I take this opportunity to place on record my very grateful thanks and sincere appreciation to all Deputies who have contributed to this debate. The views expressed have been noted for their common sense and most intelligent approach to this Bill. No one will agree more than Deputy C. Murphy that we live in a very fine country. Our climate is neither too warm nor too cold. We have rivers, lakes, valleys, mountains, barren land, extensive forests, beautiful walks and pleasantly laid-out villages and towns. In addition to all that, we are blessed with good fisheries, all forms of sporting amenities and, generally speaking, we have many great qualities and blessings that numerous other countries have not.
For that reason there is a great responsibility on all of us to preserve what we have, to hold on to what we have, improve it and make it more attractive. In the course of this debate we have heard many views expressed that were, perhaps, outside the scope of the Bill but, nevertheless, worthy of serious note and thought.
Opinions were expressed in relation to the environment in general. The debate has served a very great and useful purpose because it has focused attention on the qualities or lack thereof of the environment. Many times in this House we have been usefully occupied in relation to all aspects of legislation involving every Department. However, it is very seldom that we get an opportunity of having a common-sense debate free of politics on a matter that concerns all of us, namely, the environment. This involves the scenery, the air we breath, the water we use. In recent years throughout the world there has been greater emphasis on improving the environment.
During the debate reference was made to co-operating with other countries with a view to improving environmental standards. In this connection I will quote from the speech by the Taoiseach to the Conference on Security and Co-operation in Europe held at Helsinki on 30th July and 1st August, 1975. The Taoiseach made an outstanding speech on that occasion. He said:
Throughout the conference, the European Economic Community played a significant role. My country, in common with its partners in the Community, shares the aim of building peace and co-operation in Europe and working towards greater human contact and wider freedom. For its own part, and as a member of the European Community, Ireland will work to implement fully the programme of action which the documents of this Conference set out; and it will be ready to try to develop and expand its scope if this should prove possible as time goes on. We hope and believe that all the States participating here today will do no less.
He was referring to the Final Act as set out for signature at that conference. He dealt in particular with the environment where commitments were entered into by all member states of the EEC. I wish to quote from that conference where it was stated:
To attain these aims, the participating States will make use of every suitable opportunity to co-operate in the field of environment and, in particular, within the areas described below as examples.
One of the examples, although not covered in this Bill, was referred to in the course of the debate by a number of Deputies, particularly Deputy Ray Burke. The example given was the control of air pollution. The report of the conference stated:
Desulphurisation of fossil fuels and exhaust gasses; pollution control of heavy metals, nitrogen oxides, in particular those emitted by transport, power stations and other industrial plants; system and methods of observation and control of air pollution and its effects, including longrange transport of air pollutants;
With regard to water pollution control and fresh water utilisation the following steps were mentioned:
Prevention and control of water pollution, in particular of trans-boundary rivers and international lakes; techniques for the improvement of the quality of water and further development of ways and means for industrial and municipal sewage effluent purification; methods of assessment of fresh water resources and the improvement of their utilisation, in particular by developing methods of production which are less polluting and lead to less consumption of fresh water.
This has special references to the Bill before the House. It is one of the practical steps being taken to fall into line and co-operate more fully with what is in progress in other European countries.
At the Helsinki conference they dealt with protection of the marine environment which is a matter for another Minister. They also dealt with land utilisation and soils, again a matter for another Minister, and they dealt with nature conservation and nature reserves and the improvement of environmental conditions in areas of human settlement. They also dealt with environmental conditions associated with transport, housing, working areas, urban development and planning, water supply and sewage disposal systems, and the assessment of the harmful effects of noise and noise control methods. At that conference reference was made to the collection, treatment and utilisation of wastes, including the recovery and recycling of materials and research on substitutes for non-biodegradable substances. There was reference also to fundamental research, monitoring, forecasting and the assessment of environmental changes, to the study of changes in climate, to the landscape and to ecological balances under the impact of natural factors and human activity. There was also reference to the forecasting of possible genetic changes in flora and fauna as a result of environmental pollution, to the harmonisation of statistical data, the development of scientific concepts and systems of monitoring networks, to the standardisation methods of observation, measurement and assessment of changes in the biosphere, assessment of the effect of environmental pollution levels upon human health, study and development of criteria and standards for various environmental pollutants and regulations regarding production and use of various products.
It can be seen, therefore, that there is on the part of the Government a very keen desire to implement practical steps such as are provided in this Bill to improve the environment.
