The fundamental aim of this Bill is to meet the need for a comprehensive and uniform set of national quality standards for meat for the home market.
Since taking on responsibility for food, I have repeatedly stressed the need to build on our reputation as a country which produces, processes and markets top quality food products in a wholesome environment. The Bill now before the House should be seen as an important element in this strategy. My reason for introducing it is not only to enhance the good reputation we already have but also to push us along to even greater standards of quality and wholesomeness.
Local abattoirs are supervised by veterinary inspectors employed by the sanitary authorities and/or environmental health officers from health boards. The lack of proper and uniform standards is due partly to this diffusion of control and also to the fact that outside the major centres of population the veterinary inspectors are, for the most part, employed on a part-time basis only. Of the 160 veterinary inspectors employed in the local authority veterinary service only 24 are full-time employees. These full-time officers are concentrated in only nine local authority areas.
As regards knackeries, it must be acknowledged that a valuable and practical service is rendered to the farming community by the majority of these premises. However, I am not satisfied that the activities of all correspond with the best interests of both public and animal health. This is the reason for tightening up the controls applicable to knackeries as provided for in the Bill.
Existing legislation, some of it dating from the mid-19th century, places responsibility for the control of local abattoirs and knackeries on 87 sanitary authorities. In addition, there is the separate existence of 11 Local Improvement Acts each of which contains provisions relating to abattoirs within the area of the sanitary authority concerned. It could be said that the present unsatisfactory position regarding local slaughtering premises is at least partly due to both the number and the antiquated nature of the laws themselves just as much as it is to the discretionary powers they give to sanitary authorities to administer them. Some authorities have not adopted meat inspection by-laws and only about 70 per cent of abattoirs are licensed. Add to that the predominantly part-time veterinary control exercised over these premises and it is easy to understand the variations in standards and practices as applied from county to county. Moreover, the penalties for breaches of the existing legislation are so small as to render prosecutions largely ineffective.
These divergent standards are also manifested in the trading area and nowhere more so than in the pigmeat sector. The House is aware that the pigmeat industry has gone through some difficult times. Increased competition on the home and export markets has presented the licensed bacon plants with serious problems. The Government and the industry have seen the need to tackle these problems and rationalisation of the processing sector, which is so vital to the survival of the whole industry, is now in progress. The Government, through the IDA, along with FEOGA, are providing substantial capital investment for the sector. However, rationalisation and investment will not be enough by themselves. Currently just 30 per cent of pigs slaughtered are exported. The bulk of the kill, therefore, is chasing a domestic market in which significant inroads have been made by local pork butchers in the last five years. Pig slaughterings by pork butchers have increased by 70 per cent during this period. The licensed bacon plants are thus being placed at a competitive disadvantage vis-á-vis their unlicensed competitors owing to the cost of observing stringent hygiene standards and payment of veterinary inspection fees. It would be nothing short of farcical if those who seek to adhere to the highest standards are penalised costwise compared to those who are producing at lesser standards. Unless competitive equality can be restored to the home market I can see prices paid to pig producers suffering in the long term. Through the extension of veterinary controls and inspection fees to all local slaughterings this Bill should also provide useful assistance to the pigmeat industry as a whole.
The butchers' trade itself has been undergoing change. The development of slaughtering facilities by wholesale establishments has cut the number of private abattoirs by about 350 since the early seventies. Slaughtering for their own businesses would appear to have become unattractive for many small butchers particularly at a time when labour and other costs are continually increasing. Consumer preferences and concerns have also pushed the trade into change. Other challenges to be met include meat substitutes, the prospect of increased imports of fresh meat and meat products and new EC controls on domestic meat supplies. Clearly, now more than ever the trade needs to be flexible and adaptive. To their credit, most people in the trade recognise the need for fresh ground rules on the preparation of meat and also the need to root out the cowboy operators who can give the trade a bad name. Most of our abattoirs are owned by family butchers, many of whom have been in the trade for generations. Their names and good reputations underpin the quality of their meat. I am sure this Bill will greatly assist them in making the transition from the old to the new while securing an enhanced reputation for the meat they produce.
