (NLTP) objectives including transport infrastructure investment, maintenance and road safety. alternative road user charging approaches such as tolling which generally costs considerably more. Enforcement: The ‘honour system’ supported ᴏ by odometer readings and ad hoc Police checks is a simple and low-cost form of enforcement. Furthermore, under the current system vehicles are charged according to their overall use of the road network and the associated costs they impose, this system has gained general public acceptance in terms of equity, and has now been in operation for almost 50 years. Lessons Learned Case studies such as this one are important for Ireland to consider in the context of electrification and the implementation of other transport policies. Key lessons learned from the NZ case study include: Equity: The ability to accurately allocate ᴏ charges based on road usage and to reduce road user charging for exempt vehicles/users which are subject to FED promotes equity and fairness, ensuring that those who use the roads more contribute proportionally EV Transition: NZ provides an example of a ᴏ climate action focussed jurisdiction which is implementing road user charging on alternative fuelled vehicles including LDV EVs (introduced 1st April 2024/brought forward from initial date of 2030) and HDV EVs (31 December 2025) whilst continuing to endeavour to encourage the EV transition. Public Awareness: The importance of ᴏ effective communication, engagement and consultation with key stakeholders can help in fostering public acceptance, enhancing its effectiveness and legitimacy. Sustainable Funding: Transparent mechanisms ᴏ for reporting on and allocating revenues associated with road user charging can enable the public to appreciate how transport infrastructure/ services are funded, benefiting all road users. Economically efficient collection system: ᴏ The operational cost of road user charging in NZ represents c. 1% of the total road user charging revenue which compares very favourably to the operational cost of ## Ensuring a Just Transition through Investment ### Ensuring a Just Transition through Investment *Pages 153–159* ![Figure from page 153](assets/p153-f01.webp) *Figure from page 153* Appendix 2 Ensuring a Just Transition through Investment Keeping public transport affordable Just transition is a core principle of this Strategy and will guide the implementation of the recommendations outlined in Appendix 3. More broadly, the Just Transition Framework is guiding the Department of Transport’s approach to implementing climate action policies, ensuring that investment is targeted to support people as the economy decarbonises. ᴏ Approximately 1.6m (or 30% of the population) adults and children in Ireland can travel for free on PSO services, as well as on certain commercial bus services under the Free Travel Scheme While Just Transition primarily refers to an equitable transition for those people whose jobs/ employment are directly impacted by the green transition, it also encompasses wider equity, justice and wellbeing considerations as well as the ‘leave no-one behind’ principle, which is enshrined under the United Nation’s Sustainable Development Goals (SDGs). By making sustainable forms of transport more affordable and accessible, workers can be shielded from the impacts of decarbonisation in terms of cost and provided with greater opportunities for engaging in and taking up roles/jobs in the low-carbon economy of the future. ᴏ An additional 1m people between the age of 9 and 25 benefit from significantly reduced fares, with those between 19 and 25 receiving a 50% discount with the Young Adult Card ᴏ There is also no charge for people aged 16+ who travel as companions with persons over 70 years of age ᴏ Therefore, circa 50% of the population have access to free travel or significantly reduced fares, while fares for the remainder of the population are also heavily subsidised Key initiatives to reduce or eliminate fares have been put in place in recent years, including the introduction of the 90-minute fare, and the launch of the Young Adult Card. In 2025, free public transport was extended for children to include those aged 5 to 8 years. Free travel for all children under-five on subsidised public transport services was introduced in 2017. Just Transition principles are also aligned to efforts to protect those who are transport poor, or those vulnerable groups or micro-enterprises who are most at risk of transport poverty and/ or the impact of rising fossil fuel prices as Ireland and Europe decarbonises. For this reason, it is recognised that Just Transition in transport can be best achieved by (1) keeping public transport affordable and (2) providing better infrastructure and services to more people and enterprises. Taken alongside more longstanding initiatives such as the Department of Social Protection’s Free Travel Scheme for older and disabled people, these measures ensure that approximately 1.6 million people in Ireland can travel for free on PSO services and some commercial bus services. In September 2025, a new Free Travel Companion scheme was launched, meaning anyone over 16 years of age can travel for free when acting as a companion for persons aged 70 or over. Following a revision of Ireland’s National Development Plan, as part of a commitment under the Programme for Government 2025, over €24 billion has been pledged for transport infrastructure over the period 2026-2030. In 2026, and to support the above objectives, the Department of Transport has been allocated more than €4.7 billion to progress the continued roll-out of active travel and public transport infrastructure as well as the continuation of enhanced Public Service Obligation (PSO) and Local Link services. The implementation of recommendations under the Moving Together strategy is heavily reliant on the concurrent delivery of feasible and affordable alternatives to the private car – and an environment that makes it easier for people to choose healthier, more efficient and less polluting journeys. In addition to the foregoing, more than one million young people benefit from significantly reduced fares (those aged 9 to 25) while PSO fares for the remainder of the population are also heavily subsidised, by up to 64% on the cost per passenger (in 2023), through the Exchequer. The cost of using public transport can also be substantively reduced for employees through the Taxsaver Commuter Ticket