Download (GHG) mitigation within the Agriculture and Forestry

A discussion document
on the potential for Greenhouse Gas (GHG)
mitigation within the Agriculture and Forestry
sector
Public consultation
in preparation for the agriculture sector contribution to the national mitigation plan under
the Climate Action and Low Carbon Development Bill 2015
Climate Change and BioEnergy Policy Division
January 2015
1
Table of Contents
ACRONYMS/ABBREVIATIONS
4
FOREWORD
5
1.
7
INTRODUCTION
1.1 Greenhouse Gas Emissions Profile for the Agriculture Sector
2. BACKGROUND CONTEXT
8
10
2.1 The UNFCCC and its Kyoto Protocol
10
2.2 Consideration of Metrics
11
2.3. EU Climate and Energy Package 2008
12
2.4. Proposed 2030 Climate and Energy Policy Framework
13
2.5 The National Policy Position
15
2.6 The Climate Action and Low Carbon Development Bill
15
2.7 Scope of the national mitigation plan
15
2.8 Challenges for the sectors
2.8.1 Agriculture:
2.8.2 Forestry:
2.8.3 Renewable Energy:
16
16
18
18
2.9 EPA Reporting
20
2.10 Marginal Abatement Cost Curve (MACC) for Irish Agriculture
2. 10.1. Abatement potential for agriculture
2.10.2. Abatement potential from farm afforestation
20
20
21
3. MITIGATION AND THE AGRICULTURE SECTOR
23
3.1 Introduction
23
3.2 Key Policies and Drivers for the Agriculture Sector
A.1 Food Harvest 2020
A.2 The Food Harvest 2020 Environmental Analysis Report.
B Common Agricultural Policy Reform 2014-2020
C. The Bioenergy Plan
24
24
25
26
27
3.3 Agriculture Sector Mitigation Action Plan
28
2
3.3.1 Agriculture Sector Mitigation Actions up to 2020
Rural Development Programme (RDP) 2014-2020
3.3.2 Outline of Mitigation Actions
3.4 Measure Report Verify
4. THE FORESTRY SECTOR
28
28
32
37
40
4.1 Introduction
40
4.2 Climate change mitigation and Irish forestry
41
4.3 Key Policy drivers for the Forestry Sector
A. EU Forest Policy
B. National Forest Policy
C. Forests, products and people - Irelands forest policy – a renewed vision
D. Irish Forests and Renewable Energy
E. Irish National Biodiversity Plan
42
42
42
43
44
45
4.4 Forestry Sector Action Plan 2014-2020
4.4.1 Introduction
4.4.2 Create new woodland to capture carbon and increase the level of forest cover
4.4.3 Increase the supply of forest based biomass
4.4.4 Support private forest holders to actively manage their forests
4.4.5 Enhance the environmental and social benefits of new and existing forests
4.4.6 Summary of Action Plan 2014 -2020
45
45
46
47
48
50
52
4.5 Measure, Report, Verify (MRV)
53
5.
CHALLENGES TO 2050
57
5.1 The challenge to 2050
57
5.2 The Emissions Gap
57
APPENDIX NO. 1 Research Initiatives
65
REFERENCE NOTES
70
3
Acronyms/Abbreviations
CDM
Clean Development Mechanism
DAFM
Department of Agriculture Food and the Marine
EPA
Environmental Protection Agency
ESD
Effort Sharing Decision
ETS
Emissions Trading System
FH2020
Food Harvest 2020
GHG
Greenhouse Gases
IPCC
Intergovernmental Panel on Climate Change
JI
Joint Implementation
NESC
National Economic & Social Council
OECD
Organisation for Economic Co-operation and Development
UNFCCC
United Nations Framework Convention on Climate Change
4
FOREWORD
The Department of Agriculture, Food and the Marine, and its agencies have being working hard
to ensure the long term environmental sustainability of the Irish agricultural and forestry sector.
The challenge facing our sector is immense because we have to produce extra food to feed a
growing global population while respecting the environmental limits of the planet. It is not
acceptable to sacrifice the future to the needs of the present by producing food in a way that
degrades our soil and water, destroys our biodiversity and exacerbates climate change.
It is clear that the “sustainable intensification” of food production – that is producing more food
while respecting and enhancing the environment - is the way forward. Ireland has been a
champion of this approach for several years in the EU and internationally. In October this year,
as part of its conclusions on a 2030 Climate and Energy framework, the European Council
recognised that “the multiple objectives of the agriculture and land use sector, with their lower
mitigation potential, should be acknowledged, as well as the need to ensure coherence between
the EU's food security and climate change objectives”.
This followed a great deal of work from across Government departments, in terms of
engagement with the EU institutions and represents a very significant development in the
thinking and approach of the EU in relation to formulation of future ambition policy for the
agriculture, land and forestry sector.
In the Programme for Government a commitment was given to publish a Climate Change Bill to
provide certainty surrounding Government policy. This Bill was published on 19th January 2015
and will provide for the submission of National Low Carbon Transition and Mitigation plans and
National Climate Change Adaptation Frameworks to the Government.
Ireland will also continue to seek a coherent approach to the twin challenges of climate change
and food security at international level. At the UN Climate Summit in New York on 23rd Sept
2014 Ireland also signalled its intention to join a new voluntary global initiative - the Alliance on
Climate Smart Agriculture – which aims to bring together Governments and other stakeholders
around the three pillars of climate smart agriculture:



