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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“<BR /> <BR />Members have asked about costs. I question whether those concerns are genuine or whether they are a red herring being put forward by a party that does not really care about the environment. As I stated, precise figures would require detailed scoping work, which has not taken place. What is very clear is that we are already paying for inaction. The long-term cost of sites such as Mobuoy and the environmental and economic damage at Lough Neagh demonstrates the price of insufficient oversight and fragmented governance. An independent EPA —.”
“Its 32 recommendations span policy, delivery and governance, but its central recommendation is unequivocal: Northern Ireland should establish an independent EPA as a non-departmental public body with its own board and operational autonomy, sponsored by DAERA. I fully believe that the proposed model would deliver stronger accountability, greater transparency and a more coherent and consistent regulatory system. Importantly, it is a vital step in ensuring that we learn the lessons of Lough Neagh and put nature firmly on the road to recovery. <BR /> <BR />Securing Executive approval would have allowed detailed policy development and for the business case to proceed. It also would have enabled us to finalise regulatory and institutional design. Sadly, however, it looks as though none of that work will be realised.”
“The independent panel has delivered a comprehensive road map for better environmental governance, and I have brought those clear proposals to the Executive, asking for their support for the establishment of an EPA. <BR /> <BR />The evidence is not in dispute. The only barrier now is, frankly, the undemocratic unionist party. My question for the DUP is, having supported 'New Decade, New Approach', "What has changed?". It is certainly not the state of our environment, which suffered enormously when it managed the relevant Department in previous years. <BR /> <BR />Our environmental dashboard is flashing red. I therefore urge all Members to consider fully the detailed independent panel's final report, which was published on 21 October last year.”
“Thank you, Mr Deputy Speaker. <BR /> <BR />As I was saying, in November 2024, I appointed the expert independent panel, led by Dr Viviane Gravey of Queen's University and supported by Diane Ruddock, a National Trust retiree, and John McCallister, a representative of the Ulster Farmers' Union. The panel was tasked with carrying out a review of environmental governance in Northern Ireland to assess the adequacy of current arrangements and provide recommendations for improvement for my consideration, taking into account the very changed landscape post EU exit. I put on record my sincere thanks to Viviane, Diane and John for carrying out an extensive and complex review as expert individuals.”
“We are looking to alleviate the issues, as I was doing today on the emissions trading scheme; that is what we are focused on. 'New Decade, New Approach' promised that the Executive would:”
“Through motions passed in 2020 and 2025, the Assembly has repeatedly endorsed the principle of an independent EPA. We also had the New Decade, New Approach agreement of 2020, which was endorsed by the DUP.”
“From the 1990 Rossi report to the present day, each review and report has called for an independent EPA and reached the same conclusions: chronic under-resourcing, insufficient independence and a persistent gap between Northern Ireland and the rest of the United Kingdom and Ireland in environmental performance and compliance. Despite that, we remain the only jurisdiction in the United Kingdom without an independent environmental protection agency. That position is not tenable. It is not only about doing what is right by our environment but doing what is right for our communities that rely so heavily on our environment. It is about ensuring that protections are in place so that an environmental catastrophe on the scale of Lough Neagh can never occur again. It is a question of democracy and delivering on our promises.”
“Tonight's motion on establishing an independent environmental protection agency is not simply a tick-box exercise; it is a test of our resolve to protect public well-being, restore our natural environment and uphold our promises to the people of Northern Ireland. <BR /> <BR />From the outset, I reiterate clearly my firm commitment to establishing an independent environmental protection agency. The evidence is clear, the need is urgent, and the public expect progress. Northern Ireland's environmental governance challenges have been known about for over 30 years.”
“<BR /> <BR />I am conscious that communities are suffering now from the environmental degradation of Lough Neagh — from drinking water to lost livelihoods, as you set out, Eóin. Our constituents are rightly demanding action. For more than three decades, report after report has delivered the same message: Northern Ireland's environmental governance arrangements are not fit for purpose and do not deliver what people and nature deserve. We are witnessing the consequences of that. Look at the blue-green algae in Lough Neagh, the illegal dump at Mobuoy, the wildfires in our countryside and more. It is not just about nature; it is about the communities that are suffering.”