Scheme. Providing better infrastructure and services to more people Collectively, these initiatives serve to make sustainable transport a more affordable option for the whole population, but particularly families, young people and those most vulnerable to fossil fuel increases. Average fares on all PSO transport services per passenger in Ireland remain low in comparison to other countries and are in line with the commitment in the Programme for Government to keeping fares low and affordable, while acknowledging the need to develop a sustainable funding model for PSO services into the future. The 2025 Programme for Government commits to streamlining the delivery of major transport projects, from planning to execution and to providing extra funding for the improvement of transport networks countrywide to promote increased business investment in the economy and the supply of new housing. It also places a focus on linking new housing developments to public transport and schools through Transport Oriented Development, ensuring easy access for residents and visitors. Moreover, it commits to developing a new Sustainable Mobility Action Plan which promotes sustainable modes and transportoriented development to address congestion, improve air quality and reduce noise, and enhance attractiveness and accessibility of cities, neighbourhoods and town centres. The work to develop this Plan is underway and will underpin the following: As well as keeping public transport more affordable, schemes like the Cycle to Work Scheme make it more affordable for employees to purchase bikes, e-bikes and cargo bikes, thus providing another avenue for offsetting the impacts of rising fossil fuel prices. Other, more targeted measures are also being trialled. For example, the Department of Transport, in conjunction with the Department of Rural and Community Development and the Gaeltacht, have introduced a pilot initiative (2022-2025) via Pobal’s Community Services Programme to provide high quality up-cycled bicycles and e-bikes to those on low incomes and/or are marginalised/ disadvantaged. Just Transition is at the heart of these schemes. Addressing Public Transport Gaps in Rural Ireland A key aspect of Just Transition is addressing challenges specific to rural areas. Rural Recognition, along with Just Transition, are among the key principles shaping this Strategy. It is well recognised that non-urban areas in Ireland experience hotspots of forced car ownership and transport disadvantage, including high levels of transport poverty. Under Ireland’s National Sustainable Mobility Policy, an enhanced rural transport network is being implemented through the 5-year Connecting Ireland Rural Mobility Plan. To date, 185 new and enhanced services have been introduced since the Plan was launched in 2022. New connections have been made to 240 towns and villages, 41 colleges, 61 hospitals and 71 new connections to onward rail services. Ensuring equity of access to Primary and Post-Primary Education As outlined in Chapter 5 of this Strategy, the School Transport Scheme is transporting over 181,000 children in 2026. This Scheme supports those households most at risk of transport poverty and ensures equity of access to education through the provision of low-cost school transport services i.e. annual fees for the service are currently €50 for primary students, €75 for post-primary students and €125 for a family ticket (for the 2025-2026 school year). There are no fees for children with special needs who avail of services under the Scheme. It is anticipated that access to the Scheme will be expanded in the coming years so that an additional 90,000 pupils can be carried by 2030 when compared with 2024. This will be facilitated through pilots that integrate school transport services with general public transport services as well as expanded eligibility criterion under the Scheme. Funding for Rural Transport has seen a five-fold increase over the last decade, with commensurate increases in passenger numbers, rising from 1.76m in 2015 to 6.97m in 2025. The Programme for Government 2025 commits to increasing Local Link services in rural areas to better connect villages, towns, and cities, and continuing the rollout of Connecting Ireland Rural Mobility Plan and investment in new town bus services. Continuous Investment in Public Transport Infrastructure platforms to boost the rail network’s resilience and capacity. Funding is provided to support the full delivery of these projects by 2030. IIreland is committed to the delivery of major public transport projects. That commitment is evidenced by last year’s review of the National Development Plan, which allocates approximately €10.1 billion for public transport infrastructure investment from 2026 to 2030, with a further €2 billion from the Infrastructure, Climate and Nature Fund specifically to start construction on MetroLink. This €12.1 billion investment marks a major increase in public transport capital funding, more than double the level seen in the previous five years. The Strategy also identifies Major Projects to be progressed for the longer-run, involving intercity electrification and significant capacity upgrades on the rail network. Included among these Major Projects is the reinstatement of the Western Rail Corridor between Claremorris and Athenry, and funding is provided in the Sectoral Plan to advance this project into construction. With their flexibility and adaptability, buses are the foundation of our public transport systems, and BusConnects is the programme to improve bus services in our cities. To date, BusConnects Dublin has made the most progress, with all 12 Core Bus Corridor schemes approved by An Coimisiún Pleanála. The Liffey Valley to the City Centre scheme is the first to enter construction, to be shortly followed by Ballymun / Finglas to the City Centre in the second half of 2026. BusConnects in the other cities is at various stages of advancement, and the National Development Plan is to support construction on new Sustainable Transport Corridors in Cork (subject to planning) and Galway. This will significantly improve the infrastructure available to support the continued investment in bus services, supported through the PSO programme. In addition to the Government’s support for MetroLink through the provision of funding, the project has also seen other positive developments, such as the granting of the Railway Order. With planning permission and funding