Adjournment Matter. - Licensing of Bulls. – Seanad Éireann (17th Seanad) – Thursday, 14 Jul 1983

Adjournment Matter. - Licensing of Bulls.

Mr. Kiely

I thank you, a Chathaoirligh, for having given me the opportunity to raise this important matter. I thank the Minister also for coming in to take this matter.

I was elected to the Seanad on the Agricultural Panel, having been nominated by the Munster Agricultural Society who organise the Cork Summer Show, it being the main show of Munster every year. Naturally we are tremendously interested in the standard of our livestock.

The suspension of the licensing of bulls occurred this year. It was initiated in 1927 when an Act was passed by the Houses of the Oireachtas known as the Livestock Breeding Act. It was an Act to make provision for the regulation and improvement of bulls and other livestock used for breeding. Once that legislation had been enacted it was an offence for any breeder to keep a bull for the purpose of breeding without having a licence. Any breeder who wanted to keep a bull for the purpose of breeding had to obtain a licence.

In order to obtain such a licence he had to make application on the appropriate form to the Department of Agriculture. On receipt of such application the Department would then make arrangements for the bull to be inspected. If, on inspection, the bull was considered up to standard, the inspector would then grant a licence to the breeder to keep that bull. That was done to ensure a resultant improvement in the quality and standard of our livestock.

The licensing of bulls has been in operation since 1925 up to the autumn of last year when it was suspended by the Minister. This decision was of considerable concern to all breeders and the livestock industry generally. Livestock breeding is of vital importance to the farming community and to the future development of the agricultural sector. It will also have an enormous impact on our economy. Probably the abolition of bull licensing was influenced by the fact that it would entail a saving in expenditure. But if its suspension continues without any other system of control, it will be detrimental not alone to livestock breeding and the export of our cattle but also to the quality and standard of our cattle which, in turn, will affect our export trade and entire economy.

Whilst it is understandable that Governments would be anxious to effect economies, the decision to abolish bull licensing as far as the livestock breeding programme is concerned amounts to false economy. In the long-term, if there is no control on the breeding of cattle, it will have an overall effect on the standard of livestock, resulting in greater losses in the cattle export trade and breeding of cattle generally. Therefore it will be seen that the loss to the trade and the economy will be far greater than any saving effected by suspension of licensing. I understand that the licensing of bulls cost the Exchequer in the region of £200,000 per annum. It must be emphasised that the loss to the cattle industry and export trade, if the quality of our cattle is allowed to deteriorate, will be much greater than that.

I understand that it was because of some EEC regulation that the Minister suspended the licensing of bulls. I should like him to tell me exactly what regulation. I noted that, in reply to parliamentary questions in the Dáil, the Minister of State, Deputy Hegarty, now present, said that the question of controls on the use of non-pedigree bulls was being examined at present by his Department. He added that he was personally concerned about the quality of our animals and that discussions were taking place with pedigree breeders. He said one suggestion being considered was the linking of the identity of the sire with the calf premium payments. I should like further clarification of that, for example, if such a scheme were to be initiated how it would be administered. I am of the opinion that the administration of such a scheme would cost the Exchequer as much if not more, than the licensing of bulls that obtained up to the autumn of last year.

Would the Minister make some announcement soon, if not immediately, as to what measures he proposes to take to control the use of non-pedigree bulls. If non-pedigree or any type of scrub bull is used in the future breeding of cattle it will have a detrimental effect on the quality of those cattle. It would also be demoralising to pedigree breeders and act as a disincentive to them to continue their breeding programmes, which such breeders consider of vital importance to the improvement of the quality of our livestock. The dedication of such breeders must be recognised by the Minister and his Department. It is they who are really responsible for the improvement in the quality of our cattle and livestock generally.

Since the licensing of bulls was suspended, the price of pedigree livestock, bulls and heifers, has declined. If this suspension is allowed to continue it will lessen the enthusiasm of such pedigree breeders to continue their breeding programmes. It is suggested that registered animals only from society herd books should be used. It is further suggested that such societies should become involved in ensuring that such animals only be used. Such a decision would cause problems for the smaller breeding societies who cannot afford inspection if the larger breeding societies are responsible for dictating Irish cattle breeding policies. With 71 per cent of gross national product enamating from the dairy and beef sectors it will be seen that it is vital to our economy that there be control of the breeding of bulls.

The selection of top quality animals for breeding purposes is a way of ensuring better quality milk and beef animals on commercial farms. According to breeders, this spring has seen the use of more non-pedigree bulls than ever before. They point out also that, five years after the abolition of the licensing of bulls in the United Kingdom and Northern Ireland cattle passing through marts could not be distinguished by breed.

