I have notice from Senator Joe Doyle of his desire to raise on the Adjournment, in view of the deteriorating air quality in Dublin, the need for the Minister for the Environment to sanction the Special Control Area (Ballyfermot) Order, 1988, sought under section 39 of the Air Pollution Act, 1987, and to initiate a public awareness campaign for citizens residing outside the area covered by the order of the existence and availability of alternative non-polluting fuels at little or no extra cost to the public.
Adjournment Matter. - Air Pollution in Dublin.
Acting Chairman
I spoke on the Adjournment in the Seanad on 20 January 1988 on this subject but it was not possible then to talk about air pollution and the effects it was having on our population. I informed the Seanad on 9 December 1987 that the meteorological services broadcast their very first smog alert as Dublin was surrounded by choking smoke from thousands of coal fires for the second night in succession with visibility in some of the worst affected areas reduced to 50 yards or less. At that time the EC limit for smoke pollution was breached at a number of monitoring stations in and around Dublin. It was fortunate for everyone that the atmospheric conditions improved and that that smog outbreak was not prolonged or severe.
When air quality standards prescribed by ministerial order under the 1987 Air Pollution Act are breached there is a statutory obligation on the local authorities concerned to take appropriate steps, using their powers under the Act to secure compliance with standards. Dublin Corporation complied with this regulation and some time ago presented for ministerial sanction a Special Control Area, Ballyfermot — Order, 1988 — under section 39 of the Air Pollution Act. While awaiting ministerial approval of that smoke control order Dublin experienced yet again a very severe and prolonged smog outbreak.
The EC limit for smoke pollution was breached last Sunday in the Ballyfermot and Cabra areas of Dublin with levels of 311 and 259 micrograms per cubic metre respectively. This followed the breaching of the EC limit of 250 micrograms on three successive days requiring the Government to notify the European Commission of the breach of EC Air Pollution Directive. The level of smog was also very high in other areas of the city. For instance, in Crumlin, on Saturday, a reading of 237 micrograms was taken, while in Mountjoy Square, on Sunday, the smog level reached 232 microgrammes. Rathmines recorded a smog level of 185 micrograms on Sunday and the Sandymount area was affected also.
When I asked that this matter be discussed on the Adjournment last week, that was prior to the Minister signing the order. The Minister signed the order yesterday. His delay in doing so was rather difficult to understand, especially in relation to the smog levels experienced over the last few weeks. It is yet more difficult to explain the delay in the signing of this order to people who had to attend hospitals in Dublin suffering from respiratory problems. It has been reported in the media that a medical practitioner — who gave his name — in Ballyfermot had to have two elderly people admitted to hospital. He noted an increase of 20 per cent in respiratory ailments compared with this time last year. While the signing of the order by the Minister would not have solved these problems, nevertheless it would have been a psychological factor and have been of some help to people who would have realised that something positive was being done about their problems and discomfort.
Unfortunately, the Minister has amended Dublin Corporation's original order for the first smoke control area in Ballyfermot by including briquettes and permitting the burning of bituminous coal in special appliances. According to his press release the Minister stated that the weight of the evidence presented by the agents in favour of the full burning fire — which is claimed to reduce smoke emissions by 80 per cent — was overwhelming, that he had to accept it, especially when it had not been refuted by anybody at the relevant inquiry. Again according to his press release, the Minister stated that if these appliances did not live up to their claim, he would have no hesitation in withdrawing his approval. In that regard he said EOLAS were being asked to carry out some smoke emission tests and, dependent on their results, he would decide what appliances would be included in future orders.
The people of Ballyfermot — psychologically — feel that no order has been made by the Minister. Secondly, its provisions render the job of monitoring the consumption of coal more difficult. When the burning of bituminous coal is allowed in a smoke control area, it completely defeats the purpose of having a smoke control area. Dublin Corporation have prepared a case for a second application in respect of the Ballyfermot area. There is now a doubt as to whether the Minister would confirm any further orders until such time as tests are carried out on the relevant approved appliances. The Minister might clarify the position this evening so that there will be no undue delay in the making of a second order.
