Andrew Muir
North Down · Alliance Party · Northern Ireland
“Thank you very much, Mr Deputy Speaker. As Minister, I am grateful to the Chair of the Agriculture, Environment and Rural Affairs Committee and to Members from all sides of the Chamber for their consideration of the Bill and their contributions to the debate, which have been valuable and useful.”
“I will write to you with regard to your query. <BR /> <BR />The other issue, as I said, is reporting pollution incidents so that they can be effectively investigated. There is a duty on everyone to do that promptly.”
“Aquaculture provides real economic opportunities, and the Bill will help ensure that those opportunities are realised responsibly without compromising the environment. Importantly, the Bill includes transitional provisions so that existing licences can continue seamlessly as aquaculture licences, with their conditions unchanged.”
“That is not about being punitive for its own sake; it is about ensuring that the legal framework reflects the true value of our natural resources and the importance of protecting them for future generations.”
“<BR /> <BR />On strengthening the regulation of inland waters, the Bill modernises long-standing powers under the Fisheries Act (Northern Ireland) 1966, ensuring that they are fit for today's environmental and industry challenges. That matters because fisheries management today goes far beyond simply catching fish.”
“<BR /> <BR />A full regulatory impact assessment of the financial impact has been completed. It concluded that the Bill does not introduce significant new financial burdens and that any costs are outweighed by the long-term benefits.”
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“It will deliver funding for the capital elements of the policies and proposals for the agriculture sector that are included in the draft climate action plan, and that fund is already established.”
“<BR /> <BR />Over the period 2023-27, capital has and will be invested through the implementation of climate action plan policies and proposals across the Northern Ireland Executive. Not all interventions are new. Some of the costs are already part of the existing programmes and budgets. Section 31 of the Act requires DAERA to:”
“I will reply to you as an MLA. I am very conscious of the advice from the CCC. I am also conscious of the question that was asked because the answer is very specific to that. I will set out the road map that we are presenting for agriculture, which is fundamental to the sustainable agriculture programme, and we are implementing good measures to support the farming community in Northern Ireland. The draft climate action plan does not seek herd reduction, and it is important for me to clarify that point. <BR /> <BR />I will continue. We must act on the substantial evidence that is already available, rather than create new layers of bureaucracy. I reiterate that delaying action will not save money; it will cost us more, economically, socially and environmentally, in the long run.”
“All programmes and projects that are delivered to support the policies listed in the climate action plan are already subject to those requirements. <BR /> <BR />Moreover, the Climate Change Committee's analysis shows that the overall benefits of reaching net zero could outweigh the costs by more than three to one. Its latest analysis shows that, once the impacts on households, businesses and the public purse are added up, a single fossil fuel price spike can cost as much as delivering the entire recommended route to net zero.”
“The research, pilots, enabling frameworks and preparatory work will unlock larger emissions savings in the next carbon budget period. Some of the difficult long-term structural changes that are required to meet our second carbon budget, which is a 48% reduction by 2032, need to begin now if they are to be delivered on time. <BR /> <BR />The motion calls for a new system-wide cost-benefit analysis of all net zero policies: that is neither necessary nor proportionate. All policies of the Northern Ireland Executive are subject to the same set of rules, which seek to ensure that public money is not wasted or used inappropriately. That already includes economic impact assessment screening and, if required, business case development. If a policy action involves the allocation of public money, a proportionate business case will be required.”
“Investing in the development of pedestrian and cycling infrastructure helps to provide healthier, safer and more sustainable travel choices, which ultimately reduces congestion, improves air quality and supports economic productivity. <BR /> <BR />The motion further suggests that some proposals in the draft climate action plan are not quantified. It is correct that not every proposal will show immediate emissions reductions by 2027, but that does not mean that the polices lack value — far from it. If we focus only on what delivers short-term emissions savings, we will fail to meet the long-term legal targets and expose Northern Ireland to even greater economic and social risks from climate impacts. Many early-stage policies are foundational.”
