I thank Senator O'Kennedy and Senator Daly for bringing this Bill before the House. This Bill rightly highlights the environmental resource represented by the Shannon system. We have also heard about the importance of the system in economic terms and its recreational and general amenity value, together with the developments and pressures which threaten the Shannon. It is understandable there should be concern to preserve the quality of the Shannon's environment so that it can continue to be enjoyed and exploited in a sustainable manner. In this way, the welfare and prosperity of communities within the Shannon catchment and all economic sectors dependent on high quality water can be safeguarded; the national economy will be in a position to continue to benefit substantially from tourism income generated by angling, boating and cruising activities while wildlife habitats and other water based ecosystems will be protected.
The Government is conscious of the important resource represented by the Shannon and all our rivers and lakes. Water quality and environmental considerations generally have become cross sectoral issues affecting decisions relating to infrastructure, agriculture, industrial development, tourism and trade. That is why the Government has put environmental protection high on its agenda and is committed to integrating it into all policy areas. Ireland's green image has been used to good effect by many sectors of the economy to gain comparative advantage over our competitors. This marketing strategy has conferred particular benefits on the agri-food sector and the tourism industry.
Maintaining a clean and attractive environment is essential to the continued expansion in tourism. This sector has been one of the success stories of the Irish economy over recent years. Foreign earnings have increased from £991 million in 1989 to an estimated £1,850 million in 1996, while the overall earnings from the sector are further boosted by the contribution from Irish citizens who take holidays at home. One in four foreign tourists participate in active pursuits, including angling, cruising and sailing. Angling alone is estimated to have attracted 133,000 foreign tourists in 1996.
The present operational programme for tourism also recognises that Ireland's clean physical environment is one of the major strengths of our tourism sector. It offers an ideal setting for the further development of a wide range of recreational and leisure pursuits and water resources are central in this regard. Local surveys have established the attractiveness of resources such as Lough Derg. A survey conducted in 1991 found that one third of tourists were first time visitors while two thirds were on return trips to the area, indicating that the lake was simultaneously generating new business and maintaining the loyalty of those who had visited previously.
The development of effective strategies to protect water quality is strongly influenced by the availability of reliable monitoring data to determine trends, identify polluted waters and the factors responsible. The Environmental Protection Agency put an extensive monitoring system for rivers in place, involving 3,000 sampling locations on 13,200 kilometers of river channel. The agency is currently finalising a monitoring programme which will significantly expand the present national database on lakes. The data from these programmes provides an essential input to the ongoing review and, as necessary, the development of pollution control policy within the Department of the Environment. The data also ensure a focused approach to the implementation of legislation and the adoption of new strategies by the principal statutory pollution control authorities, the local authorities and the Environmental Protection Agency itself in the case of those activities with a significant potential to pollute which come within the agency's integrated pollution control licensing system.
The Environmental Protection Agency's most recent report on water quality in Ireland covers the period 1991 to 1994. The report confirms that the great bulk of our rivers and lakes continues to be unpolluted and are suitable for the most sensitive uses, such as abstraction for drinking water supplies, bathing and supporting salmon and trout fisheries. Seventy one per cent of river channel length and 77 per cent of lakes surveyed come within the unpolluted category. Serious pollution has all but been eliminated from our rivers and now affects only 0.6 per cent of channel length. That reflects the success of efforts to tackle point sources of pollution due mainly to sewage and industrial effluent discharges and, in some instances, to the closure of industrial activities previously associated with pollution problems. I join with Senator O'Kennedy in commending the many voluntary organisations which watch our rivers and lakes so carefully because they are our intelligence on the ground for protecting this vital resource.
