I move that the Bill be now read a Second Time.
Upon the outbreak of the European War a year ago it seemed probable that the normal programme of public works would have to be severely curtailed. The cost of many imported materials rose sharply and it was uncertain whether those which were essential to constructional works would be obtainable after a time. While the war has adversely affected trade and industry with a consequential increase in unemployment, housing and other public works have been maintained at a fair level. In the four county boroughs a higher level of building has in fact been secured than in any of the past five years, with the exception of the year 1938 when the production of houses in Dublin exceeded 2,000.
At the present time, there are in course of construction in Dublin 1,586 dwellings. In addition, preparatory works are in progress in connection with the laying of housing foundations and the development of sites. In Cork, Limerick and Waterford, schemes have been continued practically at a normal rate, and I am hopeful that a fair level of employment on housing will continue to be maintained.
With the prolongation of war conditions, trade and industry may become more and more affected. The Government, therefore, deemed it necessary to make a close study of conditions and of the help which an enlarged programme of public works would give instead of resorting to direct relief for the unemployed. The examination of the position clearly indicated that there should be wider powers for the carrying out of public works as may from time to time he deemed necessary.
In Dublin City and the Borough of Dun Laoghaire, a considcruble advance has already been made in the survey of these districts and in the preparation of outline proposals for the future development of the areas in accordance with the recognised principles underlying town planning. Preliminary surveys are at present being made in the County Boroughs of Cork and Limerick, in 12 urban districts and in three counties.
Planning affords a very practical means of examining local government problems. A plan for the development of a city requires to be thought out as carefully as a plan for a water supply or a sewerage system. Towards the end of last year a preliminary report made by experts appointed for the planning of Dublin City was published in the Press. Amongst the works proposed for the consideration of the corporation were new ring roads on the north and south of the city to be constructed partly within and partly without the city boundary. The sketch development plans have not been officially submitted to my Department, and I am not in a position at this stage to refer to the merits of the general proposals as their adoption and embodiment in a planning scheme rests with the corporation. The value of such reports is very great. It is much easier to avoid mistakes than it is to correct them, and if we are to embark on large schemes of public works we should have the utmost evidence possible that the works undertaken will fit into a proper scheme of future development. We must try to envisage the possibilities that lie ahead rather than proceed in haphazard fashion.
In Cork, Limerick and Waterford as well as Dublin, and, in fact, in other populous areas, there are many problems created by circumscribed boundaries which might readily be solved under the provisions of this Bill. Owing to the absence of link roads between main roads a very undesirable form of ribbon development has taken place which could have been avoided by the provision of a system of link roads with sanitary services. I am fully aware of the additional duties cast upon local authorities and their officers during the past year in connection with A.R.P. and other matters arising out of the emergency, and I am, therefore, somewhat reluctant to press for the immediate preparation of planning schemes. I do think, however, that the work of making preliminary surveys should be pressed forward particularly in the larger cities and towns so that local authorities in the selection of employment schemes will have suitable proposals from which a choice can be made.
For several years past, large sums of money have been provided by the Government for the relief of unemployed persons and the reduction of unemployment. Every thinking person must realise the importance of having this money expended in a manner calculated to benefit the persons who are unemployed and to produce the most valuable results for the community. Obviously, the employment of men on useful public works is better from the personal and national aspects than the making of direct relief payments.
About two-thirds of the Employment Schemes Vote is devoted each year to works consisting of the construction and improvement of roads, sewerage and water supply schemes, and the improvement of public amenities, the execution and maintenance of which is either a responsibility of the local authority of the area in which the works are situated, or is within the powers of that body. For this reason, in carrying out any large programme of works of public utility for the relief of unemployment, it is essential to have the active co-operation of the public authorities of the country.
If the circumstances and conditions under which employment schemes have been carried out in the past were to remain unchanged, it would not be necessary to ask for the special powers which are now sought in the Bill. It is possible, however, that before the European War is over and before its consequences cease to be felt, the problem of unemployment and distress may become one of the utmost gravity. In these circumstances, and to provide against the contingency of abnormal unemployment it is necessary to take all reasonable precautions to make the way clear for such relief measures as may be considered necessary in the best interests of the State. As the great bulk of any employment schemes programme consisting of the execution of works of public utility must continue to be administered through the local authorities, it is considered essential to have all the powers necessary to secure the rapid and uniform application by local authorities of such measures as will enable works to be started quickly.