sustainably increasing agricultural productivity and incomes;
adapting and building resilience to climate change;
reducing and/or removing greenhouse gases emissions, where possible.
The role that forestry plays in contributing to climate change mitigation is often
underestimated. This is why securing recognition of the role that our forests play in carbon
sequestration at the European Council in October was so significant. This is very important for
Ireland as afforestation is a major greenhouse gas mitigation measure that we are taking on
agricultural land.
We are supporting a range of research initiatives, at national and international level, on many
dimensions of sustainable agriculture. Our department has three competitive research funding
programmes; Stimulus on agricultural production, FIRM on food and CoFoRD on Forestry
5
research. Sustainability and Resource efficiency were key themes for recent research awards
under all of these programmes
We intend to do much more and with our natural advantages, and the quality of our agricultural
research, we should seek to be the global leader in sustainable food production. This is not to
say the task will be easy. We will face challenges, but we have done much already and can do
much more.
This discussion document aims to stimulate thinking from the public and interested
stakeholders on the very important area of mitigation in the agriculture and forestry sector.
Submissions are invited to help to inform the preparation of a sectoral mitigation plan which will
in turn feed into a national mitigation plan.
Submissions should be provided by email to [email protected] by Monday
23rd March 2015.
Climate Change & Bioenergy Policy Division
19th January 2015
6
1. Introduction
Climate Change is one of the major challenges of our generation, and is in large part attributable to
human activity. Human influence has been detected in warming of the atmosphere and the ocean,
in changes in the global water cycle, in reductions in snow and ice, in global mean sea level rise, and
in changes in some climate extremes. This evidence for human influence has grown since the Fifth
Assessment Report of the IPCC i. ‘Warming of the Climate System is unequivocal and some
observed changes are unprecedented on time scales of decades to millennia. Changes have been
widely observed on land, in the oceans and in the atmosphere. The human influence is clear’, IPCC
AR5 WG1, 2013.
Over the past centuries the burning of fossil fuels, land use change, agriculture and industrial
activities has increased the concentration of greenhouse gases such as carbon dioxide ((CO2),
methane (CH4) and nitrous oxide (N2O) in the atmosphere. This has increased the global average
temperatures by just under one degree Celsius and is causing changes in weather patterns, impacts
on natural and managed systems and sea level rise. We still don’t know the details of how these
changes will affect Ireland, but we know that we need to act responsibly and prepare for the future.
We must plan for a different climate and our generation needs to respond quickly if we want to
protect our prosperity and quality of life.
The OECD (2012) estimates that by 2050 the world population will reach nine billion, 70% of whom
will live in urban areas. Demand for food, water and land will increase and also place further
pressures on the environment. Challenges such as air pollution, transport congestion, management
of waste and water will be magnified. We have a dilemma because agriculture not only contributes
to climate change but will also be very seriously affected by it.
Agriculture and land use change is already responsible for 24% of the world’s emissions. In Ireland
agriculture alone is responsible for 32% of national emissions. This figure reflects the huge
importance of agriculture to the Irish economy and the significance of the livestock industry. On the
other hand the forest sector, through afforestation, the use of forest-based biomass and wood
products offers considerable scope for climate change mitigation and has a role to play in
adaptation measures such as reducing flood risks.
The IPCC 5th Assessment report released in spring 2014, illustrated that agriculture, forestry and
other land use (AFOLU) is responsible for 24% (10–12 GtCO2eq/year of man-made GHG emissions
in 2010) of the world’s emissionsii. In Ireland agriculture alone is responsible for 32% of national
emissions. This figure reflects the huge importance of agriculture to the Irish economy and the
significance of the livestock industry. On the other hand the forest sector, through afforestation,
the use of forest-based biomass and wood products offers considerable scope for climate change
mitigation and has a role to play in adaptation measures such as reducing flood risks.
Mitigation means reducing the extent of future climate change by limiting the amount of
greenhouse gases being emitted, and by increasing the rate of removal of CO2 from the
atmosphere. To reduce the impacts of climate change we need to develop robust mitigation
strategies. This document will look at how we will evaluate options that can lower our emissions
and deliver a low carbon future. It will form part of an overall national mitigation plan that will
7
prioritise the key measures to be endorsed by Government. Adaptation measures will also be
needed to reduce the adverse impacts of climate change in Ireland.
Figure 1.1
Adaptation and Mitigation
Adaptation means learning to live with some
climate change. It means protecting ourselves
against negative impacts, and taking advantage of
more positive aspects of climate change for some
sectors
Mitigation means minimising the extent of future
climate change by reducing the amount of
greenhouse gases being emitted, and by
maximising our ability to remove CO2 from the
atmosphere
1.1 Greenhouse Gas Emissions Profile for the Agriculture Sector
The land area of Ireland is 6.9 million hectares, of which 4.5 million hectares or about 65% of total
land area is used for agriculture and 730,000 hectares or about 11% of total area for forestry. Some
81% of agricultural land is devoted to grass (silage, hay and pasture), 11% to rough grazing (0.47
million hectares) and 8% to crops, fruit and horticulture production (0.38 million hectares). Beef
and milk production currently account for 70% of agricultural output at producer prices (excluding)
forage. Ireland’s livestock numbers in June 2013 included 6.903 million cattle, 5.111 million sheep
and 1.552 million pigs.
Methane (CH₄) and nitrous oxide (N2O) make up the majority of Irish agricultural GHG emissions,
mainly due to the dominance of cattle and sheep livestock production in Irish agricultural output.
Methane emissions from enteric fermentation and manure management are dependent on the type
and number of livestock and, in Ireland’s case, the amounts are largely determined by a large cattle
population. Cattle accounted for 88.7 % of methane emissions in 2011.
The emissions of N2O from agriculture follow similar trends to those of methane. The greatest
extent of N2O emissions on Irish grassland arises from applications of fertiliser N and animal slurries,
N deposited by grazing animals and from N released from soil organic N (mineralisation). N2O
