Chapter 2: Climate Action

2.1 Introduction

As the impacts of climate change are experienced first-hand at the local level, the Council is best placed to plan and respond to local climate change and to use its services and resources to help local communities and businesses build resilience to the impacts. Many of the Council’s services, including the management of roads, coastal areas and water services, are already feeling the effects of climate change, responding on the ground to extreme weather events which are having impacts on people, property and infrastructure across the county. The Climate Action Charter, which was signed by all local authorities on the 31st October 2019, requires every local authority to embed decarbonisation, sustainable development and climate resilience into every aspect of the work they do. 

The Council is at the forefront of climate action and the transition to a low carbon economy. In November 2017, a memorandum of understanding was signed between the United Nations, the Irish Government, Wexford County Council and NZEBRA, committing to the establishment of a UN Centre of Excellence on Nearly Zero Energy Buildings (NZEB) in Enniscorthy Town, alongside similar centres in Vancouver and New York. This centre will, in collaboration with Waterford Wexford Education Training Board (WWETB), provide education in High Performance Buildings to students from all over the world and help develop standards that will improve energy efficiency in buildings and reduce emissions. The centre is also recognised in the RSES as a ‘Key Change Location’ for driving innovation and the transition to a low carbon economy. The Council also joined the European Climate Alliance in September 2020. This is the world’s largest network of cities dedicated to climate action and which pairs local action with global responsibilities. Amongst other things, it commits the Council to reduce CO₂ emissions by 10% every five years, equivalent to the halving of per capita emissions by 2030 (from a 1990 baseline).

Wexford has also been at the forefront of renewable energy development having a Wind Energy Strategy in place since 2007 and has made a significant contribution to the State’s installed renewable energy (182 MW). Climate change has been an underlying theme in the County Development Plan and local area plans since the Draft CDP in 2011. The Council is also a leading authority in building NZEB social housing and retrofitting social houses, resulting in important reductions in fuel poverty for occupants. 

As a Planning Authority the Council can ensure that spatial planning, through strategies and objectives in development plans and local area plans, address mitigation and adaptation to climate change which are the two terms usually used to explain climate change.  

Climate mitigation refers to efforts to reduce or prevent emission of greenhouse gases. Mitigation can mean using new technologies and renewable energies, making older equipment more energy efficient, or changing practices and behaviours e.g. encouraging more walking and cycling by providing footpaths and cycle paths. 

Climate adaptation is focused on anticipating the adverse effects of climate change and taking appropriate action to prevent or minimise the damage or taking advantage of opportunities that may arise. Examples include water conservation, ensuring buildings are designed for future climate conditions and weather events, building flood defences, planting crops and trees suitable to new climate, and avoiding unnecessary development in coastal areas at risk of coastal erosion and flooding. 

The Plan addresses climate change in so far as it relates to and can be influenced by spatial planning. It is an underlying theme and it expressly influenced the formulation of a number of strategies in the plan including settlement, movement, economic development, renewable energy, flood risk management and coastal zone management. The SEA Environmental Report and Natura Impact Report also considered climate change. Such is the importance ascribed to climate change, each chapter has been prefaced with a section detailing how the topic interacts with climate change.

To avoid duplication with other strategies and policy documents, including the Council’s Climate Adaptation Strategy, the Plan addresses climate change only in so far as it relates to spatial planning.  

2.2 Policy Context

Climate policy in Ireland has evolved rapidly in recent years with the Government fully committed to a long term climate policy based on the adoption of a series of national plans over the period to 2050, informed by both UN and EU policy. Given the extensive array of climate change policy documents, a brief summary of the main policy documents and key issues as they relate to climate change and spatial planning is provided. 

2.2.1 National Policy Position 2014

This establishes the national objective of achieving transition to a competitive, low carbon, climate-resilient and environmentally sustainable economy by 2050. It sets out the context for the objective; clarifies the level of greenhouse gas (GHG) mitigation ambition envisaged; and establishes the process to pursue and achieve the overall objective. Specifically, it envisages that policy development will be guided by a long-term vision based on: an aggregate reduction in carbon dioxide (CO₂) emissions of at least 80% (compared to 1990 levels) by 2050 across the electricity generation, built environment and transport sectors, in parallel with an approach to carbon neutrality in the agriculture and land-use sectors, including forestry, which does not compromise capacity for sustainable food production. 

2.2.2 The Climate Action and Low Carbon Development Act, 2015

This Act placed climate change at the heart of Government policy and decision making. Amongst other things the Act made provision for two national plans; the National Mitigation Plan and the National Adaptation Framework. The Act requires local authorities to have regard to both in the performance of their functions and also requires local authorities to prepare Climate Change Adaptation Strategies setting out local level adaptation measures. 