“I am limited in what I can say about the ongoing A5 legal proceedings, which are currently under appeal. However, climate considerations should not be an obstacle to development. Therefore, appealing the judgement is critical, and I am working closely with the Infrastructure Minister on the issue. It is essential that we clarify the interpretation of the legislation so that it can be fully implemented as intended. <BR /> <BR />Active travel investment does not prevent essential road repairs. Spending on maintaining active travel infrastructure is vital and contributes significantly to making our streets safer and more accessible for some of the most vulnerable groups of road users.”
“The Act imposes legal duties on all Departments to provide policies and proposals to meet Northern Ireland's carbon budgets. Those budgets were agreed democratically by the Assembly. The draft climate action plan reflects contributions from all Departments. It is not discretionary work; it is statutory work. If Departments fail to comply with their legal obligations, the consequences are clearly known, and the uncertainty that could arise is also very well known. It would help no one, least of all our farmers, households and businesses that need clarity and direction. <BR /> <BR />The motion also cites the A5 judgement and minimum active travel spending requirements. It is important to be accurate about the legal context and the role of the Climate Change Act.”
“They also have a profound impact on the citizens whom we are here to represent. <BR /> <BR />Analysis has shown that public support for climate action remains strong. The existence of a more polarised and negative discourse is not supported by the evidence. For example, the Climate Change Committee and the Office for Budget Responsibility (OBR) are unequivocal: delaying climate action will cost significantly more than acting early in a planned and proportionate way. The Office for Budget Responsibility warns that climate damages could reduce UK GDP by 8% by the 2070s. Failing to act would undermine the very infrastructure and public services that the motion claims to defend. <BR /> <BR />The motion also calls for the draft climate action plan to be withdrawn.”
“We have made significant progress on Northern Ireland's first climate action plan and have been actively working to establish a just transition commission for Northern Ireland, ensuring that fairness is at the heart of this work. <BR /> <BR />The impacts of climate change are here, and they are unmistakable. Ignoring the crisis will not make those events less frequent or less costly. The fact that we have experienced the wettest January in 149 years, major flooding in Downpatrick and Newry, which impacted on homes, businesses and infrastructure, and storm Éowyn, which alone cost Departments more than £17 million and left hundreds of thousands without power, demonstrates that clearly. Such events disrupt public services, damage infrastructure and place enormous financial strain on departmental budgets.”
“The Act requires that a climate action plan be brought forward every five years, and the Executive are already playing catch-up due to the previous collapse of these institutions. Climate legislation is not something that we can opt in and out of based upon short-term pressures. It is a framework that is designed to safeguard Northern Ireland's social, economic and environmental well-being for future generations. <BR /> <BR />Since taking up office as Minister, I have focused on accelerating delivery. We now have our first three legally binding carbon budgets, interim carbon emissions targets and a new climate adaptation plan.”
“Thank you, Mr Deputy Speaker. <BR /> <BR />I welcome the opportunity to address the Assembly on the motion concerning the delivery of public services and major infrastructure projects and the call for a cost-benefit analysis of net zero policies. At the outset, I need to be absolutely clear that I fundamentally disagree with the central premise of the motion. It suggests that our climate targets are merely aspirational and that the draft climate action plan should be withdrawn. Climate targets are not aspirational; they are statutory. They were passed with overwhelming support by the Assembly. Every Department has a duty to comply with the Climate Change Act. I have no authority to disregard that obligation or withdraw the climate action plan.”
“The Member may not be aware, but that money comes separately. Funding for Windsor framework implementation is ring-fenced. On the £4·9 million from unfilled vacancies, will the Member acknowledge that a good element of responsibility for that sits with the Department of Finance and with Northern Ireland Civil Service HR? We have a situation in which it takes, on average, seven months for me to recruit people to my Department. That needs to be addressed, because it is affecting all areas of the Department.”
“The Member made a statement to the Committee last Monday that the money should be new money. Does the Member intend to table amendments to require it to be new money? How does he intend to clarify the matter? There is a concern, particularly from the Ulster Farmers' Union, about that.”