contributes up to 38% of Ireland’s agricultural GHG emissions. Crops contribute very little to N2O
emissions in Ireland and the amount fluctuates annually in response to varying production of the
relevant crops.iii
8
Figure 1.2 Distribution of Irish agriculture emissions
Ent Fermentation Cattle
38%
44%
Ent Fermentation Other
Manure Mgmt
Ag Soils - Direct
14%
4%
Emissions from agriculture reached a peak in 1998 and have decreased to below their 1990 level
since 2004 reflecting long term decline in livestock populations and in fertiliser use due to the
Common Agricultural Policy. Emissions from agriculture in 2012 are now 8.4% below their 1990
levels. The increase in agriculture emissions in 2012 represents the first significant increase over
the 13 year period since 1999. This increase is underpinned by increasing animal numbers with dairy
cows 2.3% higher in 2012 compared to 2011. This reflects national plans to expand milk production
under Food Harvest 2020 and following removal of milk quota in 2014.iv The overall reduction since
1999 is due in large part to a reduction in cattle numbers, and also to a number of other factors
including participation in the Common Agricultural Policy and other measures such as Rural
Environmental Protection Scheme, Agriculture Environmental Options Scheme, Organic Scheme,
supports for manure management in line with the EU Nitrates Directive, the afforestation scheme
and through development of renewable energy resources.
Figure 1.3 Irish Agriculture GHG emissions v total
cattle numbers 1990 - 2012
Total cattle
7800
7600
7400
7200
7000
6800
6600
6400
6200
6000
22000
21000
20000
19000
18000
17000
2012
2010
2008
2006
2004
2002
2000
1998
1996
1994
1992
16000
1990
Ag GHG emissions, Kg CO2e
23000
Total cattle numbers '000
Agriculture GHG
9
2. Background context
2.1 The UNFCCC and its Kyoto Protocol
Ireland’s Greenhouse Gas (GHG) emissions feed into the atmosphere alongside the emissions of
other countries, and as such, add to the global issue of climate change.
The 1992 United Nations Framework Convention on Climate Change (UNFCCC) provides the
framework for international policy development on actions to address climate change through
mitigation and adaptation. Its objective is to avoid dangerous climate change by stabilising
atmospheric greenhouse gas concentrations. It also has a long term goal to keep the global
temperature increase below 2.0 °C (3.6 °F) relative to pre-industrial temperatures. This requires
major reductions in GHG emissions of up to 70% globally by 2050 relative to 2010 levels.
Developed countries including Ireland are expected to lead by achievement greater reductions of up
to 80% by 2050.
The UNFCCC is most well-known for the Kyoto Protocol agreed in 1997, in which developed
countries took the lead in agreeing to collectively reduce their emissions relative to 1990 levels. The
Kyoto Protocol commits countries which have signed up to the protocol by setting internationally
binding emission reduction targets. The Irish Government is legally responsible1 for achieving the
commitments agreed for emissions under the Kyoto Protocol. For Ireland, as part of the European
Commission burden sharing agreement, the target was to limit GHG emissions to 13% above the
baseline2 1990 levels in the period 2008-2012. For this period developed countries that ratified the
Kyoto Protocol agreed to reduce their emissions of a basket of greenhouse gases that contribute to
global warming. The main gases are listed in figure 2.1 while the other gases are listed below3.
Ireland’s limit in relation to the Kyoto Protocol was set as 314.18 Mt CO2eq for the five-year
commitment period 2008-2012. By 2012, Ireland was 5.68 Mt CO2eq below the Kyoto limit,
however, when the impact of the EU Emissions Trading Scheme and forest sinks are taken into
account, Ireland exceeded the Kyoto limit by 2.1 Mt CO2eq.
The Doha Amendment agreed by the UNFCCC conference in December 2012, comprises a number
of amendments to the Kyoto Protocol and established a second commitment period with legallybinding emission reduction commitments for the years 2013–2020. Accounting and compliance
with the Doha Agreement includes emissions and removals from land use, land-use change and
forestry. Once adopted by the Council, the proposed ratification decision would enable the EU's
1
Ireland ratified the Kyoto Protocol on 31 May 2002, along with the EU and all other Member States. The
Kyoto Protocol separates countries into two groups. Annex I includes developed nations, while Non-Annex I
refers to developing countries. Emission limitations are only placed on Annex I countries. Non-Annex I nations
participate by investing in projects that lower emissions in their own countries. For these projects, they earn
CO2e credits. These credits can be traded or sold to Annex I countries, which allow them a higher level of
maximum CO2 emissions for that period.
2
This is the sum of CO2, methane, and nitrous oxide emissions in 1990 and the contribution from fluorinated gases in 1995.
3
Hydrofluorocarbons (HFC’s), Sulphur Hexafluoride (SF₆), Perfluorocarbons (PFC’s), and Nitrogen Trifluoride (NF₃) an additional gas under
the 2nd commitment period.
10
legally-binding commitments for the second commitment period to enter into force in international
law. Each Member State will also need to ratify the Doha Amendment on its own behalf.
Figure 2.1 - Greenhouse Gases
Carbon Dioxide (CO2)
Methane (CH4)
Nitrous Oxide (N2O)
(has a global warming
potential of 21 times that
of CO2 over a 100 year
time horizon)
(has a global warming
potential of 310 times
that of CO2) over a 100
year time horizon
2.2 Consideration of Metrics
Emissions metrics facilitate multi-component climate policies by allowing emissions of different
GHGs and other climate forcing agents to be expressed in a common unit (so called ‘CO2
equivalence emissions). The decision at international level to use GWP as the metric for comparison
of the greenhouse gases included in the basket of gases under KP was made early in the process. At
the time, a number of papers had expressed concern over the usefulness of the metric in the
context of the stated goal of the UNFCCC. However, the scientific literature on alternative metrics
was insufficient to propose their adoption.
Since then, additional analysis has emerged on various metrics. The IPCC AR5 WG1 report presents
findings from the analysis of these, including specific values for the most well developed, Global
Temperature Potential, GTP, see Table 2.2.
GTP explicitly relates the emission of a quantity of a greenhouse gas to its impact on global
temperature, integrated over a defined period, relative to the emission of the same quantity of
CO2. GTP evaluated over 100 years is similar to the GWP for long lived GHG species. However,
there is a significant difference in the figure for methane. The table below, based on information in
from the AR4 and AR5, shows the evolution of GWPs for methane and N2O in the IPCC assessment
reports, and the AR5 estimate of GTPs for methane.
Table 2.2 Evolution of GWP across IPCC assessment reports and GTP in AR5
GWP
SAR
AR4
AR5
AR5
GTP (100 year)
GTP (50 year)
CH4
N2O
Biogenic
Fossil Methane
21
25
28
30
310
298
265
Biogenic
Fossil Methane
Biogenic
4
6
14
234
282
11
Two specific aspects of the assessment are of note.