Artificial insemination has led to increased business but it must be realised also that there is an EEC subsidy in existence to defray expenses on a year-to-year basis. If that subsidy were to be suspended I am sure there would be lesser use of artificial insemination with more poor quality bulls, non-pedigree and scrub bulls, being used for breeding purposes. I am sure the Minister is well aware that that would act as a further deterrent to improving the quality of livestock. Buyers of calves must be made aware of the use of non-pedigree bulls and this practice must not be allowed to continue. Only the good sense of farmers who have the welfare of the dairying and beef industries at heart can prevent the use of non-pedigree bulls in their cattle breeding programmes. It must be recognised that, if some system of control is not introduced, there will be an increase of scrub and non-pedigree bulls. Any such control must entail a system of policing. Heretofore there were two rounds of inspection and an annual search was carried out for unlicensed bulls — it was known as the "comb"— but a person found with an unlicensed bull could only be fined a maximum of £20. It is my view that anyone found with a non-pedigree bull should be fined a sum of between £500 and £1,000, if the controls I mentioned were introduced.

Valuable work has been done by the breed societies, especially the dairy breeds. They can help the beef breeds. However, we have a long way to go to get the breeding strains in our bull studs. especially in beef, as well recognised as the top quality dairy bulls. Dairy bulls have proved their ability to sire heifers that will produce more than their dams. That is an indication of the importance of using top quality bulls in our breeding programmes, especially in dairy and beef herds, to improve our livestock.

I understand the Minister is awaiting a recommendation from the advisory committee of cattle breeders. If they have the interest of the livestock industry at heart, I am sure they will recommend that pedigree bulls are only used in commercial herds. If not, there will be the gradual elimination of pedigree breeding and that will be a pity for the livestock trade.

In the Irish Independent of 2 July there was a report that FEOGA were financing a new bull testing station at Tully. This will be money down the drain if the bulls are not there to test. Unless there is control in this area pedigree breeders will not be enthusiastic about breeding cattle and bulls. In the Irish Independent of the same date there is a report with the headline: “Disappointing speech by Minister Hegarty on Livestock”. The report stated:

... modern animal breeding programmes are now underpinned by the sciences of genetics, statistics and computer technology.

I should like the Minister to elaborate on how this can be done if there is no control. We must ensure that pedigree breeders are encouraged to continue with their work. The breeders have invested considerable amounts of money in Irish pedigree herds. If there is not some control in the use of bulls the cash they have invested will be lost.

The skill and expertise of these breeders, which has been acquired during the years because of their dedication and work, will be lost if there is no incentive to improve the standard and quality in their herds. I hope the Minister will make an announcement shortly about his intentions with regard to the control of non-pedigree bulls.

Mr. Howard

I wish to go on record as expressing the concern felt by the breed societies, particularly the pedigree breeders, with regard to the present situation. Pedigree breeders, particularly on the beef side, have invested considerable sums in introducing to this country and producing a better type of animal in the past eight to ten years. Bringing in continental animals, putting them into quarantine and buying the best available has ensured that the standards of pedigree beef breeds in Ireland are among the highest in the world. In addition, the health status that our country enjoys has enabled a useful export trade to be developed to North America. If the present uncertain situation continues there will not be an opportunity to develop the business. There is a risk that the breed societies will phase themselves out of the industry. This would have an adverse effect and it should be avoided. If the performance so far this year with the use of unlicensed bulls and scrub bulls in commercial herds is anything to go by, the animals we will market in the next few years will not be the best advertisement for this country.

Mr. Lynch

I support what Senator Kiely has said. In my area there has been a long tradition of pedigree breeding and our animals have been most successful in agricultural shows throughout the country, in Scotland and in England. It is a credit to the farming community and the livestock breeders that we have reached the stage when we have herds that are as good as any in Europe or the world. Large ranchers from America come to Oldcastle to inspect the herds. I shudder to think what will happen in the years ahead if the present position is allowed to go unchecked.

We must take into consideration that agricultural show societies have put a lot of effort and work into their shows. The Department of Agriculture, local authorities, ACOT and committees of agriculture have built up the shows in an effort to exhibit the prize cattle we have produced. The agricultural shows in Oldcastle, in Trim and in Virginia, County Cavan, are second to none. I hate to think what will happen to these shows if the position is allowed to continue as it is.

I ask the Minister to consider reintroducing a system of controls to safeguard the future of the beef herds. In addition, we must take into account the fact that milk production has reached a high level. The growing use of half-breed bulls should be a matter of major concern to the Minister and the Department. The decline in the overall quality of our cattle herd is a very important matter and should be given serious consideration. Steps should be taken now to control the use of half-breed bulls.

Minister of State at the Department of Agriculture (Mr. Hegarty)

Before I outline the options open to us in the area of official control on bulls used for breeding, I would like, if I may, to give a brief summary of the historical background to such control in the past which was exercised through a system of bull licensing.

Up to this year bull licensing has been carried out under the authority of the Live Stock Breeding Act, 1925. Each year, following press advertisements and announcements telling of the inspection arrangements and inviting applications for licences for bulls of prescribed age, up to 7,000 bulls were inspected for licence at over 400 approved centres. These inspections were carried out by fee-paid temporary inspectors selected for their knowledge of cattle and who were themselves usually pedigree breeders. Practically all the applications were for pure-bred bulls entered or eligible for entry in the appropriate breed societies' herd books. 85 per cent to 90 per cent of the bulls were passed by the inspectors, and in general, non pure-bred bulls were not licensed for breeding — exceptions were some Kerry and shorthorn and continental bred bulls in the later stages of grading up to full herd-book status.