“A lot of figures have been quoted in relation to suckler cow numbers. Will the Member acknowledge that there has also been an increase in dairy production in Northern Ireland and that we need to take that into account in the wider picture?”
“Will the Member acknowledge the fiscal position that we are in? I have to sincerely outline that to the Department. We have set out the support that we are providing to farmers in SDAs, but we have to be realistic and make sure that we do not pledge to do something that, fiscally, we cannot deliver.”
“I have set out the reasons why I sincerely believe that, in the interests of responsible government and sustainable public finances, I cannot support the Bill. It has been useful to discuss it, and I urge the Bill sponsor to engage with the Department if the Second Stage passes. It is important that, whatever we do here, when we pass legislation, it is good legislation.”
“In closing, I acknowledge that SDA farmers are essential to Northern Ireland's agricultural and environmental future, but sentiment cannot replace sound policy. The Bill presents significant financial, legislative and budgetary risks without a strong evidence base to justify its introduction. Rather than establish a separate ANC scheme, I urge all farm businesses in severely disadvantaged areas to engage fully with the schemes available under the sustainable agriculture programme, namely the farm sustainability payment; the suckler cow scheme; the Farming with Nature scheme; and the soon-to-come sheep support scheme, to maximise support for the programmes that they offer in strengthening farm resilience and delivering positive environmental outcomes.”
“However, those articles were revoked on a UK basis by the Rules for Direct Payments to Farmers (Amendment) Regulations 2020. If the Bill were to pass in the Assembly, my Department would need to introduce a statutory rule via the affirmative draft procedure process to reinstate articles 48 and 49 into direct payments regulation to provide the vires that my Department requires to establish a legal foundation to operate the scheme. Following on from that, a separate SR would need to be introduced via the negative resolution process to legislate for payment rates for an ANC scheme.”
“The vires to operate an ANC scheme were obtained in assimilated law, specifically in articles 48 and 49 of EU regulation No 1307/2013 — the direct payments regulation.”
“We are considering a private Member's Bill. There are no environmental improvement conditions associated with the Bill, which is a matter of great concern for me, and that is what we are responding to now. We are also responding to the fiscal position that we are all acutely aware of. We are all conscious of the need for a multi-year Budget but a Budget that balances, which is something that the Treasury is very focused on. I am also conscious of the range of support that has already been delivered and that we are intending to deliver. I have set that out, and I will just continue to respond to this Bill. <BR /> <BR />With regard to its drafting, the Bill, as introduced, requires amendment to ensure that it is not defective and can be enacted if passed by the Assembly.”
“I will just finish. <BR /> <BR />For example, we are seeking to bring in support for the sheep sector as well. There is also the issue of the financial situation that we are in, which the Finance Minister is acutely aware of, and that, if there were to be any additional Barnett consequentials, it is likely that they would have to be used to cover the overspend in this financial year.”
“I will try to respond to some of that. It is outside the scope of what we are discussing, but I do believe in private Member's Bills. They have a significant role to play. However, I also have to outline my views sincerely, as Minister, on this Bill with regard to the range of support that we are already providing.”
“Thank you, Nuala, for your intervention. If the Bill passes Second Stage and completes its passage through the House, it will likely be for the Minister in the next mandate to take forward its implementation. The easiest thing for me to do as Minister would be to say that that will be for someone else to deal with. However, I am concerned about people's confidence and trust in these institutions, and we have to be conscious of future liabilities, the issues that I have set out and the fact that passing the Bill and getting Royal Assent is not resolving the issues. We cannot defer the financial liabilities that arise from the Bill, and we need to be debating and voting on this legislation in that context.”
“<BR /> <BR />As Minister, and I say this sincerely, it is important that we all take a responsible position on this private Member's Bill given the severe public expenditure challenges that we face, including the forecast overspend in this financial year. It would be irresponsible to pass at Second Stage a private Member's Bill that creates a potential new funding pressure of £11 million a year whilst, at the same time, the Assembly is passing another piece of legislation to defer hospital car parking charges due to the cost implications of £7 million a year. <BR /> <BR />With regard to drafting, I should inform Members that the Bill —.”