“I welcome the Earl of Shaftesbury's support for an independent environmental protection agency. I also welcome his willingness to transfer the bed and soil of Lough Neagh to community ownership without charge. The conditions associated with that will need to be clarified; I have heard a lot about what those could be, and it is important that they are clarified. I will be seeking a meeting with the Earl of Shaftesbury to get clarification. Transferring ownership of the bed and soil to community ownership has lots of challenges. For example, who is the "community"? I welcome the initiatives being taken forward by many organisations around this, because it is something that we want to explore.”
“Thank you, Mr Deputy Speaker. I welcome today's debate, and I commend my colleagues for tabling tonight's motion. The Assembly faces a defining decision about the kind of leadership that we choose to show in Northern Ireland. Are we an institution that believes in the stewardship of our environment, or do we shirk our responsibilities? Are we an institution that respects the democratic will of the House, or do we abide obstructionism? Do we, as an institution, fulfil our promises to the public, or do we break them? Lough Neagh shone a spotlight on our environment like never before. Make no mistake about it: the public are watching.”
“Sorry: you said about giving money to Northern Ireland Infrastructure. I do not know that body, but perhaps you would clarify that. <BR /> <BR />On your issues with regard to AFBI, I am aware of concerns raised through an MLA about AFBI in November 2024. It did not relate to animal health or to —”
“Does the Member support my moves to end the bye ball that has been afforded to Northern Ireland Water?”
“Does the Member accept that there is a massive contradiction in his point? His own Education Minister is seeking to set up an arm's-length body for controlled schools, yet he is arguing against the creation of an arm's-length body because he says that he does not believe in having any more.”
“Thank you, Matthew. On what basis do you make the assertion that I did not ask for that to be included in the Programme for Government?”
“The Member will recall that, at Question Time yesterday, I outlined that we had consulted on Mobuoy. The response to the consultation will be published this week, and I will engage with elected representatives for the area about the response to that and the way forward. It is important for you to accept that that is the way forward on the issue.”
“It will allow the maritime sector to choose the most effective way to reduce emissions, supported with £448 million of UK Government funding through the UK shore programme. As Minister, I will continue to work closely with the Finance Minister and our respective officials to explore potential fiscal opportunities for Northern Ireland as a result of our participation in the emissions trading scheme. There is a significant opportunity here for us to link the UK ETS and EU ETS schemes and address the concerns about CBAM that are often raised with us. I urge Members to look at the broader picture of the challenges that we have faced as a result of Brexit, to focus on solutions and to support the Order.”
“The draft Greenhouse Gas Emissions Trading Scheme (Amendment) (Extension to Maritime Activities) Order 2026 will extend the scope of the UK ETS to include emissions from the domestic maritime sector. That has been well trailed for a number of years. Extensive consultation and engagement has taken place on it. <BR /> <BR />The UK emissions trading scheme has proven to be one of the most effective tools in reducing greenhouse gas emissions from high-polluting sectors. The Order, if approved, marks a vital next step in developing effective proposals for expansion of UK ETS, increasing the level of emissions that will come under the scheme and helping to shape the future of UK ETS in a way that supports the long-term decarbonisation strategy of both Northern Ireland and the United Kingdom.”
“I want to continue. Matching maritime scope is a requirement for linking to the EU ETS and for mutual CBAM exemptions. We therefore must adopt a wider perspective for the maritime issues in hand. A firm ETS link is the only path to CBAM-free trade between the UK and the EU. Numerous businesses and industrial stakeholders have been calling for alignment between the UK ETS and the EU ETS for some time. In advance of the UK-EU summit on 19 May 2025, a letter calling for the strengthening of UK-EU cooperation through linking the UK ETS and the EU ETS was supported and signed by 52 organisations. Organisations that signed the letter included the CBI, the Northern Ireland Chamber of Commerce and Industry, the British Irish Chamber of Commerce, Energy UK and SSE. <BR /> <BR />There is a wider issue to be considered.”