The report notes a slowing down in the rate of increase of moderate pollution which now affects 11.4 per cent of river channel. The situation is less satisfactory, however, in the case of slight pollution which occurs in 16.8 per cent of river channel surveyed, up from 12 per cent in the previous four year reporting period. Where earlier data are available for lakes surveyed in the most recent reporting period, the situation generally indicates no appreciable change in conditions. A continuous improvement has, however, been noted in lakes such as Derravaragh on the Shannon system, as well as Leane, Muckno and Kinale, as a result of successful municipal and agricultural waste management strategies.
The agency has identified eutrophication caused by the excessive enrichment of waters brought about by inputs of phosphorus as responsible for the incidence of moderate and slight pollution. This condition represents the major threat to the quality of our rivers and lakes. While sewage discharges and effluents from certain industries contribute to phosphorus loading, the major source of this nutrient reaching waters comes from agriculture, in particular, diffuse sources associated with run off from land which has received applications of chemical fertiliser or slurry or other organic farm wastes.
Conditions over a total of 2,228 kilometres of river and stream channel in the Shannon catchment were surveyed as part of the Environmental Protection Agency's 1991-4 national overview of water quality. Findings were broadly similar to the national situation just outlined as regards unpolluted, moderately or slightly polluted channel length. Agricultural activities were suspected to be the cause of nearly half of the incidence of slight pollution while industrial discharges accounted for the bulk of the small length of channel subject to serious pollution. During the most recent review period, 14 of the larger lakes in the catchment were surveyed. Eleven of these, including Loughs Derravaragh and Owel, were found to be unpolluted. Lough Key showed characteristics of slight pollution while Loughs Ree and Derg were classed as moderately polluted.
There has been comment about the ability of current lake monitoring practice to detect early, subtle changes in water quality conditions, particularly in shoreline waters, which could eventually have implications for conditions in the lake generally. The matter is currently being addressed by the Environmental Protection Agency with a view to developing an ecological early warning system which would alert water quality managers to incipient eutrophication problems. Five research projects costing a total of over £1 million are currently in progress under the environmental monitoring, research and development elements of the Operational Programme for Environmental Services, 1994-99, with the objective of developing new lake monitoring programmes and ecological assessment Protocols. A team of Irish, UK and US limnologists are involved in this major effort in conjunction with the Environmental Protection Agency. As part of the present research effort the position in Ireland regarding the occurrence of toxin producing forms of algae, such as those found in parts of Lough Derg in 1996, is being investigated. Special attention is being given to such matters as the environmental conditions which promote and sustain the development of toxin emitting algae, test methods to establish the presence of toxins, the standards for safe levels of toxins in waters used for the abstraction of drinking water supplies and for water contact activities, the toxin levels which may entail animal deaths or human health illness if affected waters are ingested and the evaluation of existing techniques for removing toxins in water treatment plants and proposals to upgrade these techniques where, and if, necessary.
Three locations within Lough Derg are being examined as part of this investigation which also involves the collection of samples of algae from more than 40 lakes throughout the country. The lakes concerned are representative of waterbodies in each water quality category with existing or potential uses such as water abstraction, water contact sports, angling and shoreline facilities. Pending the findings of this investigation, local authorities should continue to follow the general advice issued by the Department of the Environment in 1992 and 1993 in regard to algal bloom occurrences and the protection of drinking water sources.
A central element of Government policy in regard to water quality involves a major programme of investment in urban waste water collection and treatment facilities at a total estimated cost of £1.3 billion. This investment is being driven by the requirements of the urban waste water treatment directive and will be enhanced from EU Structural and Cohesion Funds and Exchequer sources.
Lough Derg and Lough Ree are major priorities in terms of environmental protection and the water quality problems in these lake catchments are being tackled on a number of fronts. Lough Derg and Lough Ree have been identified as sensitive areas for the purposes of the EU directive on urban waste water treatment and a programme of investment is under way to upgrade sewage treatment facilities within their catchments. The overall investment involved is estimated at £50 million for Lough Derg and £20 million for Lough Ree.