As I have said, this Bill is only an instalment of environmental legislation. I have a very keen and personal interest in this matter, an interest which has been displayed not alone today in relation to this Bill but during the years in which I was Parliamentary Secretary to the Minister for Agriculture and Fisheries from 1954 to 1957 and when I was alarmed at what I considered to be a problem in regard to the pollution of our rivers and lakes. Twenty years ago there was no great outcry particularly in regard to the damage that was being done to our coarse fishing. French anglers, who have been coming to this country in increasing numbers, were commencing at that time to express concern at the pollution of certain rivers and lakes which they frequented. I felt at that time that we should, in the interests of tourism, lay the foundations for the protection of coarse fishing, bearing in mind the importance which the Inland Fisheries Trust attached to coarse fishing as a tourist attraction.
I am perhaps more agitated about this matter now than I was 20 years ago because I have seen the serious consequences of the damage to our fisheries through pollution—maybe not to the extent that causes us wide alarm, because we have had the report of the survey which has been carried out by An Foras Forbartha and to which I have referred in my opening speech. We may be better off in this regard than many other countries. Nevertheless we should deal with this matter with courage and determination in order to protect our fisheries and our tourist industry, particularly for anglers who can enjoy facilities in this country that are not available in most other countries.
I have made this reference to the Taoiseach's speech at Helsinki, because the Conference on Security and Co-operation in Europe gave a high priority to the environment. The environment is no less important to this Government now than it was on the occasion of the conference in Helsinki on 30th July and 1st August, 1975. It would be my desire that we in Ireland, because of our geographical situation because of the size of our population and because of the excellent facilities, beautiful scenery and so on of which we can boast, should set a headline for other European countries in regard to environmental legislation. I think the legislation we have before us will help us on the way to setting such an example.
I want to express my appreciation of the manner in which this legislation has been received in the House. The need for strengthening the control of pollution has been clearly accepted by every Deputy who spoke. Many of the matters of principle were dealt with very fully and, I hope, very clearly in my opening speech. The exercise of control of water pollution by local authorities is one of the main principles of the Bill, and I was pleased that this proposal was generally supported. I am convinced that local authorities are the proper bodies to carry out this task, particularly having regard to their other functions in the field of water management, planning control and environmental protection. I want to put special emphasis on the responsibilities of the local authorities. It has always been the aim of the Minister for Local Government since he took office and—for the record—the aim of the Government to cherish the responsibilities vested in local authorities. The local authorities can truly be described as the immediate and local government where you have representatives elected by people in each electoral area whose main concern is generally to improve living standards, the quality of life and the environment in which they live. That is the true and proper design of local government.
The Government believe that members of local authorities have a great responsibility in local administration. It has been the Minister's aim to vest them with responsibility and greater power and to encourage them to display keener and greater interest in bringing about greater involvement with the community and giving them that authority which only elected local councillors are capable of effectively and fully discharging.
The proposal that local authorities should exercise control over discharges by means of a licensing system is one of the fundamental provisions of this Bill. Local authorities are suitable bodies to exercise such control as they already have other water management functions—provision of water supplies, and sewage schemes and the extensions to these schemes which they can undertake locally. The local councillor has a clear and intimate knowledge of the requirements of his area in this regard. They exercise planning control over most forms of development of which water pollution is a side effect. They already have responsibility for a wide range of environmental functions such as control of air pollution, waste disposal, provision of area dumps and collection and disposal of litter. Apart from this, they have suitable skills and expertise. Every local authority has its own county engineer's department subdivided into area engineer's localities. They are in close touch with the needs of the area. There is this measure of close co-operation between the elected councillor who attends monthly council meetings and attends sub-committee meetings practically weekly and this brings him into very close and frequent liaison with the engineering staff of his council. Councillors are in a good position to take a balanced view of the conflicting demands of various water users. This proposal is in keeping with the aim of devolving power to local authorities.
Here I repeat what the Minister for Local Government has said on many occasions and which I think every member of the House must wholeheartedly endorse, that if you are to get greater support from and involvement by the local councillor you must give him functions and responsibilities. For that reason I think this Bill will mean a complete rejuvenation of responsibility in local councillors, engineering staffs and technical officers who have the necessary skills to advise and assist in the implementation of this legislation.