“It would avoid significantly higher costs and admin burden for businesses and consumers in Northern Ireland and across the rest of the United Kingdom. Taking into account the benefit of linking the two emissions trading schemes, combined with the sanitary and phytosanitary agreement, the benefit to the UK economy would be almost £9 billion by 2040.”
“Linking the UK and EU emissions trading schemes offers us clear benefits, and there will be impacts from CBAM if we do not do so. If the CBAM exemption is not achieved, there will likely be a much greater impact, especially for industry, manufacturing and construction, than the inclusion of maritime emissions within the scope of the UK ETS. <BR /> <BR />The UK ETS maritime legislation will apply only to emissions associated with the transporting of goods by ship. Transport costs are a small component of the final price of goods. Securing a CBAM exemption would remove a major trade barrier for £7 billion of UK exports that are currently within the scope of the EU CBAM. Matching maritime scope is a requirement of linking to the EU ETS and to subsequent EU CBAM exemptions.”
“I have outlined the situation with the funding that we have secured to assist us on the decarbonisation journey. I have stated how that links to the wider ambition to join together the UK ETS and the EU ETS, as well as how that links to CBAM. We have to consider those wider issues. It is strange that some people of a unionist persuasion come to the Chamber having not considered the UK's wider ambition to link to the EU ETS. That is something that we need to consider. <BR /> <BR />Brexit has created lots of challenges in Northern Ireland. As Minister, I am seeking to work through those challenges and find solutions to them. As is often the case when I come here with solutions, there are Members who say that they do not like them, yet they do not offer alternatives.”
“I am happy to take your intervention, Mr Buckley.”
“I want to make a bit more progress on how the linkage will come into place. <BR /> <BR />As is standard with emissions trading schemes, once the linkage is in place, there are arrangements for the surrender of allowances and how those are traded, and that will allow operators to adjust. If the Order is made at the March meeting of the Privy Council, which is set for 1 April 2026, it will come into force the day after, so on 2 April 2026. Operators will not be required to surrender any allowances for the 2026 period, nor will they be required to surrender any allowances for the 2027 period until April 2028, so there is sufficient lead-in time. Operators have been able to access guidance and have been able to register since late last year, with over 200 operators already having registered across the UK.”
“Thank you, Mr Deputy Speaker. It is important that, when we are debating things, we use appropriate language in this place. It is important that you set that out. <BR /> <BR />I have set out the situation with regard to the 50% exemption that was secured. It is much better than the situation with the Isle of Wight. A wider issue has to be considered, which is the situation regarding the linking between the UK and EU ETS. We need to be conscious of that.”
“If that is not in place, there is a risk that gaming could occur, and I have set out the situation in that regard. <BR /> <BR />With regard to previous debates on the issue in another place, the Rathlin Island ferry is not included in the scope. If there is a review in the time ahead, it will be important to have two things: the first is a sitting Assembly so that we can scrutinise it; the second is having Ministers in post so that we can make our case as the situation is reviewed in the time ahead. I am very clear that the Rathlin Island ferry is a lifeline ferry and should have an exemption, as has already been set out.”
“Uniquely, the Stena Futura has two rotor sails designed to enhance energy efficiency and deliver fuel savings. Stena Connecta also operates between Belfast and Heysham. As my colleague Mr Blair outlined, Stena Line currently charges environmental fees. I have looked those up, and we need to be conscious of that. <BR /> <BR />On the issue of the Scottish ferries, we all know that the situation that applies to Northern Ireland is different. Northern Ireland is much larger than the Scottish islands. We secured a 50% exemption for Northern Ireland. The ferry for the Isle of Wight, which, as far as I am aware, is part of the United Kingdom, will have to pay 100%. Therefore, a dispensation has been given to Northern Ireland. We all know that it is currently 50% between GB and the Republic of Ireland.”