It appears that the provisions of the grants scheme will apply from some future date whereas it should have been operative from February last when the Minister announced that he was setting aside £250,000 for that purpose. Already over 200 people have converted to smokeless fuel. It would appear to me to be a breach of confidence to exclude them from the grants scheme only because they acted voluntarily in response to the publicity campaign initiated by the Minister. It is important that the goodwill of all the people of Ballyfermot be harnessed so that, in that area at least, the original resolution of the city council could be more easily implemented without the need for coercion. The intention of Dublin Corporation was to proceed with further orders. However, this momentum would be slowed down if people in the special control area withheld their support through lack of confidence in the grants scheme, as would the effectiveness of the ministerial order allowing exemptions.
The use of smokeless fuel outside the control area must be encouraged also. First, there must be a clear educational campaign to bring home to the public the advantages and availability of smokeless fuel. At present the Minister has initiated a positive publicity campaign to encourage motorists to use lead-free petrol. How much more acceptable would be a positive programme to encourage people to use in their fireplaces smokeless fuels now available. While such smokeless fuels are a little dearer than bituminous coal, I understand they have a better heat content and last longer. Secondly, I contend that the Minister for Finance should assist in the competitiveness of smokeless fuels by eliminating or reducing VAT along the same lines and for the same reasons as his recent welcome proposal in respect of the usage of lead-free petrol.
I have no doubt that the implementation of some, or all, of these measures — at a minimum cost to public funds — would result in a drastic improvement in smoke pollution in the Dublin area over a relatively short period.
I am pleased that Senator Doyle welcomes the signing of the special control order which I attended to yesterday.
I thank him for his concern about Dublin's smoke pollution problems; they are shared by the Minister. Of course he will be aware by now that, following the consideration of the report at the oral hearing held between 28 June and 4 July 1988, I confirmed the Special Control Area (Ballyfermot) Order, 1988 with modifications on 8 November 1988. In deciding to confirm the order with modification I took into account the weight of evidence put forward at the oral hearing in favour of the appliance known as the full burning fire. Having regard to the evidence presented at the hearing, I intend to make regulations as soon as possible under the Air Pollution Act, 1987 specifying the full burning fire as an authorised fireplace for the purpose of the special control area order in this case. I will also make regulations on the same basis declaring Bord na Móna peat briquettes to be an authorised fuel also for the purposes of the order.
I have exercised a quasi-judicial function in regard to the confirmation, with modifications, of the order. I do not propose to discuss the making of that decision in the circumstances. However, in confirming the order, I want to make it absolutely clear that this is not a solution in itself, it is just a first step towards a solution. A solution for this winter would require coercion at a level Ireland would not take and money would have to be provided at a level that we do not have. We are not ready for a situation in which coal lorries are not allowed into certain streets or in which inspectors go into one's house to check what are is burning in one's grate. We do not have the money to equalise the cost of smokeless and ordinary coals. Therefore, an instant, complete, solution is not on but a solution is overdue and will happen within a three-year period. It is going to start immediately with this order. It could not start any sooner because I had to take into account the oral hearing evidence, all 585 closely typed pages.
The confirmation of the order brings into operation now a scheme of grants to help householders in the special control area to meet the costs of adapting their household heating to comply with the order. A sum of £250,000 is being provided this year and a sum of £1 million is being made available in the coming year to fund the grants scheme. The sooner people take up the grant offer which is available now, the sooner they adapt their systems the sooner, we will have air we are happy to breathe. The bottom line is that the order comes into operation in May 1989 which allows people a sufficient interim period within which to make the necessary changes. The date of 31 May takes account of section 41 of the Air Pollution Act, 1987, which provides that an order cannot come into operation earlier than six months after its confirmation.
I do not want the existence of this order to suggest to anybody that the problem is now under control; it is not. The problem is not confined to a couple of smoke ghettoes within the city. I do not want anybody to believe that one cures smog by making rules and merely giving out grants; there is more to it than that. Last weekend in Dublin there was smog in a lot of areas way outside the Ballyfermot area, in some middle class areas, where smoke was coming out of chimneys and just sitting over those areas as well. The problem is that many people who could afford smokeless fuels do not buy them because they do not see themselves as contributing to the smog that is putting people in hospital and keeping our children from school. We are going to have to make that fact clear to everybody in this city; no matter where one lives one should not be using polluting fuels. If everybody in this capital city bought smokeless fuels — and particularly those who can afford to make the choice — the problem would disappear virtually overnight.
As far as I am concerned people who buy smokeless fuels are investing in their health. I join the Senator and anybody else who will encourage people, other than those who live in Ballyfermot where they find difficulty in affording smokeless fuels, to use the resources available to them to change their lifestyles in so far as the purchasing of particular types of fuels are concerned. To that end I called on all the suppliers of those fuels which do not pollute to promote them specifically in the suburbs of Dublin. I was happy this morning to hear the first part of that call was heard on our airwaves. The campaign — following on my call to the promoters to promote the use of smokeless fuels — started this morning. I hope it will be effective.
The confirming of the order is one of a number of measures that I plan to put into place to solve the problem. For example, I intend to consider urgently possibilities such as the following: in future new house grants will be confined to houses fitted with smokeless appliances in the heavily built-up parts of Dublin and possibly in many other built up areas with corresponding provisions for new public housing. A general policy directive will be issued under the Planning Acts relating to the use of smokeless heating systems in any new or reconstructed premises, domestic or otherwise, in these same built-up areas. Dublin Corporation houses are to be converted to smokeless-type fuels either through the existing remedial works scheme or a special scheme where major refurbishment work is taking place. There will be also the conversion of Government and public buildings in Dublin to smokeless fuels. There are other things that can be done also. These are just some of the ideas I am considering at present to help out not just in the Ballyfermots of this city but also in the other areas which contribute to the general level of emissions throughout the whole city.
I intend that there will be an information campaign to advise the public generally of the advantages of smokeless fuels, their existence, their availability and of heating conversion possibilities too. That information campaign began today. I want it to be just as important and effective as is the campaign for the use of lead-free petrol. I hope that this campaign can be run in conjunction with local residents' associations and other groups with an interest in the matter. I have been contacted by representatives of some residents' associations in the south part of the city who are talking about such conversion voluntarily. I welcome that and am encouraged that people are taking the matter into their own hands, providing better health for themselves.
This smoke pollution problem has been building up for three decades. My action is the first attempt by any Minister for the Environment, Minister for Local Government or any other Minister, to do something positive about it and to provide the money necessary to make it possible. On occasions one can be quite resentful when one hears people talking about too little, too late, particularly those people who would not do anything about the problem in the past. I say it is a little and much more will have to be done but it is going to be solved and can be solved within three years. The grants available immediately for adaptation along with the promotion of smokeless fuels — which I expect on the part of fuel suppliers — could make a difference within a matter of months. While people might say that it is not possible to get an immediate good result, I contend it is, if people would take and make the choice that is available to them. Those who can afford to do so, should do so forthwith. Ballyfermot must deal with their situation immediately. It is not for me to direct Dublin Corporation but Senator Doyle could help out in this matter by pressing Dublin Corporation to consider now other areas where they know there have been consequences quoted by the Senator himself, in breach, or close to being in breach of the relevant EC directive. I would advocate that they would now put forward other orders for ministerial consideration, when I will be happy to support them.
May I ask the——
The Senator might confine himself to a brief comment.
I should like to thank the Minister for his comprehensive reply. I should like to ask the Minister: will the 200 people I mentioned in the smoke control area who acted in a civic-minded way when the conversion was first mooted and changed over to non-polluting fuels be covered by the special grants?
The grant scheme provisions become operative from yesterday on my signing the relevant order. Those who must make the change will be grant-assisted at varying levels.
But 200 people have already converted to smokeless fuels. It would be only in fairness to their civic-minded spirit and the way they acted that the Minister should consider backdating the order to include them.
In my press release of June 1988, I stressed and made quite clear that the grants scheme would not be operative until the relevant order was confirmed; everybody knew that. There is no way any Minister can backdate grants before an order is made. Where do you stop? Will I go back two months, three months; will I go back two years; where would you end? In June I told people an order would be signed and implemented. I told them that, from the date of signature, grants would be available. Now people are asking: why do I not give grants to people who did make a genuine effort to do something about this problem themselves. They would have done so whether or not they received a grant. I cannot make the order retrospective. I feel I gave due notice in mid-1988. Therefore, there was nobody under any illusion whatsoever as to where they stood. I can appreciate Senator Doyle's concern in the matter but, equally, he will appreciate that it is standard practice in so far as grant assistance is concerned.
The Seanad adjourned at 8.30 p.m. until 2.30 p.m. on Wednesday, 16 November 1988.