The GTP over 100 years for methane is 5-7 times less than that the GWP 100 years values
The IPCC have reported on analysis which differentiates between methane emissions from
biogenic sources and those from fossil fuel (FF) and related industrial sources. The
difference is marginal in the case of GWPs (biogenic 28, FF 30). However the difference is
relatively larger for GTP (biogenic 4, FF 6).
All metrics have shortcomings and choices contain value judgements such as the climate effect
considered therefore no single metric is optimal for all policy goals. While for most metrics, global
cost differences are small for mitigation strategies for some countries the implications could
significantly affect the cost of mitigation (IPCC, AR5).
2.3. EU Climate and Energy Package 2008
The climate and energy package is a set of legislation which aims to ensure the European Union as a
whole meets its ambitious climate and energy targets for 2020. These targets, known as the "20-2020" targets, set three key objectives for 2020:



A 20% reduction in EU greenhouse gas emissions on 1990 levels;
Raising the share of EU energy consumption produced from renewable resources to 20%;
A 20% improvement in the EU's energy efficiency.
The Emissions trading sector (ETS) was launched in 2005 and sets out ambition for GHG
emission reduction from EU’s largest installations, such as power stations, factories etc. The
Effort Sharing Decision (ESD; 409/2009) sets out the targets to deliver reduced GHG emissions
for the non Emissions Trading Sector (NETS). The NETS covers those sectors that are outside
the EU ETS and includes agriculture, transport, residential and waste. In 2013 the second Kyoto
Protocol commitment period commenced and signalled the first year of compliance with
emissions targets under the EU 2008 Climate and Energy Package.
While the EU average GHG reduction for the NETS is minus 10% with the balance of reductions
being achieved by the emissions traded sector; Ireland was assigned a target of minus 20% for
the NETS along with Denmark and Luxemburg. Other Member states were assigned targets
below this, including growth allowances to plus 20% for poorer member states.
This is a very challenging target for Ireland especially as agriculture is the largest sector for
emissions in the NETS, and a high share of emissions from this sector is from agricultural
livestock where there is limited availability of cost effective mitigation options. The national
emission targets for each of the Member States for 2020 under the ESD are shown in table 2.2
below:
12
Figure 2.2 - GHG emission limits
Member State GHG emission limits in 2020 compared
to 2005 levels
9%
10%
11%
11%
13%
14%
15%
17%
19%
20%
30%
20%
1%
4%
5%
10%
-20%
-20%
-20%
-20%
-17%
-16%
-16%
-16%
-16%
-15%
-14%
-14%
-13%
-10%
-10%
-10%
-5%
-4%
0%
LU
DK
IE
SE
AT
FL
NL
UK
BE
DE
FR
IT
ES
CY
GR
PT
SI
MT
CZ
HU
EE
HR
SK
PL
LT
LV
RO
BG
EU28
-30%
Ireland’s target under the renewable energy directive component of the climate and energy
package 2008 is to obtain 16% of our energy from renewable source such as follows:




40% renewable electricity
12% renewable heat
10% renewable transport
Responsibility for ensuring these targets are met is a matter for the Department of
Communications, Energy and Natural Resources (DCENR) in the first instance.
Projections published by the EPA in 2014 suggest that Ireland will exceed its binding annual limit for
non-ETS emissions by the years 2016 - 2017 and will exceed its target for the 2013 to 2020 period
cumulatively by somewhere between 1 to 17 million tonnes of CO2 equivalentsv, depending on the
assumptions used, unless measures and policies are introduced to reduce the gap. In the event that
Ireland fails to meets its ESD targets, flexibilities are provided for, but they will come at a cost to the
Irish Exchequer.
2.4. Proposed 2030 Climate and Energy Policy Framework
In January 2014, the European Commission brought forward a Communication on proposals for a
2030 policy framework for climate and energyvi. The framework presented seeks to drive continued
progress towards the EU’s long-term objective of moving towards a low-carbon economy by 2050.
The Communication proposes a new governance framework for climate and energy policy in the
period to 2030 based on national plans which will be prepared by Member States.
At the October Council conclusions, Europe's heads of State agreed the central piece of the
framework which is the target to reduce EU domestic greenhouse gas emissions by 40% below the
1990 level by 2030. It also agreed an objective of achieving a 27% improvement in energy efficiency
and increasing the share of renewable energy to at least 27% of the EU's energy consumption by
13
2030 on the basis that an EU-level target is necessary to drive continued investment in the sector
and improving the EU's energy trade balance and security of supply.
Additionally, an important step forward was taken in developing a coherent policy on food security
and climate change. Ireland has been a clear leader for some time at EU level in calling for
recognition of the specific issues that arise in the agriculture and forestry sector in relation to policy
on climate change mitigation and adaptation. It was therefore a very positive result for the
Taoiseach to have persuaded his colleagues to agree a statement on agriculture and forestry, which
Ireland largely drafted, in their Conclusions on the EU’s Climate and Energy Framework to 2030.
The Council of Ministers has recognised that “the multiple objectives of the agriculture and land use
sector, with their lower mitigation potential, should be acknowledged, as well as the need to ensure
coherence between the EU's food security and climate change objectives”.
The Council also invited the Commission to: “examine the best means of encouraging the sustainable
intensification of food production, while optimising the sector's contribution to greenhouse gas
mitigation and sequestration, including through afforestation”.
The conclusions commit the European Commission to examining how to encourage the sustainable
intensification of food production, and noted the role afforestation can play in carbon
sequestration. This is very important for Ireland as we are leading the world in some of our climate
change actions, including carbon foot printing our farmers, and we are building further on this in the
measures in our new Rural Development Programme 2014-2020. In addition afforestation is a major
GHG mitigation measure that we are taking on agricultural land and it is essential that the EU’s GHG
accounting system should take the value of afforestation fully into account in the future in order to
encourage this real and additional mitigation.
It is possible that the development of an Agriculture, Forestry and Other Land Use (AFOLU) pillar
would allow Member States to take a holistic approach to agriculture and land use policies but our
essential point is that LULUCF and agriculture should be treated together in terms of mitigation
potential and accounting; to achieve the following three objectives;