There has been reference in the debate to the question of river boards. Setting up new organisations such as river boards or regional water authorities would not be justified at this stage, in my opinion. The Bill provides for co-ordination and consultation between local authorities and other interests on a catchment basis. Rural Deputies clearly realise that county boundaries exist and that you may have stretches of rivers which will be the responsibility of perhaps one, two or three county councils. But the Bill provides for consultation between local authorities and all other interests in addition to the local authorities concerned. The setting up of river boards as suggested could possibly involve the transfer from local authorities of other water management functions such as provision of water and sewerage services. This would not be acceptable: it would not be common sense or practical. Any advantage such boards might have would be outweighed by the costs involved and the conflicts that would arise from lack of co-ordination with the planning process.
The Bill includes power to enable the Minister to set up special water pollution control authorities in the future if the need arises. The Minister will always be prepared to receive recommendations, advice and expert opinion from local authorities on this matter. The section permitting the Minister to establish these water quality control authorities is most desirable and it is one that could be used in the future by the Minister. This matter will be regularly reviewed.
The need for co-ordination and consultation within river catchments was raised by a number of Deputies. I agree that arrangements for co-ordination and consultation will be necessary for the effective control of local authorities. The Bill will enable this to be done. Section 24 empowers the Minister, following consultation with interested Ministers, to make regulations requiring local authorities, sanitary authorities and boards of conservators to consult one another and other interested parties in relation to the functions under this Bill. This is necessary and desirable.
Section 15 provides for the co-ordination of plans and the preparation of joint plans. Another important issue is the question of action to ensure that discharges from local authority sewage schemes do not give rise to pollution. In recent years local authorities have made significant improvements in the disposal of sewage at many locations. Many schemes designed to eliminate pollution are in progress. It is clear that local authorities are willing and anxious to put their own houses in order. Many Deputies have remarked that local authorities are the worst polluters. That is not a fair comment because it is clear that all local authorities have shown concern in regard to pollution. The existence of unsatisfactory sewage disposal systems in some areas is due to the fact that over the years finance was not made available to local authorities to do this work. I must put special emphasis on the words "over the years". One would imagine that this problem had been spotlighted only in recent years. Many Deputies referred to sewage disposal schemes in their areas and said they could have been improved had finance been made available in the past. I desire to place on record, knowing that it is reinforced by fact, that the Minister has made substantial capital funds available to local authorities for their sanitary services works.
I want to place on record some statistics in relation to this matter. Some Opposition Deputies, without a blush, made reference to local authorities being willing to put their sewerage schemes and disposal units in order if funds were available. The pace of water and sewerage programmes was stepped up by increases in the capital provision in the last few years, particularly under the present Government. The amount of capital allocated for the sanitary services programme in recent years is as follows: 1972-73, £8.23 million; 1973-74, £12.95 million; 1974, a 9-month period, £11.45 million; 1975, £17.75 million; 1976, £25 million.
Never in the history of this country has there been such an outstanding contribution to local authorities in relation to sewerage systems. From £8 million in 1972-73 the contribution has been increased to £25 million in 1976. That capital allocation for work and sanitary services speaks for itself. The Government have allocated sums in excess of previous provisions. As a result of the increase from £8 million to £25 million many of the old schemes have been improved. In areas where there are enthusiastic and concerned local authorities there is clear evidence of improvements to old schemes. All new development schemes are equipped with suitable treatment works to eliminate pollution. The great pity is that a greater effort was not made in 1972-73 and in previous years to provide local authorities with sufficient capital for sanitary services and works. If local authorities had been given sufficient capital in the past we would not be faced with this problem today.
The Government are meeting the problem by increasing the allocation to help local authorities put their own house in order. This will continue. I should like to express my appreciation to the county councils who submitted proposals to the Department. There is no comparison with the number of proposals submitted in 1972-73 when only £8 million was provided. This year there is a capital allocation of £25 million. Local authorities have submitted proposals far in excess of the amount of capital provided. These will be examined in the light of the current financial atmosphere.
In my opening remarks I explained that new sewerage schemes are designed to avoid the possibility of any pollution in the receiving waters. Remedial works have been carried out to many of the older schemes which were causing pollution and further works are in progress or at planning stage. While I do not propose to go into detail about the particular schemes or the position of individual locations the fact is that the ongoing sanitary service programme includes a significant number of schemes involving remedial works to abate pollution. This policy will continue until all locations at which serious pollution problems are occurring or may occur are dealt with.
