Dáil Éireann díospóireacht -
Tuesday, 14 Nov 1989

Vol. 393 No. 1

Bovine Diseases (Levies) Regulations, 1989: Motion.

Minister of State at the Department of Agriculture and Food (Mr. Walsh)

I move:

That Dáil Éireann approves the following Regulations in draft:

Bovine Diseases (Levies) Regulations, 1989, copies of which were laid in draft before the Dáil on the 8th day of November 1989.

This motion, which was to give effect to an increase in bovine diseases levies from 1 August 1989, was, in fact, put before this House and agreed on 20 July 1989. However, as the Seanad had risen at that time, it was not possible to have the earlier motion approved in that House. A motion now giving effect to the levy increases from 1 December 1989 was approved by the Seanad on 9 November 1989.

The proposed regulations are being made under the Bovine Diseases (Levies) Act, 1979, and are designed to secure an increased financial contribution from the farming sector towards the cost of the bovine TB and brucellosis eradication schemes. The proposal to increase the rates of levy has the full backing of the farming organisations. The rates of reactor grant under the disease eradication schemes were originally revised as from 1 February 1989. The revised rates at that time were fixed so that ERAD could continue to work within its fixed budget. However, an analysis carried out some months afterwards showed clearly that the rates then fixed had, for some categories of animals, fallen significantly out of line with their market value. It became clear that the inadequacy of the level of reactor compensation would be a serious impediment to progress on disease eradication. The ERAD board, therefore, recommended a fresh adjustment of the rates of grant and also proposed that any increases should be borne jointly by the Exchequer and the farming community. The farm organisations accepted that approach and expressed their willingness to support an increase in the bovine diseases levies and thereby fund their share of the increased grants. The new rates of levy from 1 December 1989 will be 1.2 pence per gallon of milk processed and £6.90 per bovine animal slaughtered or exported live. The expected yield from the levies this year is £21.4 million.

The increased levy receipts will be used to finance the increased reactor and depopulation grants together with the new income supplement introduced as from 1 February 1989. The increased reactor grants focus on the small to medium sized animals where it is recognised that the greatest need for increased compensation arises. The special income supplement applies in cases where total depopulation of the herd is not appropriate or warranted but where a disease breakdown still results in the removal of more than 10 per cent of animals from the herd. Payment of the supplement is confined to herds of 100 animals or less and I think it greatly alleviates hardship suffered by individual farmers in many cases. Expenditure on grants paid to farmers is expected to come to about £16.0 million during this year.

I am pleased to say that the establishment of ERAD has proved to be a successful initiative, bringing together all interested parties to provide a clear, coherent and co-operative approach to the disease eradication schemes. To achieve the target set for ERAD of halving the existing bovine TB levels over four years, a more intensive and sharply focused programme is being implemented. Following a detailed appraisal by the board of the operations and resources of the bovine TB and brucellosis schemes a comprehensive eradication strategy has been developed. The various support elements of the schemes have been revised and reinforced and some new elements have been added.

Probably one of the most noteworthy aspects of the ERAD regime is the inauguration of a significantly expanded research effort concentrating on the following major areas of interest: continuing analysis of the extensive data base on bovine TB being built up by ERAD with a view to evaluating the impact of alternative testing strategies and leading to the provision of a more effective epidemiological back-up; the development of blood-based diagnostic tests to supplement the existing field tests; the spread of TB from badgers to cattle. In this regard, ERAD commissioned an ESRI review of existing information on the present state of knowledge on the relationships between badgers and bovine TB in Ireland. In addition, a major project has been initiated in east Offaly to quantify the contribution of badgers to bovine TB. Other related projects currently under way include studies of the colony and population distribution of badgers, as well as trials to assess the effectiveness of a vaccine in controlling the spread of TB from badgers to cattle. Also, a TB investigation unit to undertake continuous and comprehensive analysis of bovine TB in Ireland has been established. Routine disease data is being analysed in a comprehensive fashion to provide a full understanding of the results and to assist in setting targets and adjusting the programme accordingly; and a research/analysis group, comprising representatives of the veterinary college, Teagasc, veterinary research laboratories, private veterinary practitioners and ERAD staff is continuing to advise on the further development of the research programme.