secured, significant momentum has been gained, with procurement commencing in 2026 and construction earmarked to start by the end of 2027. Investment in the Sectoral Plan provides funding to advance the DART+ Programme into construction, starting with DART+ West to enter construction from 2027, which will act as a key enabler for the rest of the Programme. Improving Accessibility of Services and Sustainable Options In Cork, Phase 1 the Cork Area Commuter Rail Programme, which consists of a signalling upgrade, construction of a through-platform at Kent Station, which opened in April 2025, and double-tracking from Glounthaune to Midleton, will be completed in 2026. The Sectoral Plan provides funding to commence Phase 2 starting with new train stations at Blackpool and Dunkettle and initial electrification works and depot construction. Accessibility and inclusion are central to the principle of Just Transition. In addition to making new transport infrastructure accessible from the design stage, Ireland’s Public Transport Accessibility Retrofit Programme is making legacy infrastructure and facilities accessible for everyone, including disabled people and older people, in line with SDG Target 11.2 and the UN Convention on the Rights of Persons with Disabilities. The Programme consists of subprogrammes, including in rural and regional areas, to upgrade accessibility at bus and train stations, increase the number of wheelchair accessible taxis and provide supports to enable disabled people The Rail Project Prioritisation Strategy, which was prepared with the assistance of the European Investment Bank, the Department of Infrastructure in Northern Ireland, the NTA and rail agencies across the island, was published in December 2025. This outlines how to best sequence and optimise the recommendations of the All-Island Strategic Rail Review which was launched in July 2024. Accessible Local Link Services The Strategy specifies short-term rail infrastructure investments, referred to as Early Interventions, to be delivered in the coming years, including a series of new track passing loops and Expanding the Provision of Shared Mobility Options to travel independently on public transport. The Programme was allocated €25m in 2025 which was a 67% increase on the 2024 allocation. This increased allocation will be maintained under the National Development Plan 2026-2030. Ireland’s National Human Rights Strategy for Disabled People 2025-2030 also contains a number of priority accessible transport actions, some in the area of the associated Built Environment and Active Travel. The Strategy emphasises the importance of using Universal Design and Whole of Journey principles, and engaging with disabled people to ensure accessible transport for everyone and especially for disabled people. Shared mobility is recognised for its high transformative potential in transport decarbonisation, and in the sustainable and compact growth of our urban centres. Equally, shared mobility hubs can expand journeymaking choices, by providing easy access to a range of transport modes, such as bikes, e-bikes, e-scooters, e-cargo bikes and electric vehicles. The provision of shared mobility services and hubs can also help to reduce car ownership by offering a cost-effective alternative to owning a personal vehicle, alleviating the financial burden of car maintenance, insurance, and fuel. Ongoing Investment in Active Travel Infrastructure On-demand shared services have been operating in Ireland for some time. Over the last decade, publicly funded bike-sharing schemes have been rolled out across Ireland’s five cities. In addition to these publicly funded initiatives, a growing number of services are now being operated on a commercial basis under licence or contract with local authorities. For example, car-sharing services have been available in Ireland for over a decade and an increasing number of car-sharing companies are now in operation. Other companies are providing access to shared pedal bikes and e-bikes in towns across the country, with Ireland’s first shared e-scooter scheme launched in Wexford in August 2024. Significant investment in walking and cycling infrastructure is set to continue into 2026 for walking and cycling projects (circa €1 million every day). Most of this funding is allocated to the National Transport Authority (NTA) for its Active Travel Infrastructure Programme the remainder is allocated to Transport Infrastructure Ireland (TII) for Greenways. As well as being a tourism proposition, Greenways also provide alternative and safe infrastructure in areas of the country that are transport poor and heavily reliant on cars. Many of the existing and planned Greenways routes pass though electoral divisions which have been scored as disadvantaged per the Pobal Deprivation Index. Acknowledging the potential of shared mobility across multiple policy objectives, Ireland is working hard to expand the availability of related services. For example, the bike sharing schemes in the cities of Cork, Limerick, Galway and Waterford are being expanded, to encompass wider areas of operation and more modes (e.g. e-scooters, e-bikes, e-cargo bikes etc), with enhanced services coming on stream from late 2026. The 2025 Programme for government also commits to the more specific goal of coordinating bike and e-bike rental programmes across further and higher education campuses. By investing in extensive active travel infrastructure and networks, those most impacted or vulnerable to fossil fuel increases can be provided with a safe and affordable alternative to private car use for short journeys. The 2025 Programme for Government reasserts the need for investment in dedicated infrastructure for walking and cycling, in consultation with communities and people of all abilities including older people and people with disabilities, to promote active travel across Ireland for those commuting or enjoying the countryside. It also commits to: ᴏ increasing investment in greenways, blueways and pedestrian-friendly infrastructure, ᴏ expanding the Safe Routes to School initiative, and ᴏ providing a dedicated maintenance budget to each local authority to maintain active travel infrastructure, including footpaths. Also, in keeping with a Programme for Government pledge to establish mobility hubs in every local authority area, a new Mobility Hub Pilot Programme is also being developed to test how mobility hub networks might be designed and