There were two rounds of inspection in spring and autumn followed by two rounds of appeal inspections and, additionally, an annual search for unlicensed bulls—the "comb" as it became known.

It was, therefore, a costly service which worked out at £160,000 per annum. The "comb" alone cost, I am told, approximately £100 for each unlicensed bull detected. The problem was compounded by the fact that receipts by way of licence fees amounted to only £4,000. These had, effectively, remained unchanged since 1925 and clearly would have had to be considerably increased. It was proposed this time last year to introduce legislation to provide for sizeable increases and, indeed, a draft Bill to this effect was in the final stages of preparation.

The previous Government decided in October 1982 to discontinue the existing system of licensing, the present Government endorsed their decision early in 1983 and announced that licences would not be required for the keeping of bulls. Legislation will be necessary formally to have the 1925 Act removed from the Statute Book.

I should stress that the decision to abolish bull licensing was not taken solely as a cost-cutting exercise. On the contrary there was, and still is, a strong body of opinion, that after over 50 years of licensing the message should have got through that the use of the so-called "scrub" bulls did not benefit anyone, least of all the producer, and that it was time that the compulsion element was taken our of breeding. Some people advocated, as an alternative, a programme of advice and education to promote better cattle breeding. A well-known farming periodical described the situation as a "charade". I would not like to go that far but I can certainly say that, clearly, the existing system of licensing required a critical examination.

On the other hand we were very conscious of the fact that if the retention and use of non pure-bred bulls were to reach serious proportions, there would be a consequential deterioration in the quality of the national herd. I share that view. AI usage would also be seriously affected and trade in pedigree bulls—especially beef bulls—could decline.

However, the biggest factor influencing the decision to abolish licensing — and indeed our whole attitude to the future — is the work currently going on in Brussels where an EEC directive is in course of preparation. This will, in effect, control through herd book registrations the standards of pure-bred breeding bulls. I have to say that work on it is somewhat slow, but the expectation is that it will come into operation in January 1986. It will effectively replace licensing at that stage. I stress "pure-bred", however, because the directive does not cover the use of cross-bred bulls. We are unique to the extent that other EEC countries do not use cross-breds. It is our shame that that is so.

What then, one may ask, are the options open to us? Where do we go from here? I can say that there are mixed views on this whole issue. I spoke in the Dáil about this on 14 June and I made the point that the question of controls on the use of non-pure breds—the "scrub bull" as he is called—is being examined in my Department. I have asked the cattle advisory committee to let me have their urgent recommendations and I expect to have these before the Dáil resumes in October. This is a body representing all the interests associated with the breeding of cattle and, clearly their recommendations will have to get every consideration. It would, I believe, be improper for me to attempt to prejudice their conclusions. They may feel that the old system should be dropped and replaced by a programme of publicity and advice to the farmers to encourage the use of good-quality bulls. Another option would be to advocate a system in line with the proposed EEC system of controlling the standards of pure-bred bulls through the herd book system, while introducing new legislation to prohibit the use of scrub bulls, to cover the particular situation here in Ireland.

I hope, therefore, that the House will agree with me — and forgive the awful pun — that this is not simply a black and white situation. It is a most complex issue and one of vital concern to me. The importance of our livestock industry and of the export trade in beef hardly needs to be stressed, and the House can be assured that I will examine carefully the whole question of the future of bull licensing with the utmost care and with the greatest of urgency. My hope would be that new proposals will be before the House some time in the coming session.

I welcome the worthwhile contributions that were made in the House. I looked at the possibility of linking the whole area of calf payment subsidies with identification of siring but it did not prove very practical.

I am very concerned about the problem of scrub bulls which, as I indicated in my speech, is unique to this country. The majority of people in the animal advisory committee favour the re-introduction of controls and legislation for the prevention of the use of scrub bulls. This would not be as costly on the State as the previous system because a combing system will emerge whereby we will call on farms and when the farmer can identify his bull as being on a herd book there will be no problems. Legislation in Brussels is moving in that direction. However, it would put a heavy onus on breeders to ensure that the quality of their animals was up to standard. Up to now, our inspectors played a large part in that. Even though the bull was nominated on a herd book, very often our inspectors found that the bull was not good enough. This was often disputed and in many cases we lost.

I have talked to breeders over the last couple of weeks and they are quite happy to accept this type of discipline knowing that if we allow scrub bulls to be used without control we will have a poor quality animal at the end of the day. I agree with the speaker who pointed out that there is not much point in venturing into the sophisticated markets of Germany or Britain if we cannot present them with the right animal. Without pre-empting what the advisory council may come up with, I believe this is the approach that they have and I am very sympathetic towards them.

Seanad Éireann díospóireacht - Thursday, 14 Jul 1983