The increases in the levels of compensation announced by the board of ERAD in May 1989 and backdated to 1 February are very generous and represent concrete evidence of the commitment of the farming community and the Government to the success of the initiative in setting up ERAD. There must now be full concentration on ensuring that the targets set for the reduction of bovine TB levels are achieved.

Mr. Connaughton

This debate on the increase sought in the disease levy serves as a useful opportunity to reflect on our dismal record in regard to efforts to rid the national herd of TB and brucellosis. Unfortunately, I must speak within the time constraints imposed on the debate. For over 30 years the Department of Agriculture, led by various Ministers, have tried unsuccessfully to rid this country of a disease which has already cost over £1 billion. Failure to come to terms with TB could seriously damage our export market, not to mention the financial hardship it is causing thousands of farmers.

I welcome the setting up of ERAD and I believe the composition of its board ensures that all interests are represented. The media splash on their inception, which did not find favour with farmers anywhere, was their easiest task and there are many testing times ahead for ERAD. They have a very short time within which to answer conclusively a number of pertinent questions which relate to the core problems of the TB eradication scheme. I will put these four problems to the House, hoping that I may get a more extensive opportunity at a later date. Most of what the Minister had to say has been heard many times before. Everybody who has any commitment to agriculture hopes that the ERAD board will succeed. Even allowing for the surveys and other matters mentioned by the Minister, he did not refer to three or four important matters which, if not tackled, will not rid the country of TB.

Have we a uniform method of reading the TB test results at farm level? Does the interpretation of the reaction to the tuberculin vary from one farm to another and from one area to another? Can we be sure that we have a correct and uniform interpretation? Second, can ERAD advise me as to why they do not use tuberculin of the same strength in all tests? For the first test, which is a screening test, why is the tuberculin only half the strength of that used in a reactor herd? It is only reasonable to ask why the same level of tuberculin is not used all the time.

The third question is perhaps the most important. Are ERAD convinced that TB is spread laterally to the degree it is supposed to be? I was always led to believe that the lateral spread of TB caused the problem, in other words that it was spread from one animal to another. That could be right but I should like to know what conclusive research there is to prove that animals contaminated with the disease pass it on to healthy cattle with whom they are intermixed and how quickly this occurs. When I have looked at surveys of tests I have never been able to get a conclusive answer regarding lateral spread. I could not agree more regarding the need for research and I sincerely hope that it will be carried out, not merely talked about.

The increase in the levy is unfortunate, coming at a time when cattle are losing £100 per head. There is a litany of levies to be paid by the farmer when he gets his cheque from the factory. Farmers are waiting with bated breath to see if ERAD will succeed where nobody has yet been successful. Unless the four questions I have asked can be answered positively we will be no better off than we have been for the past 30 years.

Mr. Stagg

We should be conscious of what the public regard as a major scandal, namely that we have spent in excess of £1,000 million on the eradication of brucellosis and bovine TB, yet they still persist despite that great expenditure of public money. We should also be very conscious that it is not just farmers who are affected by these diseases. All the public are affected and the meat industry is affected, as is the dairy industry. Cold storage and haulage are directly affected as well. All of us as consumers are affected and we have a clear interest in putting the matter right.

One must ask why our incidence of disease is ten times worse than that in Northern Ireland. Why are we the worst in Europe despite this massive expenditure? Why did we not have annual testing rather than a stop/go system of eradication? The main difference between us and our European counterparts is that they have an annual testing scheme. The Minister must clearly indicate that this is not just another start up and that it will be seen through on this occasion.

I should also like to refer to the lack of compulsory permits for movement. Permits should be required for movement if the testing system is to be effective. The Minister in a reply earlier this year admitted that there are faults in the testing scheme. He now proposes a further blood test as well as a skin test and I should like to see money going into further expansion of research and facilities.