operated on a long-term basis and to inform a model for more widespread delivery of hub networks nationwide. While the business case for the Programme is still in development, it is intended that approximately 300 hubs will be rolled out across five urban locations from 2027. In respect of the latter i.e. the zero-emission heavy duty vehicles (ZEHDV) scheme, grants are made available to companies and enterprises who wish to buy zero emission heavy duty vehicles (instead of buying diesel equivalent). The scheme, which has a budget of €4m in 2026, provides greater grant aid to smaller companies verses larger companies (60% of the cost differential for small companies, 50% for medium companies and 30% for larger companies). Included in this budget is the Zero Emission Heavy Duty Vehicle Infrastructure (ZEHDVI) scheme, which supports companies and enterprises with the costs of charging infrastructure and related technical equipment. This ZEHDVI scheme also gives greater support to smaller companies - 50% of the cost for small companies, 40% for medium companies, 20% for larger sized companies. Similarly, the permissible funding levels for ZEHDVI allows for a 10%-15% uplift of funding for companies in disadvantaged areas (defined though Section 6 of Article 36 of GBER) - based on the company size and location of the investment relative to the regional aid map.45 These initiatives reflect the growing ambition for shared mobility to be a key player in Ireland’s transport landscape, given its potential to offer an affordable alternative to private car use. Supporting captive car users and the transition to zero emissions vehicles The Moving Together strategy acknowledges that many people are locked into car dependency due to various personal circumstances. Continuous investment in our road networks is vital to ensuring connectivity and safety for car drivers, as well as for bus travel, cycling and walking. The 2025 Programme for Government commits to increasing funding for new roads as part of the NDP review. It also commits to an increase in funds for the protection and renewal of the road network to address maintenance backlogs. These supports underpin Ireland’s Regional and Local EV Charging Network Plan, which provides a pathway for the accelerated delivery of regional and local networks of public EV charging infrastructure in cities, towns and villages across Ireland, in line with both national and European ambitions for cleaner transportation. This Plan, which was published in 2025, ensures a cohesive and standardised approach and will be led by local authorities, working together to develop regional and local strategies to promote a unified and efficient rollout of charging infrastructure and to facilitate the equitable transition to EVs. To ensure drivers and businesses also have the opportunity to access lower running costs through zero-emissions private or commercial transport, where alternative options are not available or feasible, a generous range of supports is currently in place to support a transition to electric. These include a purchase grant for battery electric vehicles (BEVs); a home charging scheme; an apartment charging scheme; a benefit-in-kind tax relief for BEVs and home chargers; a VRT relief of up to €5,000 for BEVs; accelerated capital allowances for BEVs and a low rate of annual motor tax. From a business perspective, among some of the supports available is a grant for taxi drivers to make the switch to an electric vehicle (EV); and a grant for HDVs to bridge the gap between a zero-emission vehicle and a fossil fuel vehicle. The new Programme for Government 2025 commits to developing a new National EV Infrastructure Strategy which ensures EV charging is ahead of demand and in line with EU mandated obligations, including neighbourhood charging for those who do not have access to home charging and charging across the main transport arteries. It commits to substantially increasing the number of publicly available EV charging points, ensuring better coverage nationwide, and reducing the average distance between EV recharging points. It also commits to making EVs more affordable by examining the current EV grant system and the introduction of additional incentives and reviewing customs duties on second-hand EV imports. 45 https://www.gov.ie/en/department-of-enterprise-tourism-and-employment/publications/regional-aid-map-for-ireland/ In summary As acknowledged in the NDP, there is a need for record levels of capital investment in public transport infrastructure to be complemented by increased and expanded public transport services as supported under the Public Service Obligation (PSO) subsidy. Continued funding will need to be secured yearly from the budget process to meet existing levels of PSO services between 2026 to 2030. To maximise the benefit of capital investment, and to ensure Just Transition principles are upheld, the Department of Transport will continue its close engagement with the Department of Public Expenditure Infrastructure, Public Service Reform and Digitalisation to align current requirements for services as well as rollout of demand management measures with the delivery of major infrastructure projects. Without the large-scale investment envisaged in the NDP, the transport sector would be at critical risk of significantly underachieving in its effort to cut transport emissions in half by 2030. Demand management measures can help to minimise that risk, by complementing the investment envisaged in the coming years - through greater use of the infrastructure and services provided and greater efficiency through the consequential reduction in overall car journeys. For this reason, it is anticipated that the deployment of many demand management measures will be rolled out in tandem with, or subsequent to, the planned investment to 2030 and beyond, ensuring that ‘no one is left behind’ in our transition to a better and more efficient transport system. ## Implementation Plan ### Implementation Plan *Pages 160–176* ![Figure from page 160](assets/p160-f01.webp) *Figure from page 160* Appendix 3 Implementation Plan | Strengthened Implementation of Demand Management across National Planning System | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 1 | Strengthen policy alignment and implementation mechanisms to deliver NPF National Strategic Outcome 1 ‘Compact Growth’ and NSO 4 ‘Sustainable Mobility’ given the critical role of compact growth in