“I will seek to address that. The Committee has been briefed on that. The situation will come into place, but there will be a phased implementation of ETS, and people need to be aware of that. <BR /> <BR />I will finish my point about decarbonisation. I am pleased to note that Stena is now operating its groundbreaking Stena Futura vessel, which is the first roll-on roll-off ship equipped with multi-hybrid solutions, enabling it to operate on battery power, biofuel and methanol and to utilise battery propulsion and shore power when available. It currently operates on the Belfast to Heysham route. Stena has also launched the Stena Connecta, which uses a multi-hybrid propulsion system, enabling the use of battery power, biofuel and methanol.”
“Northern Ireland operators can approach decarbonisation through efficiency upgrades and new technologies or by whatever means they deem appropriate for their own circumstances.”
“In addition, Belfast Harbour Commissioners has recently concluded a public consultation on its draft master plan, with the final master plan due to be published in May. It aims to invest in shore power and to support partners to decarbonise. I am fully supportive of the commitments to sustainability made by Belfast Harbour Commissioners in the draft master plan. I met its representatives last week in regard to that and, in particular, to their proposals to develop shore power, and I am pleased to note that a tender process has already commenced. <BR /> <BR />In the short term, operators can reduce their ETS costs through fuel efficiencies. The ETS also means that operators can choose the lowest-cost way for them to invest in decarbonisation. It does not mandate specific technologies.”
“I am also pleased to note that £90 million has been made available for projects in Northern Ireland under the UK Shipping Office for Reducing Emissions scheme, including a project to demonstrate a fully electric crew transfer vessel in Belfast harbour and feasibility studies for a zero emissions shipping corridor between Northern Ireland and England, involving trials at Larne harbour.”
“Analysis from the EU shows that, in real terms, it could increase the price of a pair of shoes by a maximum of 80 cents, a banana by 0·8 cents and a TV by 10 cents. There is a clear understanding that this has already been introduced by the European Union, analysis has been undertaken on it and there are options for decarbonisation. <BR /> <BR />It is important that we address the decarbonisation options. I am pleased to note the strides being made by industry in the decarbonisation of the maritime sector, with ships capable of operating on low-carbon fuels and making use of modern wind propulsion technologies now operating from Belfast. I fully support the plans being made by Belfast Harbour to introduce shore power.”
“I can give you certainty on two things: the reality of climate change and the impact that it is having in Northern Ireland and more broadly and the fact of our reliance on fossil fuels. We see that playing out today in how the conflict in the Middle East has increased the price of fuel and will push more people into fuel poverty. That is why we need to reduce our reliance on fossil fuels. The analysis that I have set out was based on a full cost pass-through worst-case scenario. Therefore, the actual cost impact could be much less. <BR /> <BR />The outcome of the impact assessment is supported by the emerging analysis that has been completed on the EU scheme, which is already in place, and indicates that there will be minimal impact.”
“At my Department's request, the UK ETS Authority also undertook additional internal analysis during policy development to understand the potential impacts on Northern Ireland. The analysis shows that the impact is expected to be minor. The analysis suggests that the additional cost on Northern Ireland imports could be equivalent to 6p per ton of agricultural feedstocks, such as barley, and less than a penny per litre of fuel. That is expected to lead to an increase of less than 1% in the final prices of those case-study goods.”
“We see the impacts in terms of fuel prices and the need to decarbonise across society. <BR /> <BR />The Government will continue to work with industry to support the development of the infrastructure and technologies that are needed to facilitate decarbonisation. The emissions trading scheme has a proven track record of supporting decarbonisation across high-emitting sectors. There has been a 55% reduction in emissions in the trading sector alone. <BR /> <BR />With regard to the associated impacts associated, I will address a number of the points that were raised and how those impacts were considered. A full impact assessment that considered the impacts on the whole of the UK, including Northern Ireland, was published alongside the main authority response in November 2025.”