“The Treasury is also doing an open-book exercise in each Department to understand the scale of the financial issues in the Executive. <BR /> <BR />At the AERA Committee session on 16 March 2026, the Bill sponsor stated that the funding for an ANC scheme should not be drawn from the Executive's earmarked budget for agriculture, agrienvironment, fisheries and rural development. I am not sure how the Bill's sponsor can make that statement. Does he, perhaps, intend to table amendments at Consideration Stage to legislate for that commitment? I would be grateful for clarity on that in his response to the debate.”
“If I had an additional £15 million? There are a range of pressures in my Department. I want to support the agriculture community, and we are seeking to do many things, particularly around sheep support. There are pressures across the Department in relation to the environment, water quality and air quality. <BR /> <BR />The current draft Budget is dire for my Department. We will struggle to deliver statutory services. If we were to add pressures, more issues around the Department fulfilling its statutory functions would be likely to emerge. I need to be honest with people about that. Those are the pressures that we are sitting with. A draft Budget is out for consultation, but it does not take into account the overspend in this financial year, and it is not clear how that will be addressed.”
“Reference was made to this financial year. In this financial year, the focus of all Departments is on minimising the scale of that overspend. My Department seeks to do that. <BR /> <BR />Based on all the analysis that I have set out, my sincere advice is that there is no compelling value-for-money case for reinstating an ANC scheme. I understand that UFU support for the Bill is conditional on sourcing new moneys to fund it, but I am not sure how that can be assured.”
“<BR /> <BR />The previous ANC scheme operated under the Northern Ireland rural development programme, as I outlined, and the common agricultural policy, and it was not funded from pillar 1. Under the sustainable agriculture programme, however, support comes from the Executive's earmarked agriculture and agrienvironment budget. Under the Bill as drafted, funding provision for the new ANC scheme would also come from that budget. It would therefore require FSP funds to be redirected, thereby reducing overall farm sustainability payments. There is no provision in the Finance Minister's draft Budget for new money for a new ANC scheme. On the contrary, we are due to overspend in this financial year, and we have an obligation in the years ahead to pay back the reserve claim that was required to deal with the pressures.”
“If that were to be funded from the earmarked budget for agriculture, agrienvironment and rural affairs, it would force a further reduction in FSP entitlement values for all farmers, including those in SDAs. That would be on top of the £19 million that was already transferred to those areas through the move towards flat-rate entitlement values. <BR /> <BR />The Bill calls for funding to be based on, at least, that of the ANC scheme in 2018. A new scheme based on 2018 rates and the 2025 retail price index would cost approximately £11·4 million each year. With inflation-linked increases being mandated, funding would grow year-on-year, unlike any other agriculture support schemes.”
“In 2018, the same exceptional approach was required, and there was a further ministerial direction, with reduced funding of £8 million. Crucially, despite the scheme ending, SDA farmers have not seen their support being diminished. The transition to flat-rate entitlements under pillar 1 shifted significant direct payment funding from dairy, lowland cattle and sheep and mixed farms into the SDA. Since 2018, incomes for SDA cattle and sheep farms have remained stable, and the distribution of livestock across regions has not materially changed. The £19 million annual shift, which was created through the flat-rate transition, remains a recurring and substantial benefit to SDA farmers. <BR /> <BR />The Bill would create a legal requirement on my Department to establish a new ANC scheme, regardless of affordability or competing priorities.”
“The proposed support will help farmers manage such areas effectively while delivering strong environmental outcomes. Activities may include maintaining vegetation through well-planned grazing regimes and suitable stocking densities, and reducing the risk of wildfire by limiting the accumulation of combustible materials. <BR /> <BR />The House will recall that an ANC scheme operated here in 2016 and 2017 under the EU rural development programme, supported by £20 million a year. It proceeded only under ministerial direction, because it did not meet the standards of 'Managing Public Money'. A review of the ANC scheme and subsequent consultation on future support to ANCs was carried out in 2016, with affordability being a central question.”