The Bill proposes two major divisions of responsibility aimed at improving standards. These are: licensing of premises by the Department of Agriculture and Food and the vesting in the 27 county councils and the five county borough corporations of veterinary control of premises, including supervision of all slaughterings.
As I mentioned earlier, because licensing of premises is lax in many areas and given the Bill's objective of establishing a national domestic standard on a par with export standards, there is a need for a central licensing body, at least in the short term. In the initial stages therefore, my Department, which for long have been closely involved with the export meat plants and have the necessary expertise to do this job, will control licensing. The enforcement of the new veterinary controls will continue to be exercised at local level. Each of the major local authorities, or where warranted a combination of not more than two authorities, will be obliged to employ at least one full time officer. All slaughterings will be subject to veterinary examination by way of ante and post-mortem inspection and all meat found fit for human consumption will be stamped with a health mark. There will also be regular inspections of knackeries. Veterinary inspection fees will be introduced on slaughterings at local abattoirs at the same levels as those applicable at the export plants.
At present, full supervision of slaughterings is conducted by a very small minority of local authorities, notably in Dublin and Cork where all meat for human consumption carries a health mark. It is not good enough that full slaughtering controls should be confined to a handful of areas. As I mentioned earlier, this Bill will provide a national standard at the highest level and one which can be readily identified by consumers. It will provide an assurance to the Irish housewife that meat being sold on the home market has been prepared under hygienic conditions and is fresh, wholesome and in every way fit for human consumption. In this way also it should provide a major fillip to the trade in its efforts to increase consumption of red meat.
In the preparation of the Bill there has been considerable consultation with the various interests concerned including the domestic meat trade, local authorities and the veterinary associations. My approach and that of my officials has been open and flexible while not losing sight of the basic aim of creating the framework for top quality production, processing and hygiene standards in the domestic meat sector. We have taken on board many suggestions made in the course of these consultations and we have also incorporated some amendments put forward during the Seanad debate on the Bill. I will refer to these in dealing with the detailed provisions of the Bill which I now move on to.
Section 2 contains definitions of the terms used in the Bill. In the course of the Bill's passage in the Seanad, the home slaughtering concession provided for under the definition of "abattoir" was restricted to the killing of a pig or of an injured animal to prevent suffering. This restriction was prompted by the trade's concern that any wider concession would lead to wholesale abuse. Some Senators had sought that farmers should also be allowed slaughter a lamb without being subject to the Bill's controls. The facility to kill a pig on the farm reflects a longstanding farming tradition in this country. However, to allow for the slaughter of lambs on farms would offer far greater scope for abuse to unscrupulous individuals. Already, my Department have had reports of sheep carcases of dubious origin reaching city markets. There will be nothing in the Bill to prevent farmers, who so wish, from having a sheep or bovine professionally slaughtered in a licensed abattoir.
Poultry is excluded from the definition of animal because I am satisfied that slaughterings at non-export poultry plants are adequately covered under the food hygiene regulations. Similarly, deer and rabbits are excluded from the definition as commercial slaughterings of such species are, in the main, aimed at export markets and as such are already subject to controls. Should the situation arise where such species are slaughtered in significant numbers for the home market at our local abattoirs they can be brought within the scope of the Bill under subsection (3) of this section. However, to cater for poultry slaughterings leading up to Christmas time especially, and also for the occasional deer found in local abattoirs, provision is being made under section 39 (3) for such slaughterings to be subjected to veterinary examination.
Section 8 to 16 deal with abattoir licences and make it unlawful for a person to use any premises as an abattoir unless he holds a licence issued by my Department. A licence will be valid for 12 months from the date of issue. An annual licence fee at the following rates will be payable:
For abattoirs with annual slaughterings of
less than 500 animals |
£10 |
between 500-1,000 animals |
£50 |
in excess of 1,000 animals |
£100 |
Section 13 was amended in the Seanad to provide that on the death of a licence-holder the licence will continue in effect for the benefit of the personal representative of the deceased for two months or until its normal expiry whichever is the longer.
As the licensing authority it would be inappropriate for me to sit in judgment on an appeal against refusal or revocation of a licence. Accordingly, section 16 allows for appeals to lie to the Circuit Court. In the Seanad the request was made for the establishment of individual county appeals bodies to obviate, where possible, the necessity for recourse to the Circuit Court. I could not agree to such a request because I believe that, apart altogether from compositional difficulties, such an intermediate appeals system would prove to be largely redundant. My Department's basic approach to licensing of premises will be that all premises which are up to licensing standard will get a licence and any premises which is not up to licensing standard but which can, through improvements reach that standard, will get a permit as provided for under section 17.
A premises would need to be in a very poor state not to qualify for a permit and so I envisage that the number of cases arising which would not qualify for either a licence or a permit should be very few indeed. As public health will be the overriding consideration in cases of outright refusal or revocation I feel that recourse to the Circuit Court is the proper way to cater for appeals.
Arising from the 1982 survey of premises, which I mentioned earlier, it is evident that a number of premises will require modifications, in varying degree, to achieve the required standard. To meet this situation I am providing under section 17 for a permit system, somewhat like a provisional licence, for a transitional period of five years. A permit will be issued for a specified duration and will be renewable, if necessary, to allow proprietors time to bring their premises up to standard. It will have the same validity as a licence for all purposes under this Bill. I propose to have the permit indicate the improvements required, be they structural or in relation to equipment or otherwise. This permit system will only apply to abattoirs currently in existence and which are capable of being brought up to standard. The control of operations within slaughtering premises will be set out by me in regulations to be made under section 20. These regulations will embrace such matters as lairaging, core times during which slaughterings may take place, meat preparation and processing, the hygiene of staff, premises and equipment and the storage and disposal of animal wastes. As to the actual times of slaughter, these will be fixed by the local authorities in consultation with the trade. Sufficient flexibility will be provided for in the regulations to satisfy most needs and I would expect that local authorities will, in fixing times, have regard to business practice in their particular areas. However, the primary consideration will be that the arranged times must facilitate the veterinary examination of all slaughtered animals.
Part III of the Bill contains similar provisions in relation to knackeries. Two sections in this part of the Bill, however, warrant particular mention. In view of the activities of a number of rogue operators on the meat supply scene, section 22 places an absolute prohibition on the sale for human consumption of any meat which has originated in a knackery. From both the public health and animal health points of view, section 34 is important. Knackeries owe their existance in large measure to the diseases and accidents which beset livestock. They operate on the periphery of the agricultural sector without adequate controls on their activities. As I mentioned earlier, they perform a very necessary service to local farmers and butchers in collecting and disposing of dead animals and animal wastes. For hunt and greyhound kennels involved in the business it is a very practical and economic undertaking. The sad fact is, however, that the owners of some knackeries are less than scrupulous in their activities and other just careless when it comes to animal health or environmental matters. Section 34 will bring these premises under strict control. It will enable me to make regulations controlling sales from these premises such as meat at greyhound tracks, supplies to cats and dogs homes, etc. Advertising for dead or casualty animals will be regulated and the maintenance of specified records of animals handled in such premises will be obligatory. Hopefully, in this way also we should be able to get a better picture of animal losses and the causes of these losses.
Section 35 requires each local authority to employ sufficient veterinary inspectors, at least one of which must be full-time, to enforce the Bill's veterinary control provisions. Apart from supervision of the domestic meat trade the local authority veterinary service has a range of other functions. These include supervision of dairies and the liquid milk trade, organisation of the sheep dipping programme and attending to sheep scab outbreaks and other scheduled animal diseases. As the Minister responsible for the local authority veterinary service I am only too well aware that, in the absence of a full-time presence, attention to all such duties cannot but be less than satisfactory. As I mentioned earlier, veterinary control and inspection of meat and milk for the home market in over two-thirds of the country is done solely on a part time basis,. The provisions of section 35 will redress this situation through the establishment of a corps of permanent official veterinarians throughout the country. Subsection (4) of this section will allow any two local authorities, subject to my consent, to pool together for the purpose of making the full time veterinary appointment required. This facility is being provided to cater for a small number of local authority areas where it makes more sense, either logistically or on financial grounds, to combine for the purpose of providing a full time veterinary service.
This Bill will provide a guarantee that the meat leaving our abattoirs is in all respects fit for human consumption. It is important therefore that consumers can readily recognise that the meat they are buying has undergone and passed veterinary inspection. The application of a health mark to such meat will provide this assurance. Equally important, having particular regard to meat wholesaling, will be the control and tracing facility inherent in such marking. The health marking arrangements are set out in sections 40 to 42.
Sections 44 to 46 deal with the payment of veterinary inspection fees which will be payable on each animal slaughtered at the following rates per head: cattle £3.25, pigs £0.75 and sheep £0.55. These fees will be payable by the licence holder to the local authority. The fees are intended to provide a self-financing basis for the local authority veterinary service to be provided and are derived from an analysis of anticipated costs conducted by my Department. Provision is also being made to allow for the fees to be altered by way of regulations which will require prior Dáil and Seanad approval. In the Seanad I had to oppose an amendment seeking to link any variations in the fees with changes to the Consumer Price Index as such linkage could have no regard to actual cost. Moreover, the proposed rates are the same as those currently applicable at the export plants where inspection fees are not linked to the Consumer Price Index. Separately linking the fees for domestic abattoirs alone to annual changes in the CPI could give rise to an anomalous situation between the home and export trades. It could also work to the disadvantage of the domestic trade in certain circumstances.
The opportunity is being taken in this Bill to update a number of relevant provisions in other legislation as set out in Part VI. The amendments being made concern mainly the bringing of fees and fines into line with those proposed for abattoirs under this Bill. In relation to fines, the existing penalties for failure to license an abattoir or for violation of slaughtering by-laws are no more than £5 under the Towns Improvement Clauses Act, 1847. This minimal penalty has given rise to situations whereby it was no impediment to the slaughterer to continue in breach of the rules. Section 56 increases the penalties considerably with maximum fines of £1,000 or six months imprisonment or both on summary conviction and £10,000 or three years imprisonment or both on indictment. The level of these penalties should present a real deterrent to any would-be offender. As standards of public health and hygiene are the primary considerations I make no excuses for raising the fines to these levels. Should it be found necessary to do so at some future stage, I am also making provision to enable these fines to be increased by way of regulations which again would be subject to prior Dáil and Seanad approval.
Section 60 will allow me to monitor the application of the Bill's provisions in each area through returns to be made by the local authorities. These returns will be important also from a statistical point of view in that they will give an accurate picture of slaughterings for the home trade. They will also help to identify, to a greater extent, diseases affecting stock and to indicate whether they are cyclical or localised disease outbreaks. Section 61 will enable me to make regulations prescribing the requirements in relation to the construction, lay-out, siting, water supply and equipment of abattoirs and knackeries. It also provides that these requirements may be modified in relation to existing premises. These standards will be reasonable and realistic and should be attainable by the majority of butchers. The emphasis will be on hygiene which is a basic requirement in any food premises.
Local authority by-laws relating to abattoirs and knackeries and the inspection of meat will no longer be necessary as regulations to be made under this Bill will lay down the standards to be observed. Section 62 therefore has the effect of cancelling any such by-laws once the corresponding provisions of the Bill come into operation. Similarly, any by-laws relating to meat transport will be superseded by amended food hygiene regulations in relation to the transport of food. As regulations to be made under this Bill will, in future, set out the standards to be met in abattoirs and knackeries, section 67 excludes the provisions of the food hygiene regulations from applying to such premises. The food hygiene regulations will, however, continue to apply to the transport and retail sides of the meat trade.
These are the salient features of the Bill which I commend to the House and in so doing I would like to thank my predecessor in office and all the bodies who have contributed to its preparation. The trade particularly are to be complimented for the way they encouraged and sometimes pressed the Department to get on with this legislation. Some of them are the second and third generation of people in the trade and have tremendous pride in their profession and in the standard and quality of their product. I would like to acknowledge the contribution they made in consultation with the Department of Agriculture and Food. I acknowledge the welcome and support for the general thrust of the Bill from people from all parties in the House.