In the case of Lough Derg, major schemes involving secondary treatment facilities and/or phosphorus reduction facilities are being provided at Ballinasloe, Birr, Nenagh, Roscrea, Moate, Portumna and Tullamore at an estimated cost of £16.3 million. Construction of sewage collection schemes will commence in 1997 at Athlone and Monksland, County Roscommon, at a cost of £4.8 million. A sewage treatment works for Clara in County Offaly is also planned.
As regards Lough Ree, the Edgeworthstown sewerage scheme was completed in 1996 at a cost of almost £2 million. Waste water treatment plants and/or phosphorus reduction facilities are being provided at Roscommon, Ballyjamesduff, Boyle, Ballaghadereen, Ballymahon, Granard and Longford at an estimated cost of £12.7 million. In addition, schemes under construction or planned for the Cavan and Leitrim areas, at a total estimated cost of £5 million, will contribute to the protection of water quality in the Lough Ree catchment area.
Approval has also been obtained for Cohesion Fund assistance for comprehensive catchment monitoring and management programmes for Loughs Derg and Ree to assess the overall effectiveness of the investment in sewage treatment infrastructure. These programmes will also determine the effects of other points and diffuse sources of pollution, in particular, pollution from agricultural sources.
The main elements of each of these catchment monitoring and management programmes involve the setting up of an integrated monitoring system for the catchment covering point and non-point sources of pollution, the lake itself, the relevant section of the River Shannon and tributary rivers and streams in the catchment; the upgrading of laboratory capacity to cope with the more intensive monitoring system; studies and surveys of agricultural operations in each catchment; enhancement of existing hydrometric monitoring stations, including the development, as appropriate, of mathematical models; the development of a geographical information system management tool which will allow integrated analysis using data on topography, soil characteristics, land use, point source discharges, etc, both on a total catchment and subcatchment basis; the development of a water quality management system for the catchment incorporating the geographical information system and the development of appropriate indicators to communicate information on environmental status and performance.
Welcome as all these scientific mechanisms are, I know nothing replaces the personal observations of those who use the river continuously over a long period of time. As I said, the element of drawing in the voluntary organisations is quite important in that regard.
Under the monitoring and management programme approach careful attention will be paid to the particular characteristics and requirements of each catchment. The development of these systems will be overseen by separate project operational management groups, which will be representative of the wide range of statutory and sectoral interests having functions or otherwise interested in water quality protection and management. This approach offers a mechanism for arriving at consensus leading to the adoption of a comprehensive series of integrated actions necessary to further enhance the management and development of these water resources.
The Government is also pursing an extensive programme of measures to reduce nutrient losses to waters, particularly phosphorus, from sources other than sewage. These include, first, the promotion of the code of good agricultural practice to protect waters from pollution which was launched jointly by the Minister for the Environment and the Minister for Agriculture, Food and Forestry in July 1996.
Second, water pollution legislation is being amended to allow local authorities to require farmers to prepare nutrient management plans. The objective of these plans is to achieve the correct balance between water quality protection and nutrient requirements for crop production, taking account of recommended application rates and nutrients already available in the soil.
Third, last December the revised Teagasc recommended application rates for phosphorus fertilisers for grassland were launched. The reduced rates recommended should curtail phosphorus losses to waters with benefits for the condition of rivers and lakes. Fourth, the integrated pollution control licensing system under the Environmental Protection Agency Act, 1992, has been extended since 3 September 1996 to new intensive agricultural activities in the pig and poultry sectors.
The fifth measure is the rural environment protection scheme — REPS — the control of farmyard pollution scheme and the farm improvement programme operated by the Department of Agriculture, Food and Forestry, which are specifically geared to the adoption of environmentally friendly farm practices and provide grant assistance for investment to support such practices. There has been a good response by farmers to these schemes. Over 30,000 farmers received grants for pollution control works under the control of farmyard and farm improvement schemes, while a significant proportion of the £195 million in the 1994-9 operational programme for on-farm investment will go towards similar works. About 40,000 farmers are expected to participate in REPS, which was launched in June 1994, and will benefit from projected grant expenditure totalling £230 million.
