Optimal Use of Space

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.