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Seanad Éireann díospóireacht -
Tuesday, 11 Nov 2003

Vol. 174 No. 11

Adjournment Matters. - Architectural Heritage.

I thank the Minister of State for coming to the House. Some decades ago I was on holiday in Bolgheri, on the west coast of Italy. One evening we were talking to some of the locals, who told us they had just averted a national catastrophe. Naturally, we were eager to hear about this. They pointed to a lovely avenue of cypresses going up into the hills. The Minister may know the splendid avenues of cypresses one sees all over Italy. This one was about 2 km long and the people had prevented it from being cut down.

Bolgheri is located on the west coast of Italy on the Laverno-Roma motorway. The motorway was being built at that time by the Italians who, like their ancestors, the Romans, are tremendous road builders. When they came near Bolgheri, the denizens of Bolgheri looked at their plans and objected because the intention was to go through the avenue of cypresses. The engineers said they had to go through other cypresses on previous occasions but they were told that these were the cypresses Dante wrote about in the poem every Italian school child has to learn. The Italians, who have some respect for national monuments, decided this avenue of cypresses was a national monument of cultural importance, so the builders went around them. If one looked at that motorway now, one would never know, thanks to the skill of the engineers, that any sort of diversion had to be made. It is an example of how a motorway can be constructed while preserving a national monument.

The opposite is about to be done with Carrickmines Castle. Apparently no amount of appeals to the Minister will make him change his mind on the path of the M50 motorway. What is sad about this situation, with his efforts before the Oireachtas to annul the Supreme Court judgment, is that he is acting as judge and jury in his own case. There is an old legal saying that one cannot act as judge and jury in one's own case – nemo iudex in causa sua. He is acting in this way because as Minister for the Environment, Heritage and Local Government he is responsible for national monuments. He must have decided it was a national monument as he intends to have it knocked down under a section of the National Monuments Act. At the same time, in his capacity as Minister with overall responsibility for the road network, he is consenting to what is being done on the basis that it is necessary. He says he is acting in the national interest but there is nothing in the national monuments plan which states one can demolish, destroy or devastate anything in the national interest. I do not understand why he decided to do that. Legally, national monuments can only be damaged where it furthers the interests of archaeology in that area.

The Minister is acting in the most extraordinary way because, as in the case of the motorway in Italy, he is relying on funds from the European Union to construct this motorway in south Dublin. I understand that of the €140 million to be spent, at least €80 million will come from the European Union. The European Union petitions committee has been informed, it has registered its concern and its members have come here to investigate. The Minister should at least wait until they have adjudicated on the matter because it has always been made explicit that any EU funding is conditional on a proper environmental impact study being carried out. The Minister of State may recall that in the Supreme Court appeal, Mr. Justice Hardiman said he felt that the environmental impact study was deficient. He also said that he was treating Carrickmines Castle as a national monument. What would happen if the European Union withholds these funds because we have demolished a national monument?

This order should be annulled because modification of the route is possible. It is interesting that other areas of the motorway can be modified if they are considered to cause practical problems. An example is the Red Cow roundabout, now rightly referred to as the mad cow roundabout because the situation there is so chaotic. The Minister for Transport, Deputy Brennan, who is not happy about what is happening at Carrickmines, has said that if the Luas light rail system causes more congestion at the Red Cow junction, a flyover can be built at a cost of €11 million. More money can be found for an area in which traffic congestion has to be dealt with but it cannot be found to deal with national monuments.

This monument is important because it comprises a very large site. I am sure the Minister saw an article in The Irish Times today in which the chief archaeologist on the site, Dr. Mark Clinton, expressed his anger at a culture of greed and ineptitude that is destroying a priceless national monument. I am sure the Minister knows all about the history of the place, which was built in the 13th century by the Anglo-Norman Walshes to repel the O'Tooles and the O'Byrnes. I am sure they were right; they should have stayed in Wicklow. There is a long history to this place, including its important role as a fortification along the Pale. If money can be found to do something with the Red Cow roundabout, why can it not be found to do something with this extraordinarily important place? We bitterly regretted what happened at Wood Quay because it was such an important attraction, not just for ourselves but for tourists. This is a unique site which cannot be replaced and which, apparently, the Minister believes he is entitled to dispose, even in the absence of the adjudication by members of the EU petitions committee who are examining the project. The Minister is acting as a judge in his own case, which is improper. I hope the Minister of State has a sympathetic response to this matter.