reducing travel demand and in enhancing transport system efficiencies. | | | | | | | 1a | Identify and embed revised NPF transport priorities as part of RSES and MATS updates. | Avoid | RAs, NTA | LAs | RSES Q2 2028 MATS Q2 2029 | Transport planning investment priorities incorporated, as required, into the statutory Regional Spatial and Economic Strategies and Metropolitan Area Strategic Plans. | | 1b | Enhance implementation mechanisms to deliver transport planning priorities in line with revised NPF (NPO 10, 97 and 99). | Avoid | DHLGH | DoT | Q2 2026 | Enhanced mechanisms identified to support NPF implementation, with timelines for introduction. | | 1c | Extend NTA statutory arrangements for spatial and transport planning in the Greater Dublin Area to other cities for Metropolitan Area Transport Strategies in line with revised NPF. | Avoid | DoT | DHLGH, NTA, RAs | Q2 2027 | NTA remit extended with efef ct that plans will be on a statutory footing. | | 1d | Establish advisory arrangements to assist delivery of these actions. | Avoid | DHLGH, DoT | NTA, TII, LDA | Q3 2026 | Advisory arrangements identified. | | Embedding Polluter Pays Principle in Taxation Policy over Medium to Long Term | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 2 | Identify a pathway for the development of a cohesive, equitable and future-proofed taxation approach on transport based on a ‘user and polluter pays’ principle. | | | | | | Review the current range of taxes and charges applying to transport (VRT, motor tax, excise, carbon tax, tolls and VAT etc). 2a Avoid TII, NTA Q2 2027 Consider learnings and potential next steps on the implementation of a national road user charging model taking account of latest international practice. Avoid & Shift NTA, 2b Q2 2027 DoF | Empowering and Supporting Local Authorities | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 3 | Develop Demand Management strategies at Local Authority (LA) level taking account of the delivery of sustainable mobility alternatives. | | | | | | | 3a | Develop local DM strategies in line with guidance provided by DoT/ NTA (see Recommendation 4) that facilitate compact growth targets outlined in the NPF and the Regional Spatial and Economic Strategies. | Avoid | RAs, LAs, NTA, TII | DoT | Q3 2027 | LA Strategies developed as part of wider transport planning processes and DoT/NTA guidance. Strategies should encourage innovation through use of technology and AI and be disability-proofed, and consider potential impacts on gender, neurodiverse people and marginalised groups. | | 4 | Prepare guidance and develop modelling and other supports for LAs on the development of tailored Demand Management strategies, starting with cities outside GDA and major urban towns. | | | | | | | Using the NTA’s Demand Guidance provided to LAs Management (DM) Scheme for to inform approach, emphasising 4a the GDA as a template, prepare Avoid NTA DoT Q4 2026 need for cocreation/decision- guidance and rollout supports for making at local level including the local authorities. elected representatives. | | | | | | | | Develop other supports for LAs including existing transport Supports in place including 4b modelling tools to assist in the Avoid NTA DoT Q4 2026 models for application at local preparation of Local Area Demand level. Management Schemes. | | | | | | | | 5 | Update national guidelines and standards in support of demand management measures and strengthen supporting oversight and co-ordination structures. | | | | | | | 5a | The co-ordination and implementation of demand management measures will be supported through the existing National Guidelines and Standards Group with the aim of revisiting and prioritising space for transport modes that are less carbon and space intensive; as well as for reallocation of destinations to promote proximity. | Avoid & Shift | DoT, NTA, TII, DHLGH | LAs | Q3 2026 | DMURS Advice Note developed in relation to re-allocating street space, having regard to international best practice including the principles of Universal Design. Consistency required across other relevant documents including NTA’s Cycle Design Manual, Rapid Build Document, DoT statutory Section 38 Guidelines, Infrastructure Equality Guidance and other relevant DoT and TII standards. | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 6 | Enable LAs to prioritise and deliver demand management through greater integration, collaboration and the establishment of multidisciplinary teams. | | | | | | | Agree model and approach for the creation of multidisciplinary teams DoT, that can support planning, Avoid, Shift & SMP Leadership DHLGH, 6a Q3 2026 Model and approach agreed. sustainable mobility, active Improve Group NTA, TII, travel, shared mobility, demand CCMA management and provision of infrastructure for EVs. | | | | | | | | Protocols established by LAs to ensure those working on sustainable mobility projects Consultation at broadest level Avoid, Shift & NTA, 6b DoT Q4 2026 in LAs are consulted with undertaken within LAs. Improve DHLGH in respect to local area and transport plans as well as planning applications. | | | | | | | | 7 | Incorporate demand management principles into Active Travel Schemes while assuring alignment with sustainable accessibility and road safety requirements. | | | | | | | 7a | Ensure funding criteria for AT schemes optimises their demand management potential, while ensuring alignment with sustainable accessibility and road safety requirements. Update associated guidelines where relevant (see Recommendations 6 and 7). | Avoid | DoT, NTA | RSA | Q2 2026 | Funding criteria reviewed and adjusted where appropriate - including any associated guidance. | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 8 | Communications and engagement support for LAs. | | | | | | | Expand and improve NTA, D/ Public engagement pilot community engagement Sport, Sport 8a Avoid & Shift DoT Q3 2026 initiatives developed and activities based on good Ireland, An learnings disseminated. practice and pilot learnings. Taisce, LAs | | | | | | | | Sustainable Mobility Academy Develop evidence-based platof rm enhanced to guidance for LA s and others support knowledge sharing, LGMA, to engage efef ctively with networking opportunities and 8b Avoid & Shift DoT, NTA, TII CAROs, Q4 2026 communities in pre and post dissemination of best-practice LAs scheme development, through consultation and engagement Sustainable Mobility Academy. toolkits (including database