“I will address the Scottish model in my comments <BR /> <BR />When it comes to being a driver of decarbonisation, this policy is about cutting emissions and getting the incentives to drive investment in a cleaner economy. The scheme drives the market to reduce emissions where that is most cost-effective without prescribing specific technologies in any sector. For maritime operators, the scheme provides a clear price signal that supports investment in cleaner vessels, operational efficiency, emerging low-carbon fuels and modern wind propulsion. We have seen that, for example, in the Stena Line ships that have recently been deployed and the fact that shore power will be deployed in Heysham this year. The UK ETS will work alongside other policies that, together, will deliver decarbonisation of the sector.”
“<BR /> <BR />As has been outlined previously, if the instrument is not passed by the Assembly, it falls everywhere. The Order in Council cannot be made without the agreement of all UK Administrations. We need to be conscious —.”
“In making a winding-up speech on the debate, I will try to cover a couple of the points that have been raised. The Department has kept the Committee for Agriculture, Environment and Rural Affairs updated on the maritime ETS. On 27 November 2024, the Committee was informed of the UK ETS scope expansion consultation in respect of the maritime sector. On 18 July last year, the Committee was advised about the interim consultation response. On 25 November, it was advised of the main consultation response and publication of the UK ETS international maritime consultation. Officials have also engaged with the Committee this month and last month. There has been engagement on this. The issue has been discussed for a long period. It should come as no surprise that it has come to the Assembly today.”
“Does the Member agree that there are examples in Northern Ireland of the decarbonisation of maritime transport, one of which is Artemis Technologies? We have to be conscious of the fact that decarbonisation can and should be done.”
“<BR /> <BR />I am pleased to note the strides that have been made by the industry in decarbonising the maritime sector, such as the introduction of multi-hybrid vessels and proposals to develop shore power. I am encouraged that such innovative advancements are indicative of the sector's commitment and capacity to continue to progress maritime decarbonisation. I am also working closely with the Finance Minister and our respective officials to explore potential fiscal opportunities for Northern Ireland as a result of our participation in emissions trading schemes. Accordingly, I commend the draft Order to the House.”
“In addition to the immediate changes that maritime participants can make in relation to their operating practice, decarbonisation efforts will be supported by £448 million of funding that will be made available by the UK Government through the UK Shipping Office for Reducing Emissions (SHORE) project. I have secured agreement from the UK Government's Department for Transport to ensure that a Northern Ireland-specific event is held that will drive local engagement on the recently announced additional £271 million boost to shipping and coastal communities. I will continue to work with the UK Government to support the Northern Ireland maritime sector to secure good outcomes from that opportunity.”
“That understanding stipulates that the maritime sector, among others, should be in the scope of a linking agreement. Linking should create the conditions to facilitate mutual exemptions from the EU and proposed UK carbon border adjustment mechanisms (CBAMs). <BR /> <BR />I believe that the extension is necessary to incentivise decarbonisation of the maritime sector. The UK emissions trading scheme's inclusion of the maritime sector has been consulted on extensively and clearly signposted over a number of years. Its introduction is both well trailed and entirely expected by stakeholders and those impacted. Over 200 operators have already registered their details with regulators.”
“Government non-commercial maritime activity is fully exempted from UK ETS. Exemptions will be reviewed as part of the review in 2028, which will look at wider socio-economic impacts of the expansion and the ability of various sectors to decarbonise. The allowance cap will be increased in line with predicted emissions for the maritime sector for the remainder of phase 1 of UK ETS. That will ensure that an undue burden will not fall on existing scheme participants while maintaining a net zero trajectory. <BR /> <BR />As announced at the UK-EU summit on 19 May 2025, the UK and the EU have agreed to work towards linking the UK ETS and EU ETS, the parameters of which are set out in the common understanding text agreed following the summit.”