I should like to state that an independent survey of pollution in Ireland was carried out by the Institute for Industrial Research and Standards and a report was published in April, 1976. This report was to the effect that the local authority sewerage schemes were not as bad as some make them out to be. That is encouraging news. It does not take from the fact that a tremendous amount of work remains to be done. The position will improve substantially when work on all the schemes under consideration is completed. The report indicates that more than 88 per cent of the country's domestic sewage will then be disposed of without any threat to our natural water resources.
It was suggested by some Members that the Bill does not include any provision for control over discharges from local authority sewers. This is not the case. While discharges from local authority sewers will be exempt from the licensing provisions there is a provision in section 26 enabling the Minister to make regulations prescribing quality standards of effluents from local authority sewers and waters into which such effluents discharge. The effect of any regulations made in respect of effluents from local authority sewers or waters into which such effluent discharges will be to place a statutory duty on the sanitary authority concerned to take steps to ensure that the effluent does not contravene the regulations. I regard this provision as preferable to a system whereby local authorities would be required to obtain licences for their discharges from the Minister. I am sure Members will agree that this is a better way of dealing with the problem.
It is not possible to deal with all the points raised. There will be an opportunity to discuss them on Committee Stage. I would, however, like to comment on the following points. Reference was made to the quality of bathing waters and arrangements for monitoring. The Bill provides for the setting of standards for all waters and the monitoring of waters, including waters used for bathing. Deputies are aware that a directive was issued by the EEC recently on bathing water quality and I can assure the House that the quality limits set out in the directive present little or no problem to us. While only limited sampling of the type provided for in the directive has yet been carried out the general position is that bathing waters in Ireland are of a higher quality than that proposed in the directive. We are in a more favourable position in this respect than most other member states. Local authorities were requested in July, 1976, to identify the bathing areas to which the directive might apply, to indicate how the water quality in these areas compares with the quality limits in the directive and to review their sampling arrangements in the light of the requirements of the directive. I do not know if all local authorities have complied fully with this request but if they have not we will again direct their attention to the importance of this matter. It is well for those who engage in bathing to know that our bathing waters are of a more satisfactory quality than the bathing waters in many other member states. That is encouraging. The implementation of this Bill will ensure that our bathing waters will be of the highest standard.
Deputy John O'Leary asked for information on the EEC directive dealing with waste oils. In this connection I should like to inform the House that my Department have written to all local authorities concerning the implementation of this directive. They were asked to consider the most suitable ways to give effect to this directive and suggestions were made to assist them. I am sure the local authorities have noted seriously the suggestions offered.
Deputy O'Leary and Deputy Kitt referred to various other environmental problems related to waste disposal, litter and so on. I was present when a plaque was awarded at the Tidy Towns competition. One of the speakers referred to the cost involved in preparing an area to compete in that competition. I told the committee that it cost nothing to stoop, pick up litter and deposit it in refuse containers. We must convince the general public, young and old, that they have a civic responsibility to keep our streets, roads, avenues and paths free from litter. If the local authorities provide dust bins and litter containers, it is no financial burden on the citizens to co-operate by putting the litter into the dust bins or litter containers which are available in most streets in our towns and villages.
I want to take this opportunity to appeal to the Press, to schools, institutions and everybody in the country, and to stress the importance of picking up litter, putting it in containers and encouraging others to do the same. We are all inclined to think that that is not our business, that it is the business of the local authorities, the street cleaners, county council staffs and so on. We all have a duty to keep our streets, roads and avenues clean. I hope all local authorities will make a special effort to have meetings in every area, sponsored by the county manager or the chairman of the local authority, to solicit the co-operation of the clergy of all denominations to bring home to our citizens that it is their duty to co-operate in keeping Ireland free from litter.
While these matters are outside the scope of the Bill various measures are being taken to deal with them. A detailed review of arrangements for waste collection and disposal has been undertaken and is receiving urgent consideration by my Department at the moment. Of course, any water pollution arising from such activities would be subject to the controls of the Bill.
Deputy Faulkner raised the question of financial assistance to deal with effluent. There are already generous schemes of financial assistance available for pollution control, including subsidies paid by my Department to local authorities, grants by the IDA for treatment works for industrial effluents and various forms of assistance for farmers.
The Deputy also referred to the need for involvement of industrial interests. I agree with him and share his concern that it is highly desirable that such co-operation should exist. The Confederation of Irish Industries and the representative body for chemical industries are represented on the water pollution advisory council. The technical expert committee set up earlier this year to advise the Minister on water supply and effluent standards also includes representation of the industrial viewpoint.