I thank Senator Henry for raising this matter. The order to which the Senator refers is the National Monuments (Approval of Joint Consent) Order 2003 made by the Minister for the Environment, Heritage and Local Government on 3 July 2003. This was laid before each House of the Oireachtas, as required by section 14 of the National Monuments Act 1930, as amended. Either House of the Oireachtas is entitled, subject to the necessary voting support, to pass an order annulling the July 2003 order within 21 sitting days. Should this happen, the original order will be annulled. If this does not happen, the order will stand. I have just looked at the calendar and as far as the Dáil is concerned, the 21 sitting days, presuming it does not sit on Fridays, will expire on 19 November, although I stand to be corrected on that. In the Seanad, 21 sitting days will expire on 3 December. It is unreasonable to call upon the Minister to annul his own order, nor is it clear that he could legally do so in the present case. The prerogative of annulment rests more widely with the Houses of the Oireachtas.

Leaving these legal considerations aside, the Senator and the House should be aware that the Minister's order was made following a process of bona fide consideration and consultation and that it was based, as envisaged by the legislation, on considerations extending beyond archaeological ones alone. In other words, the Minister made, as he was entitled to do in light of all the facts, a determination on broadly based public interest grounds but which also ensured that the greatest possible preservation would be afforded to the archaeology at Carrickmines consistent with the need to continue the south eastern motorway.

National monuments legislation envisages that it may be necessary in certain cases to interfere with a national monument. Where interference is required for reasons of public health and safety, the Minister may consent to the works involved without making an order and without reference to the Oireachtas. Where interference can be justified in the interests of archaeology, no reference to the Oireachtas is needed.

The National Monuments Acts clearly envisage a third type of situation in which it may be necessary to allow interference with a national monument for reasons which do not relate either to archaeology or to public health and safety. The application from the road authority, in this case Dún Laoghaire-Rathdown County Council, to the Minister was expressly made in this last context, as was the Minister's determination of the matter in his order last July. In this type of case, reference to the Houses of the Oireachtas is required. This has been done in the present instance.

The Minister has already publicly explained the factors which underlie his decision. It was based on the overall assessment by him that the public interest, in allowing construction of the south eastern motorway along its approved route, justified consenting to, or approving of, the works impacting on archaeology at the site. The Minister considered that it had been satisfactorily demonstrated that a systematic approach had been adopted by the county council to the archaeological resolution of the Carrickmines site. This had involved a major commitment of resources. These activities, coupled with further archaeological work to be completed, will preserve the main archaeological elements of the site, either by record or in situ.

Before making his decision, the Minister considered 23 submissions received relating to the case. Some 17 submissions supported the early completion of the project while six objected. The Minister had regard to the advice of his Department's national monuments section regarding further conditions to be inserted in the joint consent to ensure that the works to be undertaken at Carrickmines would be carried out in accordance with best archaeological practice.

In arriving at his decision, the Minister had regard to the following: the scale and extent of archaeological excavations carried out on the Carrickmines site commencing in August 2000 and continuing to date – as many as 130 archaeologists have been employed on the Carrickmines site and the archaeological mitigation to date is estimated to cost €6 million; the contribution that this work has made, and continues to make, to enhancing the national archaeological record, the understanding of the history and changing settlement patterns of south county Dublin and the knowledge of medieval and post-medieval frontier castle life in the area; the implications of further delay or non-completion of the south eastern motorway scheme for the Government's objectives regarding the integrated transportation strategy for the Dublin region set out in the National Development Plan 2000-2006 and the Dublin Transportation Office's, A Platform for Change 2000-2016; the need to realise the full transport service objectives of the M50 in relation to the Dublin area and the radial national routes serving the regions; the objectives of the integrated transportation strategy for the greater Dublin area, including the role envisaged for the M50 in facilitating access to Dublin Port, thereby removing a significant volume of heavy vehicles from Dublin city centre; the significant environmental and safety implications for residential areas along the local road network in the south Dublin area arising out of any further delay or non-completion of the south eastern motorway scheme; the need to maintain commercial and economic activity in the south Dublin area and to provide for the further development of the area; and the potential additional substantial demands on Exchequer funding and the possibility of the loss of EU Cohesion Fund aid previously approved arising out of any further delay or non-completion of the scheme.

In view of all I have explained, the House will acknowledge that the Minister has acted bona fide and in the public interest in this matter and that his order should be allowed to stand. I repeat that it is a matter for either House of the Oireachtas to annul the order made by the Minister on 23 July. That must be done with 21 sitting days.

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