2.2.3 Climate Action and Low Carbon Development (Amendment) Act 2021

This Act commits Ireland in law to move to a climate resilient and climate neutral economy by 2050. The current programme for Government (2020) commits to a 7% average yearly reduction in overall greenhouse gas emissions from 2021-2030, and to achieving net zero emissions by 2050. The Act includes the following key elements:

• Establishes a 2050 emissions target;
• Introduces a system of successive five-year, economy wide carbon budgets starting in 2021;
• Strengthens the role of the Climate Change Advisory Council in proposing carbon budgets;
• Introduces a requirement to annually revise the National Climate Action Plan and prepare a National Long-Term Climate Action Strategy at least every decade;
• Introduces a requirement for all Local Authorities to prepare individual Climate Action Plans which will include both mitigation and adaptation measures; and
• Gives a stronger oversight role for the Oireachtas through an Oireachtas Committee.

The Local Authority Climate Action Plan, which must be reviewed every five years, will specify the mitigation and adaptation measures that the Local Authority intends to adopt and to link the plan to other relevant statutory functions that they perform. Adjoining local authorities will be required to consult and co-operate with each other and to co-ordinate measures, where appropriate. The Local Authority will also be required to have regard to the Climate Action Plan when preparing its development plan and local area plans.

2.2.4 The National Adaptation Framework

 Published in 2018, the National Adaptation Framework (NAF) specifies the national strategy for the application of adaptation measures in different sectors and by local authorities in their administrative areas. It emphasises that climate change considerations need to be taken into account as a matter of course in planning/-related decision making processes and that progression of adaptation considerations in the planning and building standards processes is considered the most appropriate way of increasing the resilience of the built environment. 

It also emphasises that effective planning reduces vulnerability to the negative effects of climate change by integrating climate considerations into decision making in order to avoid inappropriate forms of development in vulnerable areas and promoting compact development in less vulnerable areas. 

2.2.5 Climate Action Plan 2019

The Climate Action Plan 2019 to Tackle Climate Breakdown contains 183 actions which will be implemented by 13 Government Departments and 40 agencies under the remit of those Departments. Actions relating to local authorities include signing up to the Climate Action Charter, the development of the Electric Vehicle (EV) charging network, the preparation of local adaptation strategies and the implementation of objectives for compact growth, in particular NPF National Policy Objective (NPO) 3a, 3b and 3c with regard to targets for development within the existing built-up footprint of settlements. 

Action 165 of the Plan outlines that each local authority will identify and develop plans for one Decarbonising Zone (DZ) in their functional area. Circular Letter LGSM01-2021 from the Department Housing, Local Government and Heritage defines a DZ as “a spatial area identified by the local authority, in which a range of climate mitigation, adaptation and biodiversity measures and action owners are identified to address local low carbon energy, greenhouse gas emissions and climate needs to contribute to national climate action targets”. The DZ should either cover (i) urban areas and agglomerations with a population not less than 5000 persons, or (ii) rural areas with an area of not less than 4km².

The range of projects proposed for the Decarbonising Zone should be specific to the energy and climate characteristics of the spatial area covered by the DZ and identify appropriate project sponsors and embrace a range of technologies. Plans for the identified DZ should also consider the economic and social benefits of decarbonizing including just transition and health. A DZ should also address the wider co-benefits of air quality, improved health, biodiversity, embodied carbon, agricultural practices and sustainable land.

2.2.6 National Planning Framework 2040

The implementation of the NPF will ensure that the planning system responds successfully to the challenges of climate change and specifically those associated with how Ireland transitions successfully to a climate resilient economy by 2050. Amongst a number of strategic goals, the NPF aims to ensure better integration of land use and transport planning policy in order to reduce commuter travel demand and support more efficient patterns of development and travel. Investment in social, educational, health and employment spheres will all impact on the development of an integrated, efficient and sustainable transport system. 

National Strategic Outcome (NSO) 1 Compact Growth, NSO 5 Sustainable Mobility, NSO 8 Transition to a local carbon and climate resilient society and NSO 9 Sustainable management of water, waste and other environmental resources all embed climate change at the heart of the NPF and planning at national, regional and local level.  

2.2.7 National Development Plan

The National Development Plan (NDP) includes objectives in relation to the aim of transitioning to a low carbon and a climate resilient society, including €940 million for flood risk management projects. 

The NDP also established a Climate Action Fund with an allocation of at least €500 million to 2027. The fund will support initiatives that contribute to the achievement of Ireland's climate and energy targets in a cost effective manner. It offers the potential for innovative interventions which, in the absence of support from the Fund, would not otherwise be developed.