of best-in-class Irish projects). | | | | | | | | Develop training and accreditation programme for Long term training and LAs, including councillors, in development model developed 8c relation to DM approaches, Avoid & Shift DoT, NTA / Q4 2026 to include short, on-demand based on SMP Smart and training modules, site visits etc. Sustainable Accelerator Pathfinder. | | | | | | | | Develop a long-term strategy All and implementation plan Long-term strategy and 8d Avoid & Shift DoT, NTA, TII transport Q3 2026 for the Sustainable Mobility implementation plan in place. bodies Academy. | | | | | | | | 9 | Supplement, through alternative financing options, existing supports from national Government. | | | | | | | 9a | Explore broader financing options for LAs including EU funding supports for DM related measures. | Avoid, Shift & Improve | CCMA, RAs | LAs, NTA, TII, LGMA, New Era, DoF | Q4 2026 | Potential non-Exchequer financing options identified and guidance disseminated to LAs. | | Driving Efficiency in Freight Sector | | | | | | | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 10 | Continue to enhance rail freight capacity and explore potential for future growth in the sector. | | | | | | Increase freight capacity on 10a Avoid & Shift DoT Q4 2027 existing rail lines. Explore opportunities for 10b growing rail freight services on new railway lines. Avoid & Shift NTA, DoT Q4 2028 | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 11 | Develop Sustainable Freight Distribution Strategies for 5 Cities. | | | | | | ![Figure from page 166](assets/p166-f01.webp) *Figure from page 166* Develop strategy for sustainable freight distribution, with key stakeholders, for the Greater Dublin Area. RAs, LAs, Avoid & Shift 11a Q2 2027 TII, DoT Following completion of GDA Strategy (action 11a), advance freight strategies, where appropriate, for other parts of the country, focused on Regional and/or Metropolitan Areas. RAs, LAs, Avoid & Shift 11b Q4 2027 TII, DoT ![Figure from page 166](assets/p166-t02.webp) *Figure from page 166* Work with key stakeholders to explore opportunities and collaborate on freight efficiency proposals. NTA, CCMA, DETE, LAs, Industry, TII Avoid, Shift & 12a Q4 2026 Improve Consider the role and operational model for multimodal logistics hubs in an Irish context. Industry, Avoid & Shift 12b Q4 2026 TII, LAs | Strengthening Supply Side Measures to Complement Demand Management | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 13 | Develop further ‘supply side’ measures, particularly shared mobility interventions, to augment sustainable mobility alternatives in next iteration of SMP Action Plan. | | | | | | | Working with delivery partners, implement additional measures to support captive SMP Action Plan 2026-2030 car users, further supporting Shift & DoT, NTA, TII, approved, reflecting relevant 13a the objectives of the SMP. / Q1 2026 Improve LAs measures identified in this This should include, inter alia, Strategy. the roll-out and scaling up of shared mobility/mobility hubs at a national level. | | | | | | | | 14 | Review existing incentives for encouraging uptake of EVs, with a focus on targeted supports for Captive Car Usages. | | | | | | | Identify incentives to support Suitable incentives to switch EV transition in areas/amongst DoF, TII, to zero-emissions vehicles 14a particular cohorts where Improve DoT, ZEVI Q3 2026 NTA agreed as part Budgetary sustainable alternatives not process. readily available. | | | | | | | | Additional incentives in Identify additional supports place for HDV transition in DoF, TII, 14b for zero emission transition in Improve DoT, ZEVI Q3 2026 line with AFIR obligations NTA HDVs. and Road Haulage Strategy commitments. | | | | | | | | 15 | Continue to evolve opportunities for flexible and remote working and digitalisation. | | | | | | | 15a | Review latest data, research and supports for remote working and digitalisation. | Avoid | DETE, DPER | / | Q3 2026 | Further evolve supports if/ where needed and lead by example by providing a toolkit for Department/ Offices to evaluate blended working in their organisations and adhere to the ’Digital and Innovation at Scale commitments in Better Public Services’, and the ’Public Service Transformation Strategy’. | | 16 | Encourage greater utilisation of remote working from hubs. | | | | | | Encourage remote working 16a Avoid & Shift from hubs. / Q2 2026 | Providing Enabling Legislation to Support Appropriate Measures | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 17 | Review relevant legislation to ensure powers are sufficient to bring forward demand management measures. | | | | | | | Undertake mapping of demand Mapping complete and management-type measures actions identified. This identified in the strategy will provide a pathway LAs, TII, 17a and assess whether existing Avoid DoT, DCEE Q4 2026 towards developing a robust NTA legislation provides sufficient legislative framework for powers to LAs, agencies and the delivery of demand relevant Ministers. management measures. | | | | | | | | Embedding Demand Management Principles and Practices Across Public Sector | | | | | | | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 18 | Embed demand management principles across all relevant Government funding programmes. | | | | | | | Review undertaken of policies and programmes Undertake a review to identify with increased attention to Government policies and travel impacts, recognising funding programmes that All depts/ the need to encourage 18a inadvertently generate travel Avoid DoT Q4 2026 agencies sustainable travel, where demand and identify potential options are available and opportunities to mitigate their working in collaboration with impacts. organisations in receipt of funding. Through mechanisms such as the Climate Action Public Sector Mandate and School Guidance and other levers Sector Climate Action All depts/ developed to support public 18b Mandate, support action Avoid DCEE, DoT Q4 2026 agencies sector bodies taking action to that seeks to mitigate travel address travel demand. generating activities in key sectors (e.g. sports, education, business, tourism). | | | | | | | | 19 | Reduce transport demand created by public sector services. | | | | | | All public sector bodies with more than 100 employees will be required to engage with the Smarter Travel Programme within one year of the publication of the Strategy. 