“With around 45% of Northern Ireland's suckler cows located in SDAs, the suckler cow scheme alone has the potential to deliver over £6 million in support for those areas. Although I recognise that there is currently no stand-alone support for the sheep sector, my officials have commenced work on developing evidence-based proposals under the sustainable agriculture programme for support for the sheep sector. A stakeholder working group, which includes industry and non-governmental organisation representatives, has identified key areas of need, which are now being taken forward for future development. I plan to announce more on the development of support for the sheep sector later in the year. <BR /> <BR />The Farming with Nature package will provide targeted support for farmland in designated areas, for priority habitats and for species.”
“As part of the sustainable agriculture programme, or SAP, the farm sustainability payment, or FSP, was introduced this year, replacing the farm sustainability transition payment, or FSTP, which delivered £247 million in 2025, including approximately £100 million to farms in SDAs. The FSP is now the core support mechanism for all farm businesses, providing resilience against external shocks whilst encouraging improved environmental management and efficiency. <BR /> <BR />Farmers in SDAs also have access to additional support through the beef sustainability package, including the suckler cow scheme and the Farming with Nature package, which provide income support alongside environmental improvements, emissions reductions and productivity gains.”
“As the agricultural census of 2025 makes clear, such areas account for 45% of suckler cows, 16% of dairy cows and 58% of breeding ewes. <BR /> <BR />The sustainable agriculture programme provides targeted support that is designed to meet Northern Ireland's specific needs, delivering environmental benefits while supporting the agri-food sector. The programme has been co-designed with agriculture and environmental stakeholders, including hill farmers' representatives, through the agricultural policy stakeholder group, thus ensuring a robust and inclusive development process.”
“I welcome the opportunity to speak to the private Member's Bill. The classification "areas with natural constraints" means land that is designated as being in a severely disadvantaged area, or SDA, in Northern Ireland and was established in the 1970s. Almost half of Northern Ireland's agricultural land — around 448,000 hectares — is in SDAs, which support upwards of 10,000 predominantly beef and sheep farms. Such areas, which are centred in the Mournes, the glens of Antrim, the Sperrins and most of County Fermanagh, are an integral part of our rural landscape. Farmers in SDAs make a vital contribution. They safeguard biodiversity, protect our natural environment and produce high-quality livestock that underpin the wider supply chain.”
“I understand that the farm welfare Bill that the Member referenced is sponsored by Farmers For Action (FFA). Does the Member understand that that would be contrary to the United Kingdom Internal Market Act 2020?”
“The Bill sponsor cited easements. We have an overspend this financial year for which we had to get a reserve claim. Those are not exactly easements; they are pressures in-year. We have not managed to balance our books this year. That money has not been set aside for future years as new money. Will the Member acknowledge that, in the current Budget process, no money has been set aside for it?”
“Does the Member understand that, if a complaint is received by the Department, it needs to be properly investigated? If we did not investigate it, many in the House would say that we had failed in our duty.”
“Will the Member clarify exactly what she is querying when it comes to the Department's regulations and inspections?”
“Would he like to clarify exactly what he meant by that request?”
“I am about to address one of the issues that you raised, Mr Gaston. <BR /> <BR />Mr Gaston raised an issue about AFBI. I am happy to respond on that, which is what I was trying to do in my intervention earlier. In November 2024, an MLA made me aware of concerns that had been raised about AFBI. They did not relate to animal health or environmental compliance issues, and they were passed to the AFBI chief executive to deal with. In June 2025, the chief executive made my Department aware that concerns had been received about animal welfare issues at Hillsborough and that they were being examined. <BR /> <BR />There is one last issue that I want to address. I want to give Mr Buchanan an opportunity to reply to me, if he would like to ask for an intervention. He asked me to "man up".”
“<BR /> <BR />I will respond to two issues that were raised during the debate. First, Mr Gaston —.”