The main change since ERAD were established is that there has been a great deal of advertising telling us how good they are instead of spending the money on research into the causes of our failure even though we spent £1,000 million.

We need to examine the role of the testers involved. I rightly question the role of testers who have a vested interest in the outcome of tests and ERAD should look very closely at the involvment of such people in tests. There is no scientific proof — although there may be broad statistics in support — that badgers are the cause of the trouble in the Twenty-six Counties.

Mr. Connaughton

The Deputy should be living in my area.

Mr. Stagg

There are as many badgers in Northern Ireland as there are in this part of the country and the rate of the disease there is ten times lower than here. Therefore, I strongly oppose the suggestion of the wholesale slaughter of badgers.

I wish the regulations well because it is in all our interests to eradicate these diseases.

Mr. Sherlock

The patience of the taxpayers and farmers is now beginning to run out because of the failure of successive Governments to deal with the problem of bovine diseases. We are prepared to support the introduction of these new levies but will we back here in another ten years increasing the levies again to fund another campaign of disease eradication?

The operation of the bovine TB eradication scheme was described some years ago by the former Secretary of the Department of Finance and former Governor of the Central Bank, Dr. T.J. Whitaker, as the greatest financial gamble in the history of the State. It is hard to argue with this description in the light of the huge amount of money spent over the years and the spectacular lack of success. Twenty-five years ago Deputy Haughey, who was then Minister for Agriculture, claimed that the country was virtually free of TB in cattle. A quarter of a century later the reality is that we are as far away as ever from achieving that objective. The cost to the State of this unsuccessful campaign has been enormous; in today's terms over £1,000 million of taxpayers' and farmers' money has been spent and thousands of public servants have had to be deployed in administering the various schemes. The taxpayers in particular cannot be expected to continue footing this bill indefinitely. I agree that those who have a vested interest should not make the badger a scapegoat because, as was pointed out, they eradicated bovine tuberculosis in Northern Ireland without having to eliminate the badger.

A number of vested interests have strongly resisted measures which could have contributed to the more effective tackling of bovine diseases. About one-third of the money spent each year has gone on veterinary fees. Fees paid annually to private veterinary practitioners testing under the disease eradication schemes in recent years were as follows: in 1983 the figure was £10.6 million, in 1984 it was £8.3 million, in 1985 it was £11.5 million, in 1986 it was £11 million and in 1987 it was £12 million. As there are fewer than 1,000 veterinary surgeons in the country it means that in recent years they have been earning an average of £10,000 each per year from disease testing alone. Much of the work done by veterinary surgeons in this area could just as easily be done by qualified technicians. If a person has a blood sample taken in a hospital, it is usually done by a nurse. Why cannot blood sampling under these schemes be done by properly trained technicians? When the Bill to establish Teagasc was going through the Dáil last year they were specifically excluded from carrying out disease eradication tests, largely, I understand, as a result of objections from veterinary surgeons.

The small number of farmers who continually flout the regulations have a lot to answer for. They are not only endangering their own livelihood but also the interest of their neighbours and the taxpayers who are footing the bill. Unless we are prepared to tackle the vested interests in this area we will fail to make progress.

An Leas-Cheann Comhairle

I thank the Deputies for their co-operation. We have about six minutes left, so, with the co-operation of the House, I propose to call Deputy Cotter and then Deputy Carey. Deputy Carey will have two minutes and Deputy Foxe will have about one and a half minutes. Is that agreed? Agreed.

Mr. Cotter

Is the Minister aware that Monaghan is a black spot in relation to the incidence of bovine TB? Our big worry is that farmers who never had this problem before are now in trouble. I am speaking of farmers who are good managers and who never buy in cattle. They have had a very good record over the years but many now find that after a test their herd is locked up. In some cases when their cattle are sent to the factory there are no lesions, which means that farmers are being heavily penalised for what we consider to be a weakness in the system at the moment.

The farming community in Monaghan and the veterinary surgeons have lost confidence in the testing system which now applies and the Minister should immediately carry out an inquiry to find out why there is such a serious problem in Monaghan, much more serious than in any other county.