The Fund will also seek to facilitate projects that contribute to other Government policy priorities including:

•  Supporting innovation and capacity building towards the development of climate change solutions capable of being scaled and delivering benefits beyond a once-off impact
• Generating wider socio-economic benefits such as job creation, air quality improvements, reduction in fuel poverty, biodiversity and community resilience and development.

2.2.8 Regional Spatial and Economic Strategy for the Southern Region

The RSES aims to build a strong, resilient, sustainable region by implementing 11 strategy statements, of which climate action is embedded in seven of those statements. It supports the implementation of the Climate Action Plan 2019, and has identified three priority areas for action to address climate change and to bring about a transition to a low carbon economy and society – decarbonisation, climate resilience and resource efficiency. The RSES prioritises action on climate change across all strategic areas and in all economic sectors, and outlines that combined effort is required to implement objectives for compact growth, sustainable travel and place-making to reduce travel demand between residential areas and centres of employment and education. The key Regional Policy Objectives (RPOs) listed below are incorporated into the relevant chapters/strategies in the Plan: 

2.2.9 County Wexford Climate Adaptation Strategy 2019-2024

The county’s first climate adaptation strategy was adopted in September 2019. Its purpose is to ensure a proper comprehension of the key risks and vulnerabilities of climate change, to bring forward the implementation of climate resilient actions in a planned and proactive manner and to ensure that climate adaptation considerations are mainstreamed into all plans and policies and integrated into all operations and functions of the Council.

According to the baseline information, agriculture (43%), transport (22%) and residential (18%) accounted for 83% of the county’s CO₂ emissions in 2006¹. The remaining 17% was attributed to commercial (8%), industry (7%), and the public sector (2%).

The strategy is developed around six key themes, most of which have relevance for the Council’s planning functions. Each of these themes is underpinned by a set of objectives and actions which have been incorporated, where relevant, into the Plan's strategies and objectives. 

2.3 Climate Change in County Wexford

Research at national level has shown that changes in Ireland’s climate are in line with global trends. For Ireland, climate change impacts are expected to increase over the coming decades and could include the following:

• sea level rise
• more intense storms and rainfall events
• increased likelihood and magnitude of river and coastal flooding 
• water shortages in summer in the east
• adverse impacts on water quality
• changes in distribution of plant and animal species
• effects on fisheries sensitive to changes in temperature

There are particular areas and land uses that will be vulnerable to these predicted changes in our climate. 

2.3.1 Critical Infrastructure

This infrastructure is essential for the functioning of the county and includes transport, energy, communications, water services and health services and depending on its location it may be vulnerable to the impacts of climate change in extreme weather events, flooding and coastal erosion.  New infrastructure must be climate resilient so as to minimise the impacts on people, property and businesses.

2.3.2 Rivers and Water

Many of the county’s main settlements developed around rivers and some of these settlements are already vulnerable to flooding e.g. Enniscorthy Town and New Ross Town.  Increased rainfall will result in flooding events and pressures on flood defences. 

Flooding can also have adverse impacts on water quality. The availability of water sources and the capacity of water bodies to assimilate wastewater discharges when water levels are low in rivers during longer and drier periods will also need to be considered in water resource planning.

2.3.3 Coastal Areas and the Marine Sector

Many of the county’s settlements have developed along the coastline and the marine and fisheries sector is also very important for the county’s economy. The increased coastal flood risk from sea level rise and increased intensity of storms poses a threat to coastal communities and sectors operating in the coastal zone. Increased storm intensity will exacerbate coastal erosion, particularly the soft shorelines, and this will pose a threat to property and infrastructure.  It will therefore be necessary to strictly control the nature and type of future development in these areas, carefully manage the location and siting of development and ensure that new infrastructure is climate resilient so as to minimise the impacts on people, property and infrastructure.  

2.3.4 Built Heritage

Managing and adapting to the effects of climate change on the historic built environment, in particular the county’s archaeological and architectural heritage, will be very important.  Historic buildings have already experienced and survived the effects of climate change, in many cases over several centuries, leaving a building stock of proven resilience. However, the increasing occurrence of extreme weather events mean that all structures, including historic ones, need to be kept in a good state of repair to resist damage from a variety of threats².

2.3.5 Tourism

Climate change will impact on tourism in the county in a number of ways. The potential warmer climate offers opportunities to extend the tourist season and as a result significantly enhance its economic potential. The county’s coastal areas including beaches are also valuable for tourism as are the many historical and cultural heritage sites in these areas.  As coastal areas are at risk of coastal erosion and flooding, there is a need to consider the vulnerability of our beaches and the cultural heritage sites and consider their future protection.

2.3.6 Agriculture and Forestry 

Agriculture and forestry are important sectors in our local economy.  The changing climate, in particular temperature, rainfall, soil quality and extreme weather events will affect crop, food and tree production. Sustainable forestry will play an important role in mitigation as trees act as carbon sinks helping to reduce greenhouse gases emissions.  