Sixth, under Partnership 2000 and the Finance Bill, 1997, provision will be made by way of improved capital allowances for a targeted and monitored measure to support investment by farmers in necessary pollution control projects. Seventh, local authorities and the Environmental Protection Agency are imposing controls, as appropriate, in respect of phosphorus discharges from industrial activities through the exercise of their statutory licensing control functions.
The eighth measure is the provision of pump out facilities at ten locations on the Shannon system. These are Carrick-on-Shannon, Ballyleague, Lough Key, Dromineer, Mountshannon, Shannonbridge, Ballina, Belturbet, Dromod and Portumna to cater for sewage from cruisers. A further such facility at Athlone will be completed in 1997.
The Minister for the Environment will shortly launch a strategy to combat the eutrophication of rivers and lakes aimed at providing better co-ordination of the foregoing series of actions and to intensify pollution prevention efforts. The strategy will encourage an integrated approach to management and protection of waters based on catchments and will seek to involve all economic sectors and stakeholders together with the statutory pollution control authorities.
This Bill seeks to establish a Shannon River Council covering the entire Shannon catchment, from outer estuary limits to source. As defined, the catchment would include every tributary river and stream, every lake on the system and canals on, or connected with, the Shannon. This would involve an extensive geographical area and would, for example, extend the remit of the council as far as the east coast by virtue of the presence of the Royal and Grand Canals; going northwards, the area of influence would reach the Border because of the presence of the Shannon-Erne waterway. I am happy to say it would also reach my constituency of Dublin West because we enjoy the value of both the Royal and Grand Canals there.
The council's primary functions would be to propose policies and priorities for protecting and enhancing the environment, water quality and natural habitats for bird and fish life within the catchment area. In fulfilling this role the council would be required to undertake a range of measures, including the co-ordination of the environment, water quality, habitats and water management activities of public authorities; the making of recommendations to regulate and control water pollution; the provision of an inspection and supervisory service and the preparation of a water management and pollution control plan for the entire Shannon catchment.
The functions of the council would impinge on a great number of public authorities including Departments, the Office of Public Works, local authorities, regional authorities, fisheries boards, harbour authorities, health boards and boards or other bodies established by, or under, statute.
As we have already heard from Senator O'Kennedy, a case can be made for the type of body he is seeking to put in place. It would be necessary, however, to give more detailed consideration to the practical ramifications of the role envisaged for the Shannon River Council and how this would interact with the statutory functions of existing bodies with responsibility for pollution control, habitat protection and environmental management generally. In addition, greater account should be taken of existing legislation and practice which serve to ensure a high degree of co-ordination in relation to these matters as they concern the Shannon and our environment generally.
There is already a unified statutory authority in relation to waterways navigation and habitats in the form of the Minister for Arts, Culture and the Gaeltacht. That Minister wishes to see the management of inland waterways integrated rather than fragmented and is at present pursuing the drafting of legislation for the establishment of a central waterways authority. The authority's functions would cover the Shannon navigation and its associated canals, as well as the Barrow navigation, the Erne and Lough Oughter navigation, the Tralee Ship Canal, the Eglington Canal and the Boyne navigation.
Key responsibilities of the inland waterways authority would concern the management, development, protection and control of designated waterways. The promotion of recreational and commercial use of the waterways as well as the development of tourism related services and activities and the protection of the industrial heritage and ecology of the waterways would also be attended to by the authority.
While the Bill's concern to promote the co-ordination of actions is understandable and in line with existing policy and practice in many respects, the assumption that this co-ordination can only be brought about by a single body with a remit covering the entire Shannon catchment warrants further examination. Senator O'Kennedy expressed particular concern about Lough Derg in this regard. There are good hydrological and ecological reasons for dividing the Shannon system into at least three catchments for the purposes of water quality management and protection. In effect, the major lakes on the river act as filters and retainers of pollution. The fresh and estuarine waters of the overall system display different characteristics which could further justify separate management strategies tailored to the particular needs of the waters concerned.