19a Avoid DCEE Q4 2026 | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | Commence process to incorporate carbon Methodology developed recognition for non-PS target 19b Avoid & Shift SEAI, NTA DoT, DCEE Q4 2026 and applied to public sector attributable transport related bodies. emissions into the SEAI’s M&R system. | | | | | | | | 20 | Leverage potential of Civil Service Motor Travel Rates to efef ct change, including the introduction of single rate for all cars regardless of engine type. | | | | | | | Introduce a single rate for all Avoid, Shift & Options brought to 20a DPER DoT Q4 2026 cars regardless of engine type. Improve Government. | | | | | | | | Examine role of CS Motor Travel Rates system in Options brought to 20b providing higher rates for Avoid & Shift DPER DoT Q4 2026 Government. greater annual distances travelled. | | | | | | | | Engaging with education and sports sector to embed demand management principles and practices | | | | | | | | 21 | By sharing good practice, third level institutions will lead on reducing private car journeys to and from campus through climate action strategies and Green Campus Programme. | | | | | | Increasing the supply of purpose-built student accommodation and digs accommodation in the vicinity of HEIs will reduce travel demand. Students, living on or near campus means shorter, more sustainable journeys by walking or cycling, which also supports wellbeing and campus engagement. At a broader level, increasing student accommodation supply can help create a more balanced and efficient use of transport infrastructure. Increase the supply of student 21a Avoid DFHERIS HEA, HEIs Q4 2030 accommodation. Encourage HEIs to make progress in reducing car travel demand and monitor progress in this regard. Monitoring mechanism to be developed which would be published to track progress. 21b Shift DoT, NTA DFHERIS Q4 2026 | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 22 | Increase sustainable mobility supports for primary and secondary school-going children. | | | | | | Evaluation of pilots to guide the planning and implementation needed for a national rollout of a revised School Transport Scheme. Implementation of the recommendations will continue to be planned subject to resources being available to meet the increased demand from 22b. Advance integration of school 22a transport scheme with public transport services. Shift DEY NTA, DoT Q2 2026 Access to the School Transport Scheme will be expanded so that an additional 100,000 pupils can be carried by 2030 (162,000 to 262,000) relative to 2024. Support measures to expand 22b the School Transport Scheme (STS). Shift DoT, DEY / Q4 2030 Building on the School Streets Guidance, which was published in 2025, engage with local authorities to design and implement School Streets as part of the Safe Routes to School Programme. Doubling the number of School Streets (including trials). 22c Avoid & Shift NTA DoT, DEY Q4 2027 | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 23 | Sporting organisations will encourage less car travel to sports fixtures and training sessions in collaboration with local communities. | | | | | | | Existing or new transport toolkits expanded to guide the sports sectors in helping to reduce demand, particularly single occupancy car travel, Building on the model of through specific strategies the Green Club Programme, Sport Ireland, for reducing their transport develop toolkit for sports Sporting emissions - for example, 23a Avoid & Shift DCCS Q1 2027 sector to embed demand Orgs, DoT, available local measures such management principles and NTA, as fixtures scheduling, car park support sustainable mobility. reduction, provision of public transport shuttle services, location of sports grounds, encouragement of carpooling, private bus hire sharing of best practice etc. | | | | | | | | Strategies in place from national governing sports bodies for reducing their transport emissions through, for example, available local measures such All national governing Sport Ireland, as fixtures scheduling, car park bodies to develop strategies, Sporting 23b Avoid & Shift DCCS Q1 2028 reduction, provision of public supported by toolkits (action Orgs, DoT transport shuttle services, 23a). NTA location of sports grounds, encouragement of car-pooling, private bus hire, sharing of best practice etc, akin to NTA’s Smarter Travel Programme. | | | | | | | | Monitor, measure, share and Progress shared across sporting recognise performance to bodies, particularly recognition 23c reduce transport demand Avoid & Shift DoT DCCS Q1 2028 of efof rts to achieve the best generated from sports related practice. activities. | | | | | | | | Engaging with business sector to embed demand management principles and practices | | | | | | | | 24 | Strengthening focus on transport/mobility related dimensions of corporate sustainability requirements. | | | | | | Working Group in place involving the retail sector and other relevant stakeholders to support this recommendation through existing engagement structures. Examine and support recommendations on how logistics models can be modified to alleviate congestion at peak times. NTA, DETE, Avoid & Shift Business with Q4 2026 +250 employees 24a DoT Companies encouraged to seek accreditation for Smarter Travel efforts to demonstrate commitment to sustainable mobility e.g. Smarter Travel Mark. Increased take up by relevant companies of NTA Smarter Travel Mark. 24b Shift NTA DETE Q4 2026 Review the Climate Toolkit 4 24c Business to better account for the commute to work. DETE, NTA, Avoid & Shift DETE Toolkit update if and as Q3 2026 DoT required. Options identified for disincentivising workplace parking as part of DOF/DOT Working Group (established under Rec 2). Develop options to address 24d subsidies and incentives for workplace parking. Avoid DoT DoF Q3 2026 | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 25 | Work with the operators of visitor attractions, tourist hubs and major event organisers to increase the proportion of visitors arriving at sites/festivals by public transport and other sustainable options. | | | | | | Explore options for assisting tourism operators and transport hubs to reduce unsustainable travel demand and to enable decarbonised touring, including the role of planning and licensing in relation to travel demand generated by attractions. Embed greater public transport use for visitor attractions and transport hubs (ports and airports). OPW, Tourism Operators, Airports, Ports, 25a Avoid & Shift DETE, DoT Q1 2027 DHLGH, NTA Best Practice identified and pilots developed to support greater collaboration. Current licensing for large events examined in terms of travel demand conditionality. Promote collaboration across agencies, operators and promoters to help facilitate greater access to sustainable travel options for large events. NTA, LAs, Avoid & Shift DoT Q3 2026 Transport Ops. 25b | Supporting public engagement and consumer awareness | | | --- | --- | | 26 | Work with the insurance industry to examine how it can contribute to the achievement of the objectives of this strategy, particularly in respect of consumer communication on activities that may reduce unnecessary car ownership. | | Work with the insurance sector on a suite of consumer targeted communications on activities like carpooling, named driver experience, Targeted consumer no claims bonus and electric 26a Avoid & Shift DoF DoT Q3 2026 communications delivered on vehicle insurance to inform related activities. the public on methods that could reduce unnecessary vehicle ownership and journeys as well as supporting the transition to EVs. | | | 27 | Raise consumer awareness on vehicle buying and ownership. | Undertake engagement at EU level on the Commission’s ongoing review of Regulations relating to vehicle labelling and mandatory disclosure of emissions data, coupled with specific research to assess the potential of supplementary domestic regulatory frameworks on car advertising. Increased consumer 27a Improve DoT ASAI, SEAI Q3 2026 awareness of car emissions. Commission research on how best to communicate the real cost of owning a car i.e., the cost of running a car and the external costs of car use. ESRI Behavioural Research results published and informing policy options on initiatives to communicate cost of car ownership. 27b Shift DoT ESRI Q2 2026 | Building the Evidence Base to Inform Policy Choices and Demonstrate Success | | | | | | | | --- | --- | --- | --- | --- | --- | --- | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | 28 | Enhance modelling tools to betet r understand the impacts of specific demand management measures as part of wider climate action initiatives. | | | | | | National transport emissions modelling refreshed to take account of demand management measures including through notably CAP26 Corrective Action Modelling Project which is also developing appropriate links with other transport and energy models to re-calibrate national transport emissions modelling overall. Enhance modelling tools to better understand the impacts of specific demand management measures as part of wider climate action initiatives. NTA, TII, SEAI, DoT, ESRI, DCEE 28a Avoid / Q2 2026 Building on the Life Emerald Project, identify opportunities for utilising the national air quality modelling infrastructure to assess the effect of demand management measures on localised air pollution. Opportunities identified, especially in areas at risk of exceedance of air pollution limits under AAQD. DoT, NTA, Avoid EPA 28b Q2 2027 DCEE Support a pilot programme with a sample of Local Authorities to develop roadmaps for reducing air pollution levels in identified areas of concern, in anticipation of new requirement under the Ambient Air Quality Directive (AAQD). Determine potential parameters for local transportrelated interventions to improve air quality. DoT, EPA, Avoid & Shift DCEE Q4 2026 LAs, UTRAP 28c ![Figure from page 173](assets/p173-t02.webp) *Figure from page 173* CAP Corrective Action Modelling Project (CAMP) to provide detailed consideration of how measures could interact with each other and will identify the degree to which approaches (i.e. suite of measures) would be most efficient in reducing transport emissions. This will include a socio-economic assessment to consider the economic and social impacts of measures. Continue to build understanding of cumulative and relative impacts of the recommendations in Strategy. NTA, TII, Avoid DoT Q2 2026 SEAI, EPA 29a | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 30 | Undertake analysis on the efef ctiveness of reducing car parking as a demand management measure, taking account of wider parking availability. | | | | | | | Agree approach to developing a national parking inventory Commence development DHLGH, for towns with populations 30a of a national parking data Avoid DoT NTA, TII, Q2 2026 over 20k to support potential inventory. OPW, RAs parking related measures inter alia through the LA Demand Management Strategies. | | | | | | | | Methodology developed to capture key data for replication Establish quantum and nature DHLGH, and comparison across urban 30b of car parking that is available Avoid DoT Q4 2026 NTA,TII centres nationally, with an in urban centres. initial focus on towns with populations over 20k. | | | | | | | | Establish quantum of public sector car parking provision. Quantify space currently DHLGH, Develop methodology, 30c dedicated to parking across Avoid DoT NTA, TII, Q4 2026 including potential mapping the public sector. OPW and tracking of parking spaces, for achieving objectives in the Public Sector Mandate. | | | | | | | | Undertake analysis, building on data captured from actions Examine efef ctiveness of 30a to 30c above, to inform 30d reducing car parking as a Avoid DoT, NTA LAs Q2 2027 approaches to parking control demand management measure. that support objectives of this Strategy. | | | | | | | | 31 | Establish mechanism to support demand management pilot measures. | | | | | | | 31a | Design an appropriate funding mechanism to support LAs in particular to develop and roll out pilot, demonstrator projects to evaluate impacts. | Avoid | DoT | DoF, NTA | Q4 2026 | Funding options identified to support pilot demonstrator and capacity building initiatives across all sectors involved in the implementation of the Strategy, including ongoing research. | | No. | Action | A-S-I Framework | Lead | Support | Timeline | Output/Outcome | | --- | --- | --- | --- | --- | --- | --- | | 32 | Establish an oversight mechanism to monitor and evaluate the Strategy. | | | | | | Establish an oversight mechanism to monitor and evaluate the Strategy, ensuring its evaluation is fully aligned with the Just Transition Framework. 32a Avoid / Q2 2026 Agree and develop structured mechanism for data capture to inform the work of the Groups established under 32. 32b Avoid / Q3 2026 ![Figure from page 176](assets/p176-f01.webp) *Figure from page 176*