Mr. Carey

Thank you, a Leas-Cheann Comhairle. One must admire the way in which you utilised time in this debate, you have done a very good job.

I wish to highlight a particular difficulty in my constituency. Since the State started to investigate bovine TB, north Clare has never been clear. That is not the case in the rest of the country, as all the other counties have had at least one disease-free period. In north Clare there has been a continued incidence of the disease and I have appealed to successive Ministers to declare that area a black-spot. Special attention should be given to north Clare and grants given to enable farmers and other people involved to be enthusiastic about the complete eradication of disease so that we might get at least one short period free of disease.

Mr. Foxe

All of us would benefit from a national TB-free cattle herd. It is too bad that the farmers constitute the only sector of our community asked to pay, in addition to the Exchequer, for the eradication of the disease.

Mr. Stagg

That is not true.

Mr. Foxe

Amounts paid by individuals are minimal compared with the costs incurred by those whose herds are abolished on account of the incidence of the disease. There must be something frightfully wrong with the methods we have been using for 30-odd years to eradicate this disease since we are now no freer of TB within our herds than we were on commencement.

Before embarking on a programme to eradicate badgers we should undertake somewhat more research into the strain of TB affecting the badger and that affecting cattle.

Minister of State at the Department of Agriculture and Food (Mr. Walsh)

Would I have five minutes remaining, a Leas-Cheann Comhairle?

An Leas-Cheann Comhairle

Almost.

Mr. Walsh

I was going to be somewhat generous in view of the fact that one contributor to the debate is a neighbour of mine, Deputy Cotter, who strayed up to County Monaghan and did well for himself.

Mr. Connaughton

The Minister was lucky the Deputy left.

Mr. Walsh

I was damn lucky. In fact, my colleague, Deputy Sheehan, was luckier still.

It is accepted that lateral spread plays a major role in the breakdown of eradication. There is increasing evidence to that effect. Additionally, wildlife involvement is recognised to be a cause of some difficulty.

A number of Deputies referred to badgers, contending that they may be a contributory factor in the spread of the disease, and advocated that they should be slaughtered, gassed or whatever. I find that argument very difficult to accept. I am very supportive of the application for licences on which the wildlife people insist before any are issued. In some instances if a badger is found to be the cause of the spread of the disease then the process of applying for a licence is gone through. There will be no wholesale slaughter of that unfortunate animal.

We now have a full four-year programme in progress. The matter of interpretation was raised also. For example, in 1989 the ERAD strategy was based on ensuring that black spot areas are focussed on. Severe interpretation is applied with regard to all herds in those areas. Therefore, there is a uniform method applied in the reading of tests in black spot areas throughout the country. A standard interpretation is used in all other areas.

Mr. Connaughton

It is not the same, though.

Mr. Walsh

No, it is not the same. I want to tell Deputy Cotter that of course Monaghan is designated as a black spot area.

I should say that double-strength tuberculin is used on infected herds only to ensure that animals which may be showing a reduced response can be identified. The TB investigation unit are currently evaluating the use of double-strength tuberculin. A movement permit system will be introduced from 1991, that is, a computerised movement permit system which will be deployed in the case of all movements of cattle throughout the country at all stages in their adult life, which has been a major weakness of the whole system to date. Of course, there is another major weakness in overall eradication, that is, that farmers themselves should be much more vigilant. Indeed, people who stray in and out of farmers' yards, including canvassers at election time, should be compelled to dip their wellington boots in some type of disinfectant solution lest they spread the disease from one farm to another.

North Clare is another black spot area. The TB investigation unit are due to report on this area soon, hopefully next month.

Generally that summarises the position in regard to the TB eradication scheme. It has been a sorrowful tale over the past 30 years. Even lay people could identify elementary weaknesses in the hygiene and operation of the scheme. It is no wonder that it has not proved to be successful. I am glad that a very serious effort is being made, once and for all, to tackle the eradication of this disease. This will be of great benefit to the farming community and, in turn, to the general taxpayer.

Question put and agreed to.