2.3.7    Biodiversity

Climate change is likely to be a significant driver of biodiversity loss. Increases in temperature will change the timing of life cycle events and the distribution of species. The physical impact of more intense storms and increased winter/spring rainfall will accelerate the degradation of habitats that are already compromised by unsustainable practices. There is therefore a need to protect biodiversity from the impacts of climate change and to conserve, restore and manage ecosystems to deliver services that increase the adaptive capacity of people and biodiversity. This, together with the expansion of the county’s green infrastructure and recognition by all sectors of the importance of biodiversity, are key components of any climate action strategy.

2.4 Climate Action Spatial Planning Strategy

2.4.1 Goal

To protect the people, buildings, infrastructure, businesses and ecosystems in County Wexford against the negative impacts of climate change, build resilience to climate change, change our behaviours and patterns of development to lessen the extent of climate change and take advantage of any opportunities that climate change may bring. This will require the Council, key stakeholders, businesses and communities to work together. 

2.4.2 Mitigation and Spatial Planning

This is focused on reducing ghg emissions, using sustainable renewable energy sources and moving to a low carbon economy. In this regard, the Plan includes objectives to:

• Facilitate a modal shift towards sustainable transport options, as set out in Chapter 8 Transportation Strategy, encourage and facilitate a significant increase in the active travel modes of walking and cycling and associated infrastructure, work with transport providers to develop public transport options across the county, including rail and bus, both in urban and rural areas, and encourage the use of electric vehicles by ensuring EV infrastructure is in place.  
• Delivering compact growth, through increasing densities, developing brownfield sites and infilling the redundant areas of our towns and villages and facilitating the development of mixed residential and commercial areas which will reduce the distance people need to travel to their homes, workplaces and other amenities and services.
• Increase employment opportunities within the county and promote the development of remote working hubs in towns and villages in order to reduce the amount of unsustainable commuting out of the county for work, much of which is car-based commuting.
• Facilitate sustainable and regenerative agriculture such as sustainable agroforestry which not only acts as a carbon sink but is a source of renewable fuel and biomass.
• Facilitate the transition to a low carbon economy which is focused on clean, low carbon technologies and promotes the development of sustainable renewable energy sources such as wind, tidal and solar energy as a means of reducing dependencies on fossil fuels, in particular, community owned and locally produced energy generation projects.
• In line with the European Energy Performance of Buildings Directive Recast ensure that all new buildings be NZEB by 31st December 2020.
• Maximise the opportunities offered by the presence of the UN European Centre of Excellence in High Performance Buildings in Enniscorthy Town and help develop standards that will improve energy efficiency in buildings and significantly reduce emissions.
• To use the Decarbonising Zone identified for the county to implement a range of climate mitigation, adaptation and biodiversity measures to address local low carbon energy, greenhouse gas emissions and climate needs to contribute to national climate action targets, and to use this learning experience to inform the roll out of further zones in the county.  

2.4.3 Adaptation and Spatial Planning

The aim of adaptation is to reduce the vulnerability of our county, people, economy and environment to climate change, to ensure a ‘Just Transition’ so that nobody is left behind and increase resilience to ensure good health and wellbeing. Adaptation brings many opportunities through green growth, innovation, jobs and ecosystem enhancement as well as improvements in areas such as water and air quality.  In this regard, the Plan includes objectives to:

• Ensure new critical infrastructure such as transport, communications, waste and water facilities and energy supply is managed and controlled to avoid areas at risk of coastal or river flooding and/or coastal erosion.
• Ensure that vulnerable developments are directed away from areas at risk in particular coastal areas at risk of erosion and flooding and areas at risk of flooding from rivers. 
• Protect, conserve and take actions to restore biodiversity, expand the county’s green infrastructure network and encourage nature-based approaches and green infrastructure solutions. These measures will provide many benefits including the regulation of temperature, reduction in storm flows and provides clean water and air.
• Consider the conversion or maintenance of land at risk of flooding to less vulnerable uses e.g. parks, gardens and open spaces for natural habitats where such land does not form part of the riparian zone or riparian buffer and where it would not interfere with the flood regulation functions of the floodplain.
• Continue to work with the OPW in the development of flood relief schemes and the maintenance of existing flood defences.
• Require new developments to demonstrate that energy planning and energy efficiency has been considered in the design of the building and the site layout and ensure that the location, layout and design of new development accommodates predicted future climate change impacts. This approach will require innovative building design, new materials and standards (to accommodate hotter summers while withstanding changes in precipitation patterns and more intense storms for example). When assessing applications, the planning authority will be cognisant of the requirements of adaptation.

Climate Action Strategic Objectives³

It is the objective of the Council: