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Dáil Éireann debate -
Thursday, 20 Feb 2025

Vol. 1063 No. 3

Saincheisteanna Tráthúla - Topical Issue Debate

Foreign Direct Investment

I want to speak about Ireland's position as a leading destination for foreign direct investment and, more importantly, our competitiveness. Over the past decades Ireland has built a strong reputation as an attractive location for multinational companies. However, in a rapidly changing global economy staying competitive requires continuous work, not only in attracting new investment but also in maintaining companies that are already here.

Ireland's success in attracting foreign direct investment is no accident. Our economy offers a unique combination of factors to make us an appealing choice for multinational companies. IDA Ireland is a big part of this success and is a leader in the world at what it does. Attracting new investment is important but keeping the companies already here is just as critical.

Recently, in my constituency of Offaly we lost jobs. Approximately 300 jobs were lost in Cardinal Health, a company that was in Tullamore for more than 40 years. Many of the employees had been there for 20 or 30 years or more. The company contributed greatly to the economy of Offaly over its lifetime. More recently, 40 more jobs went at Nelipak Healthcare in Clara, another company that provided great employment in our county for many years. My information is that in both cases the jobs went elsewhere. In the case of Cardinal Health in Tullamore, which was a very profitable arm of the company I might add, one of the three lines it manufactured was discontinued, the second went to Costa Rica and the other went to Mexico. It looks as though this decision was made by an accountant in United States because the cost of business doing here is too high. In the case of Nelipak Healthcare the jobs went outside of Ireland also.

Every one of these jobs represents a family and a livelihood. I wish those people the best of luck in their endeavours to gain new employment. We need to look after these people by upskilling or reskilling them. When I speak to similar companies they tell me about the cost of employing somebody in Ireland. They tell me about the red tape involved in doing business here, which is time consuming and costly. Rates are higher, the price of utilities is higher and housing for employees is a big problem. We have so much going for us with our great educated workforce, a stable Government, a stable business environment and a keen corporation tax of 15%, while also being an English-speaking country with access to European markets. All of this is good but we need to be careful. We do not need to price ourselves out of the market. We seem to be slipping down the competitiveness table when it comes to attracting new companies here. We must not let this happen. We must reverse this slide and start climbing up the table again.

I cannot mention foreign direct investment companies alone. We need to look at our small and medium sized indigenous businesses also, and make it easier for them to do business here. We need to take a serious look at how we will bring our town centres back to life and attract retail stores back to our high streets. This will take a lot of thinking outside the box and putting in place the right supports to help our town centres thrive and not just survive. What are we doing to maintain our competitiveness? How are we working to improve it? What supports are available for the workers of these two companies, considering some of them are in the autumn of their working careers?

I will take this matter on behalf of the Minister for Enterprise, Trade and Employment, Deputy Peter Burke. I thank Deputy McCormack for raising this important matter. The Minister, Deputy Burke, and I share his deep concern for those staff and their families in County Offaly who are impacted by the decisions of the companies.

In January 2025 , Nelipak Healthcare of Clara, County Offaly, announced that it had undertaken an analysis of sales forecasts and operational needs in the UK and Ireland, and a decision was made to recommend up to 40 redundancies. This reorganisation is a post-Covid-19 correction following a return to pre-Covid volumes and a need to reduce budgets. Staff were notified by the company of its decision, and a formal collective redundancy process is under way, with the first redundancies expected to take place at the end of February 2025. Nelipak Healthcare operates a second Irish facility in my home county of Galway, which is not affected by this decision.

This is very disappointing news for Clara, where this facility has provided valuable employment for 30 years. Our sympathies are with those effected by this announcement in what is a very difficult time for them all. In response, the Government is on hand to support those workers. Our agencies will work to support the employees affected in the period ahead as they pursue alternative employment. This will include sharing the skills profiles of impacted employees with companies that may be hiring, be that with multinationals in IDA client bases or indigenous companies through Enterprise Ireland. In parallel, the IDA continues to engage with Nelipak Healthcare senior management to assist the company, which has indicated that it is committed to supporting affected employees. The IDA will also provide introductions to companies that are recruiting locally and support services for staff affected.

As a country we are close to full employment. The economy is well diversified, with hundreds of thousands of people employed in indigenous SMEs, pharmaceuticals, agrifood, medtech and financial services. As the Deputy said, however, we cannot be complacent. We have to watch our costs. Ensuring a strong continued pipeline of foreign direct investment is a core objective of this Government and to that end, Ireland’s proposition for foreign direct investment remains competitive. This is demonstrated by the IDA’s results for 2024, which show that Ireland secured 234 investment wins, delivering a record level of research and development investment as IDA clients committed €1.9 billion across 64 investments. These investments are projected to create 13,500 jobs over coming years. The results also show strong balanced regional development throughout 2024 with 59% of the FDI investments in locations outside of Dublin. As a person who comes from rural Ireland and with the Deputy coming from the midlands, it is important that we have regional investment and regional balance in our development.

I thank the Minister of State. We are all very happy with the endeavours of the IDA. As I said in my question, the IDA is a world leader in what it does in attracting foreign direct investment into Ireland. In fact, it is so good that it is copied by many other countries around the place. We talk about the 50% of companies that the IDA will endeavour to locate outside of the Dublin region. Unfortunately, this was the case in the previous plan and the plan previous to that and again, unfortunately, we have not had 50% of the companies located outside the Dublin area. I would like to impose on the Minister of State to talk to the IDA and ensure that the 50% is upheld and that we get balanced growth right across the country. We already know that the infrastructure here in Dublin is creaking and needs updating whereas down the country we have infrastructure that is well able to take care of the foreign direct investment companies that need to locate there.

It is 59%, not 50%-----

It is 59%, sorry.

-----which is closer to two thirds than half. I do agree with the Deputy, though. We need to have more of it, and we need to see it on the ground.

Ireland continues to be seen as a location of choice for new investors as well as long-established companies that choose to further invest in substantial expansions of their operations here. That is borne out in the IDA report from last year. In 2024, direct employment in IDA client companies stood at more than 300,000 people nationally for the third year in a row despite some downsizing in the tech sector.

Ireland still offers a competitive, consistent and transparent corporate tax regime, good access and connectivity and an excellent return on investment as well as being an attractive environment where people can live and work. The Government is fully aware of the competitiveness challenge the country faces as it competes for foreign direct investment. As we are taking the necessary steps to position Ireland for the future, we will continue to place cost, planning, energy and research and development at the centre of our forward looking policymaking, all reflected in policy commitments in the new programme for Government. Just yesterday, the Minister, Deputy Peter Burke, launched the IDA's new strategy for the coming five-year period. The timing is opportune as we face into uncertain times.

Central to the IDA's new strategy is an emphasis on partnering with its existing 1,800 clients, employing more than 3,000 people across this country, to identify opportunities and safeguard and strengthen long-term investment in Ireland. The strategy also affirms the IDA's unrelenting focus on the regions. Building on the excellent performance over the previous strategy, the IDA is targeting 55% of the investments to regional locations in the next five years. As a regional representative like Deputy McCormack, we will work to make sure that is not just speak but that it is actually implemented. We will keep on that. I thank the Deputy.

Air Safety

I wish the Minister of State a good afternoon. I am not sure how familiar he is with drones, but in Dublin 15 in my constituency they are something we are very familiar with at the moment. For over a year now, a commercial company called Manna Drone Delivery has been using airborne drones to deliver takeaway food to homes around Blanchardstown and Castleknock. The drone flies over and the food comes down in a brown paper bag on a string. It is literally manna from heaven. Any time people are in Dublin 15, they hear the buzz and see the drone going over and know that a punter in Clonsilla is getting his or her burrito. This is a brand new area and as with any new technology, there are benefits. However, as this delivery approach is about to spread to new areas across Dublin in the next number of weeks, there is an urgent need for airborne delivery drones to be regulated because right now, the rules about their use are really lax.

Residents across Dublin West have raised a number of issues with me. The first significant issue is noise. Drones make a very distinct sound as they travel through the air and as they rise and descend. While this noise could be tolerated maybe on a once-off basis, there are now flight paths over certain estates in Dublin 15 where in an afternoon there could be 30 or 40 drones flying over and back. I am not exaggerating; I have been there and seen that over an afternoon. That is the scale of what we are talking about. That can have a real impact on someone's enjoyment, particularly of their garden.

Safety is another issue. Right now, there is just one drone company using these airborne drones. What happens if a second or third comes in? If they are not regulated or not co-ordinated, a crash is a real possibility. These are hefty machines. If one or two came out of the sky, there could be real dangers.

Privacy is another matter. Each of these drones has a camera on it to oversee the drop of the paper bag. It is not meant to be switched on for the journey, but just when the bag is being dropped. This is a camera operated by a live pilot back at the base. Who knows if it is on or off? We do not know. These things are flying over our homes all the time with a camera, and we have no idea if that camera is on or off, so there is a real privacy concern there.

There is a planning concern as well. There are at least two drone bases where they come to and from in my constituency right now. There is no clarity in terms of whether planning permission is needed under the planning Acts.

In the Green Party's general election manifesto, we said that this is a new technology and there are real benefits, but that we need to regulate it. We called for that in our general election manifesto because right now it is wild west territory in terms of how these are used. When I put a parliamentary question to the Minister of State's colleague, the Minister of Transport, recently, he said that the Government is working on "a policy framework to guide high-level strategic planning and development of the drone sector in Ireland" and that the "framework will be published in the coming months." Can the Minister of State give me, my constituents and, indeed, people all over Dublin a clear timeline within which this policy framework is going to be published? Can he commit that it will deal with four specific issues: noise pollution, particularly for those estates that are under the flight paths of these drones; the planning status of the drone bases where these drones fly to and from; safety and the risk of drone collisions, particularly if other companies start to use similar delivery approaches; and privacy concerns around who gets to see the data from those cameras? Will the policy framework that he and probably his Department is bringing forward deal with those four crucial matters?

I thank the Deputy for raising this question. It is interesting from a rural TD perspective to find out what is actually happening in the Deputy's constituency with drones and the delivery of fast food. As he said, it is new.

From an aviation safety perspective, the regulation of both the recreational and commercial use of drones, or unmanned aircraft systems are they are technically called, is provided for under European Union regulations that are directly applicable in Ireland. Two drone-specific EU regulations ensure drone operations across Europe are safe and secure. The two regulations, Commission Delegated Regulation (EU) 2019/945 and the Commission Implementing Regulation (EU) 2019/947, set out common rules for the regulation of drones and drone operators, including training, licensing and registration. Regulation 2019/947 sets operational rules that apply to both professional drone operators and those flying drones for leisure. Regulation 2019/945 sets the common EU-wide technical requirements for drones, the features and capabilities drones must have to be flown safely and, at the same time, help foster investment and innovation in this sector through a harmonised framework across the European Union. The aim of the EU drone regulations is to achieve the same level of safety for drone operations as in manned aviation. The Irish Aviation Authority, the civil aviation regulator, oversees the implementation of the EU drone regulations and standards. The drone regulations are operation-centric and focus on the risk of drone operations, so regulation is lighter on low-risk operations and more demanding on higher risk operations.

Under the EU regulatory regime, drone operations are classified into three broad categories: open, specific and certified, with different regulatory considerations applied across each category. As one would imagine, commercial drone delivery operations are heavily regulated. Drone delivery operations like those in Dublin 15 fall into the medium-risk "specific" category, which requires specific authorisation by the IAA. This type of authorisation is recognised in all EU member states. To obtain an operational authorisation, an operator must provide a comprehensive safety portfolio, which includes assessing and addressing both ground and air risks with appropriate mitigations. These might include, for example, co-ordination with air traffic control, fitting the drone with a parachute and flight termination system, and dynamically routing away from more densely populated locations.

At a national level, SI 24 of 2023 Irish Aviation Authority (Unmanned Aircraft Systems (Drones)) Order 2023, came into force on 2 February 2023, replacing an earlier drones order. It restates the investigative and enforcement powers of the IAA and provides for arrangements between An Garda Síochána and the IAA in the enforcement of EU drone regulations. It also includes a section on privacy rights which draws the attention to drone operators to prepare a data protection impact assessment, where required, in accordance with the EU general data protection regulation. In addition to complying with EU drone regulations, drone operators must also comply with national laws, including environmental, planning and, as I mentioned, privacy laws. On top of the two EU drone regulations I outlined earlier, there is also a European regulatory framework, comprising Regulations (EU) 2021/664, 2021/665 and 2021/666, that allows for the safe development of the drone services market, including drone delivery, and the integration of drones into our airspace.

I thank the Minister of State. He is right that this is new. It is a service that could have real potential. I am thinking of a medicine delivery to a constituent in the Minister of State's constituency from a pharmacy that might be a significant distance away. There is real potential here. I am a bit concerned, however, about the Minister of State's response. One of the lines in it is that commercial drone delivery operations are heavily regulated. They are not, or the regulations are not touching the concerns people have, which I have outlined. Planning is not properly regulated. There is no clarity as to whether a drone base needs planning permission. It is a live issue in my local authority at the moment. This idea of a data impact survey in terms of the assessment, again, is a very technical piece but does not deal with the question whether we know if that drone camera is on or off as these regular flights are taking place.

In terms of the statement that drones are dynamically routing away from more densely populated locations, these drone bases are in the centre of Dublin 15, an incredibly densely populated part of our city. They only work in this area. There is no diverting away from the densely populated area. They work there. This company, Manna, is about to start undertaking deliveries in two or three other parts of Dublin city as well. I am not doing this as a criticism of the company; I am just raising these issues. The Minister of State is going to have TDs from other areas raising these issues with the Department. I am concerned that the response at this stage is very high level. It is about the EU regulation but that is not dealing with the real issues for people who experience these drones operating over their homes when they are not ordering the burrito. It is not dealing with their particular issues. I advise the Minister of State, as his Department brings forward this policy framework, that it cannot be high level. It will have to deal with issues like privacy, safety, noise pollution and the planning status of drone bases. I thank the Minister of State for his time.

The Deputy mentioned a question about planning and whether it is required. It is a matter for the planning authority. If somebody has a commercial enterprise in a location, they have to have planning permission for it. That is coming from the experience of working on the council for a number of years. Aviation is a highly regulated industry and there is a comprehensive legislative framework in place at both EU and national level to regulate safe drone operations.

The rapid pace of drone innovation and commercialisation has created challenges. I agree with that. The Government is aware that the impact of a growing drone sector with an increasing volume of drone operations needs to be further considered. The programme for Government includes a commitment to finalising and implementing a policy framework to guide high-level strategic planning and development of the drone sector in Ireland through supporting growth and innovation while ensuring safe and secure operations and managing environmental and other concerns. The policy framework recognises the importance of collaboration and engagement with a wide range of stakeholders. The foundation of the policy framework is cross-government engagement and it is informed by public and industry consultation. A public consultation was held in 2024. The consultation sought feedback from the public on several key areas, including how to respond to public concerns about the increased use of drones, as the Deputy has mentioned, how to position Ireland as a potential front-runner in the emerging sector, and how to future-proof responsible development of the drone industry.

The policy framework seeks to strike a balance between realising the benefits of the development and uptake of new technologies and the risks they can cause. It is envisaged this policy document will be published in the coming months. In the meantime, the IAA, as the civil aviation safety regulator, will continue to oversee drone operations throughout the State to ensure the operations are safe and comply with the EU regulations. I accept that this is a growing industry. We need to make sure we get in there early to ensure it is managed properly and that people's privacy is not invaded.

Tourism Policy

I thank the Minister of State and wish him well in his new brief. The context of this discussion about an accommodation levy in Dublin is really straightforward. It relates to the funding of the recommendations of the Dublin city task force. The task force identified that the capital costs to fulfil those recommendations would be between €750 million and €1 billion and that the ongoing operational expenditure would be €150 million. It is stated in the report that there are a number of ways in which the operational revenue could be generated. One is that Government buildings would pay commercial rates. In replies to questions I have asked in this Chamber, the Taoiseach has made pretty clear he is not in favour of that proposal; that one is gone. Another suggestion is in respect of congestion charges, but I do not believe they would generate the revenue, nor is it a policy designed for revenue raising. The third recommendation was the introduction of an accommodation levy.

I want to set the context of why we are even discussing this. On the Government position in respect of this levy, I have tried through parliamentary questions to establish where this is being considered. In the Minister of State's own Department, the line Minister responded to me that it could not be considered independently of our general taxation system, which is primarily the responsibility of the Minister for Finance. I agree with this.

I then asked a parliamentary question of the Minister for Finance. I received his reply today which was very helpful. His response stated:

I would, however, add that a tourism accommodation levy is not a matter I believe appropriate to my Department. It is an issue very much separate and distinct from our general taxation system...

In other Member States where city taxes and accommodation levies are applied, the levy is collected at local level, by Local Authorities, who oversee the collection and redistribution of funds for projects locally. If such a levy were to be introduced here, the same system should apply...

In conclusion, this is an important issue which is being given due consideration at the moment and further engagement is required before any decision is made.

What is helpful about this discussion is that we do not have to look far to find how a model could work. Edinburgh has introduced this following the enactment of legislation in Westminster in 2024 and Edinburgh has now imposed an accommodation levy. That is a city that all of us associate with a high dependency on tourism. It hopes to generate £50 million to fund local services and the rejuvenation of its city, which would represent one of the largest boosts to local government spend in Edinburgh. A 5% levy is imposed an accommodation providers and 2% of that levy goes back to the accommodation provider to pay for the administrative burden of having to impose the levy.

Ultimately, we are talking about a couple of euro on a sector which in Dublin city, at least, is thriving. Investment in hotels is thriving. The hotel bedroom occupancy rates are at their highest level, demonstrating the need for more hotels. At least on the recent Mastercard data we have, expenditure in Dublin has increased for the last 17 consecutive quarters so it could be weathered. Ultimately, this is about a choice. Should local property taxpayers pay? Should small ratepayers pay or should it be a combination of providers that can contribute to the rejuvenation of our city?

I thank Deputy Geoghegan for raising a very important issue we need to get to grips with. I am responding on behalf of the Minister for Tourism, Culture, Arts, Gaeltacht, Sport and Media pending the formal transfer of functions, following Government formation.

There are currently no plans to introduce a tourist tax or visitor accommodation levy but the Minister’s understanding and his view is that the introduction of such a levy would need careful consideration given the importance of inbound tourism to Ireland’s economy, local communities and the paid visitor accommodation sector.

A visitor accommodation levy would have to take account of issues, such as who would pay. For example, would its application be limited to international visitors or would it be extended to all visitors, including domestic visitors? The geographic scope of such a measure would also be an issue for consideration. Other issues arising include: scoping, identification and collection of relevant verifiable visitor data; collection of data regarding paid accommodation providers and their bed stock; the levy collection mechanism; the levy collector; and the potential administrative impact on paid accommodation providers. How the revenue raised from such a levy could be applied would also require close examination.

It is noteworthy that the introduction of a visitor accommodation levy was proposed in Foundations for the Future, the report of the Commission on Taxation and Welfare published in September 2022 and more recently in Capital City, the report of the Dublin city task force published in October 2024, specifically for Dublin city.

The Foundations for the Future Report in recommending the introduction of an accommodation tax stated:

Accommodation or city taxes (also referred to as tourist or transient visitor taxes) are largely focused on tourism or accommodation providers, and are typically levied on short-term stays in paid accommodation.

Across Europe, including in for instance Paris, Berlin and Vienna, such taxes are applied to hotel accommodation in addition to VAT.

Such taxes have been introduced across the globe in response to tourism consumption and the pressures it places on the provision of public goods and services. Consumers are generally responsible for paying such taxes, while the accommodation facility is responsible for collecting them.

Tourists and other visitors get a short-term benefit from public goods and services, such as water and sewerage systems, utilities, waste facilities, parks, security and public safety services, without having contributed to their funding. The rationale behind an accommodation tax is to ensure that those guests contribute to the ongoing costs of providing these goods and services. Depending on their design, accommodation taxes may also make the tourism industry more sustainable by providing a revenue stream that can improve environmental and economic sustainability as well as improving infrastructure.

An accommodation tax can be regarded as an adaptation of the general ‘polluter-pays principle’ to a ‘user-pays principle’ that calls upon the user of resources (i.e. the tourist) to bear the cost in a more sustainable way.

The Capital City report included the introduction of a tourist tax as one of a range of possible funding mechanisms “that could be leveraged to support implementation of this plan ringfenced for the city.” It also acknowledged that “Any decision on fundraising is a matter for government and is outside the remit of the Taskforce.” The recommendations of the latter report in full are now being considered by an interdepartmental group led by the Department of the Taoiseach and including officials from the Department.

I thank the Minister of State for his reply. The introduction of any new tax or levy will never be a popular initiative. I fully acknowledge that if the Government took a decision that the way in which the recommendations of the Dublin city task force were to be funded is through the introduction of an accommodation levy, the Department and the line Minister would have a huge role in engaging with the hotel sector and the tourism sector on such a proposal. However, I think we could get buy-in from that sector. I know from my previous role as Lord Mayor of Dublin that they are just as concerned about the issue of safety in Dublin city as everyone else is. They are just as concerned about dereliction and decay as everyone else is. Notwithstanding the challenges that Dublin city faces, at the moment about 20,000 bed spaces have planning permission granted and are in the pipeline in Dublin city.

Respectfully, it is my view that if the Government, as it will be, is faced with the funding choices for these recommendations, ultimately the choice will be whether local property taxpayers should pay for the rejuvenation of Dublin city. Will smaller business ratepayers pay for the funding of the rejuvenation of Dublin city or will we find an alternative means? I do not think the approach that has been adopted in recent years where so much of the funding for our local authority in Dublin city and throughout the country is reliant upon big government block grants will work. The task force makes clear that we need a strong local authority, a strong Dublin city, which can raise its own funding and can fund the rejuvenation that we absolutely need to ensure we have a safe city and a city we can all be proud of.

Tourism is the largest indigenous industry in Ireland and a major driver of regional growth and employment. Visitor accommodation capacity is a key infrastructure element underpinning the tourism offering, located, as it is, in every region and county. The visitor accommodation business provides significant employment, supporting livelihoods, families and sustainable local economies. The programme for Government, Securing Ireland's Future, comprehensively sets out the Government's ambitious plan to strengthen and enhance the tourism sector, ensuring a balanced regional spread of tourism throughout the country, working to develop long-term, sustainable and well-paid careers in tourism, working with local authorities and national bodies to improve public transport options and its infrastructure to key tourism locations making travel more convenient for visitors, conducting a review of the national aviation policy to maximise the use of our airports and through many other focuses.

The Department is pursuing high-quality and high-value outcomes for tourism through the deployment of sound and sustainable policies. Within that policy framework, the Government will make decisions on any proposals emerging from the group examining the Capital City report.

The issue the Deputy has raised in the Chamber this afternoon is one of a number being considered by that working group. The Minister’s expectation is that this group will put forward a suite of topics shortly for the responsible Departments to tease out further and work up into substantive proposals, as appropriate. The Minister has advised that he looks forward to considering any such proposals that reach his desk or to making observations on any other related proposals that are brought to Government by his ministerial colleagues.

Cuireadh an Dáil ar athló ar 4.50 p.m. go dtí 2 pm., Dé Máirt, an 25 Feabhra 2025.
The Dáil adjourned at 4.50 p.m. until 2 p.m. on Tuesday, 25 February 2025.
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