I want to express my appreciation of the manner in which the members of the water pollution advisory council have approached this legislation. I thank them for their advice and their views, which I consider are worthy of serious note, not only now but in the future, because of the wide range of interests they represent. People from every walk of life—commercial, industrial, farming and scientific—are represented on that council. I value the expressed views of these people and will take serious note of any recommendations they make.
I want to refer now to the technical expert committee. Some of the people on this committee are the most highly-qualified in the country. They approach their job with thoroughness and sincerity and give the committee the full value of their technical skills. The Minister and I are grateful to them for all they are doing for this committee.
Deputy Daly asked about the representation of the fishery interests on the water pollution advisory council. When I met that council I expressed my personal interest in the fishery aspect because I was closely associated with fisheries some years ago. The present informal council is composed of a wide spectrum of water pollution interests, which includes industrial, commercial, agricultural, fishery, professional, scientific, conservation and local authority interests, in addition to Government Departments and semi-State bodies. On the fishery side alone it includes representatives of sea fisheries and inland anglers as well as the Inland Fisheries Trust and the Department of Agriculture and Fisheries. The views expressed will be fully considered when the council is set up following the enactment of this Bill.
Deputy Daly referred to the absence of a specific provision in regard to the recovery of damages. The Bill makes provision for a court order directing that the effects of certain contraventions are mitigated or remedied. It also provides for the recovery of costs incurred by a local authority which takes steps to mitigate or remedy the effects of contraventions in certain circumstances.
Reference was made to the number of State Departments and other bodies concerned with environmental matters. Some time ago the Government set up an interdepartmental environment committee whose functions include the co-ordination of the various Departments and bodies concerned. In so far as water pollution is concerned, the machinery is already available to secure the necessary co-ordination at national level. This is the best and most satisfactory way of dealing with the problem.
Reference was made to the need to keep abreast of environmental studies and research in other countries. My Department keep abreast of international developments in water pollution control. We also have the benefit of participation in the EEC programme on the environment and Members can rest assured that what is going on abroad is not going unnoticed or unheeded by my Department.
Deputy Callanan asked me to comment on the efficiency of sewerage treatment works in low flow conditions. I understand all modern treatment plants are so designed that they will function effectively during periods of low flow. If Deputy Callanan requires any further information I shall be happy to meet him and discuss whatever the matter is with him.
Most Members referred to the need for an educational programme directed at the protection of the environment. I agree wholeheartedly with the views expressed. This was referred to specifically by the Minister when meeting the water pollution advisory council and, at the request of the Minister, they are developing proposals aimed at creating a greater public awareness of water pollution problems. Here again Members can be of immense service. When I am speaking to students in the vocational schools in my constituency I make special reference to the problem of water pollution. Wherever the public congregate in large numbers it should be possible to bring home the message.
The water pollution advisory council have organised stands at both the Spring Show and the Horse Show where they illustrate the use and the abuse of water. Those who have seen these stands have been impressed by the concern displayed and the volume of interest aroused in the general public. I compliment the council on the work they have done and are doing. They recently promoted a highly successful anti-pollution poster competition for school children. I understand they are currently investigating the possibilities in regard to anti-pollution films for television. Educational measures and publicity will, I believe, result in a greater understanding of the problem by the general public and will play an important part in combating water pollution.
Deputy Moore raised the question of standards. The Minister has set up a technical committee to advise him on water quality and effluent standards. Drinking water for human consumption should be of the highest possible standard. We cannot afford to take risks. One of the great blessings we enjoy is the number of outstanding water sources available to us. Wells and springs supply clear, clean and pure water. It is our task to keep that position and that is the purpose of this Bill and we all have a duty to co-operate in ensuring this desirable evolution.
I have often regretted the disappearance of the village well and pump. Where medical officers and local authorities are satisfied as to the quality of the water I believe these wells and pumps should be preserved as part of our heritage. These played a very important part in bygone days and they should be preserved.
Deputy Calleary referred to the need for standards. Definition of standards is a very complex matter and here the Minister and I will be depending on the advice and recommendations of the experts on the advisory committee.
I thank all Deputies who spoke for their commonsense approach to this matter. I recommend the Bill to the House. If there are any points of a technical nature made by Deputies which I have not answered I shall be only too glad to meet them personally and if there are still any points which I cannot explain I shall gladly ask the officials of my Department to elucidate them for the benefit of Deputies.