“The inclusion of offshore vessels in the UK ETS will be delayed until January 2027, which aligns with the position for offshore vessels in the EU, helping to avoid the risk of gaming created by any policy divergence or misalignment. <BR /> <BR />An exemption will be provided for ferries serving Scottish islands and peninsulas due to the legal duties imposed by the Islands (Scotland) Act 2018 on the Scottish Government to consider the vulnerability of small island populations and their reliance on the mainland for lifeline services such as emergency healthcare and education. An exemption is also provided for vessels in the fishing sector, which mirrors the EU position and will ensure that Northern Ireland fishing vessels will not be disadvantaged against those operating out of Irish ports.”
“The future inclusion of international maritime emissions in UK ETS, as referenced in the common understanding from the UK-EU summit on 19 May and on which a UK-wide consultation has recently concluded, will subsequently ensure parity in the Irish Sea and remove the need for the partial exemption. <BR /> <BR />A full impact assessment has been undertaken alongside the draft Order, and further analysis, at my Department's request, was conducted by the authority looking specifically at the potential impacts on Northern Ireland across cruise ships, passengers and cargo. The analysis indicated that the impact on Northern Ireland consumers is expected to be minor. The findings from the analysis are supported by emerging data from the EU, which has included maritime emissions within scope since 2024.”
“<BR /> <BR />The draft Order sets out that the obligation to comply with UK ETS should be applied to the registered owner of the vessel, except where the responsibility has been delegated by a legally binding agreement. Significantly, I have secured, as an interim measure, a 50% partial exemption from UK ETS obligations for emissions from routes between Northern Ireland and GB. That will ensure parity with routes between the Republic of Ireland and GB, which are already subject to 50% emissions coverage under EU ETS, and it has been welcomed by stakeholders. It should also help to mitigate any potential cost impacts on consumers in Northern Ireland.”
“The majority of ships of that size are already equipped for collecting and reporting emissions data, which should facilitate a smoother transition for operators. Small local ferries, such as the Rathlin Island ferry and the Strangford lough ferry, will not fall into the scope, as they are well below that threshold, contrary to previous comment around this. Emissions of methane and nitrous oxide, as well as carbon dioxide, will be included within scope. The same regulatory regime will apply to the maritime sector as applies to the rest of the UK ETS, including the definition of scheme year and reporting and surrender deadlines.”
“<BR /> <BR />I will now outline the main provisions of the draft Order. It defines domestic journeys as voyages travelling from one UK port to another, as well as voyages that start and end at the same UK port. It also includes emissions within a voyage, including while at anchor and while moored. It will also include all import emissions comprised of emissions at berth in UK ports and emissions from movements in UK ports from ships travelling domestically, internationally or both. The threshold for inclusion in the scheme will be vessels of 5,000 gross tons and above. The same threshold is already used for existing monitoring, reporting and verification regimes in the UK and internationally.”
“Executive colleagues and Committee for Agriculture, Environment and Rural Affairs colleagues have been kept fully informed throughout the process. <BR /> <BR />The Greenhouse Gas Emissions Trading Scheme (Amendment) (Extension to Maritime Activities) Order 2026 was laid under the draft affirmative resolution procedure before both Houses of Parliament, the Scottish Parliament, the Welsh Senedd and the Northern Ireland Assembly on 13 January 2026 under the UK Climate Change Act 2008, which requires that the Order be laid in draft and debated in each legislature where it is to have effect. So far, the Order has been debated and approved in the Scottish Parliament, the Welsh Senedd and the House of Commons. If it is approved, the Order will extend the scope of the UK ETS to domestic maritime emissions.”
“Its inclusion in the scheme will strengthen the incentives to adopt low-carbon fuels and support the deployment of fuel-efficient technologies and practices. The policy is expected to deliver a UK-wide net emissions reduction of approximately 645,000 tons of carbon dioxide equivalent over the next 20 years. That reduction will have associated air quality benefits. <BR /> <BR />Alongside my counterparts in England, Scotland and Wales, I agreed to the content and subsequent publication in July 2025 of an initial interim response to the consultation to allow maritime operators and regulators time to prepare for the requirements of the scheme. In November 2025, I agreed to the content and publication of the main response, which outlined the remaining provisions to be included in the draft Order.”