“<BR /> <BR />Northern Ireland is at a crossroads. The decision in front of us is clear: continue with the politics of division and all that it costs or embrace reform and truly deliver for the people of Northern Ireland. Northern Ireland cannot afford to remain the only part of these islands without an independent EPA. Establishing an independent environmental protection agency will deliver stronger and more transparent regulation, consistent enforcement across all sectors, a level playing field for businesses, greater public confidence and reduced long-term environmental and financial costs. I urge all Members, for the sake of nature and the well-being of us all, to get behind reforming the institutions to bring about long-term stability and end the blocks and vetoes that are used far too often.”
“I have been clear that there is a role for the UK and Irish Governments in reforming the institutions. In the Fresh Start Agreement of 2015, it was made clear that, if an item did not appear on the agenda after three consecutive Executive meetings, it should appear on the agenda for a decision. Those are the types of reforms that need to be made so that we can have effective government and effective delivery for the people of Northern Ireland. If those reforms are not made, there are other opportunities, such as through a private Member's Bill for consideration by the Assembly. It is wrong that we should have to consider doing that, because we should be able to deliver something that was in a previous agreement and that is also the will of the House, as was shown by a motion that was passed in November of last year.”
“They include ending the previous administrative statement of regulatory principles and intent (SORPI) arrangement with Northern Ireland Water, preparing the fisheries and water environment Bill and continuing to work on delivery against the Lough Neagh report and action plan. Without Executive agreement on an independent EPA, however, key elements of the wider programme cannot proceed.”
“Your party was not there. It stood outside and campaigned against the Good Friday Agreement. I pay tribute to the people who worked to construct the Good Friday Agreement. Many years on from it, however, we have to realise that some people in the institutions are not working in good faith and there is a need for reform. <BR /> <BR />I will return to the matter of environmental governance. Some Members have asked what progress can be made on the expert panel's report, pending Executive agreement. The Committee has requested an update on progress made against the 32 recommendations, including on what actions are under way, pending Executive consideration of the independent EPA proposals. My officials will brief the Committee on Thursday. I am progressing wider measures to strengthen environmental protection.”
“<BR /> <BR />We cannot build stable government while the foundations of these institutions are not fit for purpose. We cannot risk waiting for yet another collapse or crisis to fix them, because there are no guarantees that we will get another opportunity to show that this place can work. The public are fast losing faith, and they have clearly had enough of the blocks and vetoes that ultimately do not deliver for them. We will never succeed if one minority party — whatever party it is — is able to stall progress. As important as an independent EPA is, this issue is bigger than that; it is about enabling government that can truly deliver a prosperous and shared society for Northern Ireland. We owe it to the spirit of the Good Friday Agreement to embrace change and fulfil the hope and vision for what this place could be.”
“It is now over four months since I outlined the outcome of the independent review to the Chamber, pressing for the need to move forward. I have sought Executive agreement in that regard, but the DUP has deliberately run down the clock. I say this to all those who have campaigned for years for the delivery of an independent EPA: I share your disappointment and deep frustration that our institutions are incapable of delivering it. It is an affront to democracy, which is why I have written to the UK and Irish Governments, asking them to begin a process of reform of these institutions. Following the motion, I will do so again, requesting that the outstanding New Decade, New Approach commitment to establish an independent EPA be implemented.”
“I will continue. <BR /> <BR />An independent EPA would consolidate, not duplicate. Regulatory and monitoring functions would transfer from the Department and the Northern Ireland Environment Agency to the new body. It would not be an additional layer; the existing structures would be replaced with a more effective and accountable model. Environmental governance in Northern Ireland has been chronically underfunded. The panel recommends statutory protections for the EPA's independence and funding. If we want durable, trusted regulation, long-term stable resourcing is essential. <BR /> <BR />I will not address the panel's other recommendations at this stage, except to note that many depend on the establishment of an independent EPA. Unfortunately, they cannot progress until the Executive reach agreement.”