The flexibility inherent in the Water Pollution Act, 1977, regarding the waters to be included in a quality management plan can be availed of, as appropriate, to fully cater for the diversity in conditions encountered in the Shannon catchment. The local authorities concerned have already made use of these provisions and have jointly adopted statutory water quality management plans for the upper Shannon, the lower Shannon and the Shannon Estuary. Prior to their adoption, the draft plans underwent a period of public consultation and submissions received were taken into account in their finalisation. The plans contain objectives for the prevention and abatement of pollution. Regard must be had to these objectives by local authorities in the performance of their functions under the Water Pollution Acts of 1977 and 1990 and by the Environmental Protection Agency in the operation of the integrated pollution control licensing system for activities with a significant potential to affect the environment.
The present arrangements regarding water quality management will be further improved under the major EU Cohesion Funds monitoring and management systems for Lough Derg and Lough Ree to which I have referred. Careful attention needs to be paid to the relationship between the proposed co-ordinating role of the Shannon River Council and the co-ordinating functions assigned to regional authorities in 1994. The council's involvement in the areas of inspection and supervision could entail significant duplication of the structures already put in place by local authorities, the Environmental Protection Agency and fisheries boards as regards environmental issues and by the Minister for Arts, Culture and the Gaeltacht in the case of wildlife and habitat protection. This aspect merits more detailed examination.
The situation regarding the performance of environmental functions by local authorities, which also come within the scope of the Bill, is already well catered for under the Environmental Protection Agency Act, 1992. The agency is in a position to make recommendations and provide advice, general support and assistance to local authorities. It can initiate steps, where appropriate, to ensure satisfactory performance of environmental functions. In addition, the agency exercises a supervisory role over the monitoring activities of local authorities. Its role in relation to advice and recommendations for the purposes of environmental protection also applies to Ministers. This function may be exercised at the agency's own volition or in response to requests made by Ministers.
I am happy to say that the Government has funded the significant and ongoing expansion of the Environmental Protection Agency to enable it to move in a phased manner towards the full exercise of its statutory powers with regard to the licensing, regulation and control of activities for the purposes of environmental protection. The agency's functions also provide for the monitoring of the quality of the environment, supervision of local authority performance of their statutory environmental protection functions and the provision of advice, support and assistance to local authorities and other public authorities. The Government's commitment to the agency is reflected in the increase in its annual Exchequer grant from under £2 million in 1993 to £5.84 million this year. Staff numbers in the agency have more than doubled during this period and it currently employs 159 people.
While the Government is not opposed to the principal objectives of the Bill, it will be clear that there are important issues of concern regarding the proposed Shannon River Council which warrant further attention. Apart from the Private Members' Bill considerations, there may be scope to take on board certain general aspirations of the Bill as regards waterways management in the legislative proposals currently being prepared by the Minister for Arts, Culture and the Gaeltacht for the establishment of an inland waterways authority. The Minister for the Environment will liaise with the Minister for the purpose of ensuring that possibilities in this regard are explored.
There is a strong appreciation in rural communities of the importance of our rivers and lakes and there is now an acceptance of the kind of controls which have been introduced. A few years ago some farmers found the introduction of controls an interference whereas most farmers now welcome the REPS scheme and other schemes that are being introduced.
I have had the privilege to holiday on the River Shannon on a couple of occasions. The increasing numbers of tourists to the river, especially from abroad, indicates that it is an enormous source of future revenue. It is also an important amenity for Irish people in addition to providing a livelihood for many who work along the different areas of the river.
I thank the Senators for producing this Bill and I especially thank Senator O'Kennedy for his broad philosophical approach when introducing it.