It is becoming more difficult to find suitable types of work in areas in which the numbers of unemployed are greatest. When there is a comprehensive survey made of an area the future choice of works of public utility and amenity value should be greatly simplified. I have already referred to the suggested ring roads for Dublin. In a planning survey of East Meath which has been made preparatory to the formulation of a planning scheme, there is a proposal for a new coast road from Drogheda to the boundary between Meath and Dublin. The proposal is worthy of examination as a large scale employment scheme. So also would a coast road in County Dublin in the manner of the new coast road from Portmarnock to Malahide. If feasible, such a scheme, apart altogether from the employment afforded by its execution, should enhance the district from the viewpoint, of tourist development.
In the case of housing and sanitary works local authorities have powers outside their areas, but at present there is no legal way under which the duty of making a road outside the area of a local authority could be assigned to that local authority. The present statutory limitations are unnecessarily restrictive. A local authority with extensive road and traffic interests should possess powers in relation to the reconstruction of main traffic arteries which constitute the approaches to their administrative area. The provisions of this Bill will provide statutory powers in this respect, and therefore widen the scope of employment schemes.
So much for the general principles underlying the Bill. Coming to the actual provisions thereof, Section 2 provides for the certification by the Minister of works which are being, or are about to be, undertaken by a local authority for the purpose of providing employment for unemployed persons. For the purpose of a certified work the provisions of Section 7 and following sections of the Bill relating to acquisition of land will apply. No certificate is to be given by the Minister after the expiration of two years from the date on which the Emergency Powers Act, 1939, ceases to be in force.
Section 3 enables the Minister to direct a particular work to be carried out by a local authority after consultation with that local authority. This provision is necessary for the purpose of a work situate partly in one area and partly in another, when it is desirable that the entire work should be done by the same local authority. Section 3 makes it obligatory on a local authority to carry out a work which the Minister directs to be undertaken and which is certified by him under Section 2 of the Bill.
Sections 4 and 5 provide machinery for the transfer of powers from one local authority to another in relation to roads, and for the payment of contributions by the benefited authority to the authority executing a certified work.
Section 6 will only have a limited effect. At present the Kilbarrack area of Howth is dependent on septic tanks. So also is portion of the Raheny district of the city. Instead of setting up a joint board by provisional order to be confirmed by the Oireachtas, the Minister, in pursuance of the section, can make an Order forming a united district, and then the provisions of the Public Health Acts will apply. The formation of a joint board to manage the united district will be postponed, and there will be conferred on the corporation, as executing authority, all the powers of the joint board in relation to the execution of works necessary for the drainage of the entire area, and the apportionment of expenses as between the city and the present urban district which will ultimately form part of the County Borough of Dublin. When that takes place the arrangements for the creation of a united district will cease. It may be mentioned that the drainage of this area will facilitate also the drainage of the Baldoyle and Portmarnock district of the County Health District of Dublin.
In Sections 7 to 11 there is introduced a new, simple and speedy manner of acquiring land by vesting order, without conveyance. The local authority will be able to take possession of the land with the minimum of delay, and every person to whom compensation is payable will receive interest on the amount of compensation during the period between vesting the land in the local authority and the fixing of compensation by arbitration, save where a local authority makes a written offer of compensation which is not accepted, and the compensation fixed at arbitration is not greater than the offer. In such a case it is proposed that the interest on the compensation should not be payable after the date of the offer.
It is expected that under this Bill local authorities will take in hand some of the projects which are likely to be provided for in future planning schemes. If these projects are allowed to wait until planning schemes are in force the persons who would benefit from their execution would become liable under the planning schemes for the payment of betterment to the local authority. It seems only reasonable that this liability should not cease because of the necessity of carrying out these projects in advance of planning schemes. The Bill, therefore, by Section 14 provides for the collection of betterment from owners of property which has increased in value by the execution of such works.
In order to simplify the procedure under the Public Health Acts there are certain modifications of the Public Health Act, 1878, proposed in Section 16. They mainly consist of shortening the time for giving public notices in relation to the carrying out of certain public health works. The reduction is from three months to one month which is considered reasonable in emergency conditions. The other sections of the Bill do not require any comment as they are common to most Bills regulating the procedure governing the acquisition of land for public purposes.