Encourage sustainable land management and forest product uses that contribute to climate
change mitigation and retain and enhance soil and forest carbon stocks; and

Strongly promote sustainable intensification of food production to reduce the carbon intensity
of food production and to contribute to both food security and greenhouse gas mitigation
objectives.

Seek to move as far along the road to carbon neutrality as is possible in cost-effective terms,
while not compromising our capacity for sustainable food production.
A coherent approach to agriculture and land use would be consistent with an approach to carbon
neutrality for the agriculture and land use sectors including afforestation which does not
compromise food production as proposed in the draft low carbon development bill.
14
2.5 The National Policy Position
The National Policy Position was published by the Minister of Environment, Community and Local
Government on 23rd April 2014. It brings clarity and certainty to the national low-carbon transition
objective for 2050.
National climate policy in Ireland –

recognises the threat of climate change for humanity;

anticipates and supports mobilisation of a comprehensive international response to
climate change, and global transition to a low-carbon future;

recognises the challenges and opportunities of the broad transition agenda for society;
and

aims, as a fundamental national objective, to achieve transition to a competitive, lowcarbon, climate-resilient and environmentally sustainable economy by 2050.
The evolution of climate policy in Ireland will be an iterative process, based on the adoption by
Government of a series of national plans over the period to 2050. Greenhouse gas mitigation and
adaptation to the impacts of climate change will be addressed in parallel national plans –
respectively through National Low-Carbon Roadmaps and National Climate Change Adaptation
Frameworks.
The low-carbon roadmapping process will be guided by a long-term vision of low-carbon transition
based on –


an aggregate reduction in carbon dioxide (CO2) emissions of at least 80% (compared to
1990 levels) by 2050 across the electricity generation, built environment and transport
sectors; and
in parallel, an approach to carbon neutrality in the agriculture and land-use sector,
including forestry, which does not compromise capacity for sustainable food
production.
2.6 The Climate Action and Low Carbon Development Bill
In 2014 the Irish Government approved a General Scheme of a Climate Action and Low Carbon
Development Bill which provides for the preparation of a national mitigation plan to articulate a
national vision for the transition to a low carbon, climate resilient and environmentally sustainable
economy over the period to 2050. This Bill was published on 19th January 2015. The agriculture and
forestry sectoral mitigation plan is informed (inter alia) by work carried out by National Economic
and Social Council (NESC)vii and Teagasc viii,ix,x, and will reflect EU Council conclusions on the
Climate and Energy Framework 2030.
2.7 Scope of the national mitigation plan
The essence of the NESC proposed approach is to achieve transition to a low carbon, climate
resilient and environmentally sustainable economy in the period up to and including 2050. The
15
report sets out the NESC vision that Ireland will be a carbon-neutral society by 2050, based on an
approach to economic development that is socially and environmentally sustainable. See Figure 2.3
below:
Figure 2.3
Vision
 Vision for a
carbon-neutral
Ireland
Our
Approach
 Way of thinking
and guiding
principles
Three
Tracks
 Strategic and
Institutional
 Exploration and
Experimentation
 Design and
Implementation
There are five strategic building blocks identified and one relates to agriculture:

Towards Carbon-Neutral agriculture: “A world class agri-food sector working within a
carbon-neutral system of agriculture, forestry and land-use. Ireland must become a world
leader in the production, management and marketing of low-carbon, high quality, sustainable
food. This can be achieved by pushing scientific research and probing farming practice to
identify further means of reducing emissions. It needs to be complemented by work within agrifood, forestry and marine sectors that identifies, assesses and develops the carbon sink or
offsetting potential associated with land-use change and forestry”
2.8 Challenges for the sectors
2.8.1 Agriculture:
Climate change poses a major challenge for the agricultural industry, and many farmers now
understand the contribution of agriculture or forestry to climate change or the consequences and
impact that it will have on their business.
The OECD (2012) estimates that by 2050, the world population will reach 9 billion (approximately 7
billion currently), 70% of whom will live in urban areas. This population level will increase the
demand for food and productivity per hectare and also place further pressures on the environment.
The OECD estimates that by 2050; energy usage will be 80% higher than 2010; global water
demand will have increased by 55%; and there will be increased pressure on agricultural and forest
land.
Unlike other sectors such as energy and transport, global mitigation in agriculture cannot be
addressed through one‐off technological fixes. Mitigation in agriculture will require the sustained
application of processes or management practices by millions of individual farmers. In order to be
16
effective in the long term, food production, food security and mitigation objectives must be
complementary and support or enhance each other viii.
The agriculture sector faces the challenges of reducing GHG emissions while responding to an
increased need for food from a growing global population and rising affluence. Farming involves
complex natural cycles and there are technical barriers and physical limitations to further emission
reductions. Dairy and beef production in Ireland is highly efficient and the volume of production is
such that substantial emissions reductions have already been achieved by improvements in farm
practices such as manure management, energy use, improved breeding and grassland
management. The continued reduction potential is limited; however efforts are continually being
made to reduce emissions even further.
In 2013, agriculture accounted for 32% of total national emissions. Among developed nations, only
New Zealand has a higher proportion of total GHG emissions associated with agriculture.
Figure 2.4 Greenhouse Gas Emissions in Ireland 2012
Industry &
Commercial,
14.70%
Manure
management,
4.49%
Residential,
10.70%
Energy ,
21.90%
Agriculture
32.10%
Manures and
fertilizer,
12.20%
Enteric
Fermintation,
15.41%
Waste, 1.80%
Transport, 18.80%
Under the EU Commission’s 2008 Climate and Energy Package, Ireland is required to deliver a very
challenging 20% reduction in non-Emissions Trading Scheme greenhouse gas emissions by 2020
(relative to 2005 levels). In addition, Ireland also has binding annual emission limits for the period
2013-2020 to ensure a gradual move towards the 2020 target. The key contributors to emissions in
the non-ETS sectors are transport and agriculture.
In a With Measure4 (WM) total scenario, NETS emissions are projected to fall by 3.4% between 2005
and 2020, while in the With Additional Measures (WAM) scenario emissions are projected to fall by
4
In EPA projections, the With Measures (WM) scenario incorporates the estimated impact of all policies and
measures in place and legislatively provided for. It assumes that the projected impact on emissions of FH2020
is included and assumes that the Landfill Directive (1999/31/EC) targets are achieved. The With Additional
Measures (WAM) scenario is based on existing plus planned policies. As well as the above it assumes that all
17
11.3% in the same period. In contrast, agriculture emissions are projected to grow on an annual
basis to 2020 which reflects the impact of Food Harvest 2020 which reflects the projected increase
in food production following the removal of milk quotas which Food Harvest 2020 is based upon.
For the period 2013-2020, total emissions from agriculture are projected to increase by 9%v or
approx 3% above 2005 levels.
See figure 2.5 below. Data provided to NESC by the EPA, April 2012:
Figure 2.5: Non-ETS Emissions 2005-2020 (Mt CO2 Eq)
49
47
45
43
41
39
37
35
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
With Measures Scenario Non-ETS
With Additional Measures Scenario Non-ETS
Annual Limits
2.8.2 Forestry:
These projections do not take into account the significant impact of forests in absorbing carbon or
the role of wood and wood products in replacing more energy intensive materials. Forest sinks are
not included in the ESD for the 2013-2020 accounting period but, if they were, and assuming the
accounting modalities that apply under the Kyoto Protocol, then Ireland’s measured non-ETS
emissions would fall by a projected 11.1% between 2005 and 2020 in the WM scenario and by 19.2%
under WAM.
Irish forests are both a significant store and sink of carbon. In 2012 the estimated overall carbon
store in Irish forests was 381 million tonnes. By far the largest component was soil carbon (324
million tonnes), mainly a reflection of past afforestation, Irish Forests are also a significant sink of
carbon dioxide. New forests planted since 1990 (afforestation) removed a net 16.98 million tonnes
of carbon dioxide from the atmosphere over the period 2008-2012.
2.8.3 Renewable Energy:
In relation to renewable energy, achieving the anticipated renewable energy usage in the three
energy sectors will be challenging; the 12% renewable heat target particularly so. The Sustainable
Energy Authority of Ireland (SEAI) estimates that the shortfall will be in the region of 2 to 4%. This
the targets set in the National Energy Efficiency Action Plan and National Renewal Energy Action Plan are fully
achieved.
18
represents about 1% to 2% in terms of the overall national renewable energy target of 16%,
mandated to Ireland under the 2009 Renewable Energy Directive.
Despite increases in recent years there are still relatively low levels of production of renewable
energy and use overall in Ireland. Analysis by the SEAI indicates that approximately 1,000 ktoe 5 of
bioenergy will be required to meet the country’s 2020 renewable energy targets. Of this, heating
will require 475 ktoe, transport 370ktoe, with the remaining 155 ktoe required for electricity. The
extent to which there will be development of domestic resources to meet demand will be
dependent on the price of biomass. The analysis shows current market prices range up to about
€250/toe depending on the resource and that a price of €420/toe could bring 850 ktoe of
domestically sourced bioenergy, which would be mainly suitable for use in the electricity and heat
sectors, to market by 2020. The analysis further suggests that, depending on the price of biomass,
there could be up to 3,000 ktoe of domestically sourced biomass available by 2030 if the barriers to
its mobilisation can be addressed.
The sustainability of biomass will continue to be a critical consideration in the development of
bioenergy policy. The EU proposal to address the potential impact of Indirect Land Use Change
(ILUC), caused by certain categories of biofuel, will make the achievement of the renewable
transport target more challenging. The proposal seeks to shift the focus away from first generation
biofuels (from oils and sugar) and encourage future investment in advanced biofuels such as
municipal waste and agricultural residues that do not compete directly with food and feed crops.
Fossil decarbonisation - As suggested in the recent IPCC AR5 report, scenarios that are most likely
to keep temperature change below 2oC are dependent on the scale and uptake of bioenergy,
carbon capture and storage. Therefore the expansion of the bioenergy sector, which is also closely
linked to the Agriculture, Forestry & Other Land Use (AFOLU) sector, and the management of land
resources to accommodate it, in the context of food security, is likely to be an increasing feature of
the overall policy in this area. It should be noted that bioenergy will require at least equivalent
approaches to sustainable land management as food production. Although both food security and
bioenergy (security) are based on the land resource, the dynamic can be complementary. Both
activities should provide positive environmental and development returns to rural communities.
Therefore future ambition for the agriculture and land use sectors must be structured so as to
ensure that food & bioenergy production is allowed to sustainably expand to meet global demand,
and must focus on improving agricultural resilience, productivity and resource efficiency, while
simultaneously encouraging good carbon land management practices in order to
optimise/maximise the mitigation potential of the land sector.
DAFM fully recognises the importance of continued research and the need to realise even greater
efficiencies at farm level. Teagasc has collated outcomes of its research and knowledge transfer
programmes on GHG emissions into a Marginal Abatement Cost Curve for Irish Agriculture (MACC)
5
ktoe: Kilo tonnes of oil equivalent (i.e. a thousand tonnes of oil equivalent)
19
in April 2012. In this document we have used the opportunities for abatement and specific
mitigation measures contained in the MACC analysis to show how research is being converted into
policy decision and then into measures at farm level to deliver results.
2.9 EPA Reporting
The EPA compiles Ireland's annual greenhouse gas emission inventories and projections. This allows
the Government to assess progress in terms of meeting key targets, such as the Kyoto Protocol
limitation target, and to inform policy development in terms of developing appropriate mitigation
measures. The EPA compiles Ireland's national greenhouse gas emission inventory on an annual
basis. This inventory is submitted to the European Commission and UNFCCC each year by March
15th and April 15th respectively. The EPA also develops national emission projections on an annual
basis, in collaboration with relevant State and other bodies. This collaboration ensures consistency
with economic forecasts and with projected activity in sectors including energy, agriculture, and
industry. The National Climate Change Strategy (2007) designated the EPA with responsibility for
developing national emission projections for greenhouse gases for all key sectors of the economy.
2.10 Marginal Abatement Cost Curve (MACC) for Irish Agriculture
2. 10.1. Abatement potential for agriculture
The Teagasc Marginal Abatement Cost Curve (MACC) ix for Irish Agriculture April 2012 quantified
the current opportunities for abatement of agricultural greenhouse gases, as well as the associated
costs and benefits. The analysis provides clarity on the extent of GHG abatement that can be
delivered through incentivisation of cost-effective agricultural mitigation measures, as well as
clarity on which mitigation measures are likely to be cost-prohibitive. The following measures were
identified:

Improving the genetic merit of the dairy herd




Higher daily weight gain in beef cattle
Extended grazing season
Manure management
Other gains in nitrogen efficiency (includes use of clover)





Use of nitrification Inhibitors
Minimum tillage techniques
Increased use of cover crops
Bio-fuel and bio-energy crops
Anaerobic digestion of pig slurry
The analyses underpinning the MACC curve followed a dual methodology. Life Cycle Analysis was
used to assess the potential for “real” global reductions in GHG emissions associated with each
potential mitigation measure adopted in Ireland while simultaneously, the methodology of the
Intergovernmental Panel on Climate Change (IPCC) was used to quantify the proportion of
reductions that would be measured and recorded in the National GHG Emissions Inventory, and
credited to the agricultural sector in Ireland.
20
The MACC based on IPCC analysis is presented visually in Figure 2.6. The green measures relate to
increased efficiency, which are cost‐beneficial (efficiency gains which reduce the carbon footprint
but also reduce overall costs). The yellow measures relate to land use change and are generally
cost‐neutral or slightly beneficial. The blue measures relate to technology interventions that have
associated costs.
Figure 2.6 Source: Marginal Abatement Cost Curve (MACC) – 2012
Using the IPCC methodology, Teagasc found that there is the potential to cost beneficially reduce
emissions by 1.1 Mt CO2eq per annum. The price of international carbon credits was assumed to be
€33 per tonne CO2eq, adapted from the Energy Forecasts for Ireland to 2020 (2011 Report) by the
Sustainable Energy Authority of Ireland (Clancy & Scheer, 2011).
Most of the cost-beneficial mitigation measures that have potential to deliver the 1.1 Mt CO2eq of
reported emission reductions are measures associated with increased production efficiencies, i.e.
measures that maximise output of produce per unit of farm input. Realisation of these reductions
requires a concerted effort from farmer stakeholders, advisory services, research institutes, policy
stakeholders and the agri-food industry.
2.10.2. Abatement potential from farm afforestation
The current opportunities for abatement through carbon sequestration and through fossil fuel
substitution are also analysed. Two scenarios were used to calculate the abatement cost per tonne
of CO2eq for afforestation over and above an assumed baseline level of 8,000 ha per annum (the
average planting rate for 2008-2010). The analysis also includes the increase in grants and premium
payments that would be payable to forest owners for any afforestation over and above 80,000 per
annum. This is covered in more detail in the forestry section of this discussion document
21
Figure 2.7 : Marginal abatement cost of afforestation under three planting scenarios and two
productivity levels.
Scenario
Planting rate
Total sequestered carbon
Increase over baseline
Energy savings
(fossil fuel displacement)
Increase over baseline
Ha yr
-1
Mt CO2
Mt CO2
Mt CO2
Baseline
8,000
5.3
-
Normal Production
Medium
High
16,000
20,000
7.0
8.2
1.7
2.9
High Production
Medium
High
16,000
20,000
7.7
9.5
2.4
4.2
0.6
5.9
1.2
0.6
8.2
1.5
0.9
9.7
1.6
1.0
9.3
1.9
1.4
11.4
Total sequestration &
energy savings
Increase over baseline
Total premium payments
Increase over baseline
Mt CO2
Mt CO2
-
2.3
3.8
3.4
5.6
M€
M€
69.4
-
138.9
69.4
173.6
104.2
138.9
69.4
173.6
104.2
Total grant payments
Increase over baseline
Marginal abatement cost
M€
M€
€t-1CO2eq
28.0
56.0
28.0
42.7
70.0
42.0
38.7
56.0
28.0
28.9
70.0
42.0
26.3
Source: CARBWARE (Hendrick & Black, 2009 and calculations by authors of MACC Schulte & Donnellan (2012)
This table shows that the potential carbon sequestration and energy savings range from 2.3 Mt CO2
to 5.6 Mt CO2, and associated abatement costs range from €26.30 to €42.70 per tonne of CO2eq.
22
3. Mitigation and the Agriculture Sector
3.1 Introduction
The agri-food6 sector is one of Ireland’s most important indigenous manufacturing industries.,
employing in the region of 50,000 people directly, as well as providing the primary outlet for the
produce of 128,000 family farms. These jobs are dispersed throughout all regions of Ireland,
especially rural areas. Nationally, it plays a key role in ensuring Ireland’s export-led economic
recovery while it also provides the foundation for sustainable rural development. At a European
level, the unique national importance and scale of this sector relative to the rest of the economy is
recognised.
In 2013, the agri-food sector accounted for over 7% of national Gross Value Added and 23% of
national industry turnover. More than any other industry, much of the economic benefits in the
agri-food sector, both direct and indirect, are dispersed throughout the country making it
particularly important to rural areas.
Figure 3.1: Employment in the Agri-Food Sector
(000s)
Agriculture,
Forestry and
Fishing, 103.4
Based on
CSO Data
(Q2 2013)
Beverages,
5.5
Wood
Processing,
5.4
Food, 46.1
The export driven agri-food sector is playing a significant and growing role in national economic
development. Its national economic significance is enhanced by its use of indigenous raw material,
its low profit repatriation, its export orientation and high level of economic expenditure particularly
in the rural economy. There is also a well developed strategic plan for future growth and
development in the industry-led Food Harvest 2020 report (FH2020). This has set a number of
targets to be achieved by 2020 and has in place a cohesive and effective high level implementation
process to coordinate the State role.
6
Agri-food sector is taken to include primary production (Agriculture, Fisheries and Forestry) along with Food,
Beverages & Tobacco (grouped together in National Income classification) and wood processing sectors
23
There is a strong case for allowing the agri-food sector to continue on its successful development
path as it continues to make a significant contribution to economic development of the State, and
in the case of forestry it makes a significant contribution to climate change mitigation.
The European Commission’s JRC Report of 2010 “Evaluation of the livestock sector's contribution to
the EU greenhouse gas emissions (GGELS)xi” recognised that:

Ireland (with Austria) had the lowest cow milk emissions (1 kg per kg of product). This
compares with an EU average of 1.4kg/kg (p29)

Ireland had the lowest emissions per kg of pork (4.8 kg/kg) – EU average 7.5kg/kg (p171)

Ireland’s emissions per kg of beef were 18.4 kg/kg – EU Average 22.2kg/kg (p29/30)
Therefore it should be emphasised that the Irish agriculture sector has not been complacent in its
response to climate action and has succeeded in achieving improvements to emissions intensity.
Emissions intensity per calorie of food output in 2013 is reduced approx 14% relative to 2005 and
early estimates project that the BAU 2030 emission intensity will be a quarter below the emission
intensity in 2005.
The Teagasc MACCix has identified 1.1 Mt CO2 abatement potential by 2020 and the Teagasc report
on a vision of carbon neutrality7 have been key to informing this discussion.
3.2 Key Policies and Drivers for the Agriculture Sector
A.1 Food Harvest 2020
The Food Harvest 2020 Reportxii, offers a vision of the future for the agriculture sector.
Food Harvest 2020 foresees a sector that acts ‘smartly’ to achieve a competitive critical mass in the
international marketplace and targets those consumers in key markets who recognise and reward
Ireland’s food producers for their ‘green’ output. This would require:






The adoption of new technologies at primary producer level;
Developing new working relationships within the food production chain;
Piloting new product streams;
Targeting resources at new markets;
Enhancing levels of productivity and competitiveness; and,
Developing production and management skills across the sector.
This is to be achieved by investment in ideas, knowledge and skills, and recognising that
collaboration across the food supply chain, with other competitors and, broadly, within the
framework of the smart economy, is central to unlocking opportunities.
24
The compelling vision is of efficient, environmentally sustainable production that delivers
significant growth benefiting primary producers, processors and the food-manufacturing sector.
The growth targets are to increase, by 2020:
 The value of primary output by €1.5 billion;
 Value-added outputs by €3 billion; and
 Exports to €12 billion, representing growth of 42% over the period 2007-09.
In 2010 these proposals were seen as ambitious targets but by the end of 2013 the following have
been achieved:











The value of Primary Output is already more than three-quarters of the way to its FH2020
target
The value of cattle output has already exceeded its Food Harvest 2020 target
The value of milk output has already grown by a quarter, before post-quota expansion
The value of pig output is already more than four fifths of the way to its Food Harvest 2020
target
The value of sheep output has already almost reached its Food Harvest 2020 target
The value of Beef exports has already exceeded its Food Harvest 2020 target
The value of Pigmeat exports has already exceeded its Food Harvest 2020 target
The value of Sheepmeat exports is already close to reaching its Food Harvest 2020 target
The value of Seafood exports has already exceeded its Food Harvest 2020 target
The value of Dairy Produce & Ingredients exports is already almost half way to its FH2020
target
The value of Food & Beverage GVA is already half way to its Food Harvest 2020 target
The dairy sector was the only one for which a specific volume increase (of 50% by 2020) was
projected in the light of the ending of EU milk quotas in 2015. Dairy cow numbers are expected to
increase from about 1.1 to 1.4 million, which is almost a 28% increasexiii. This increase in dairy cows
is likely to be partly offset by a decrease in suckler cows. As a result the increase in total cow
numbers is likely to be ‘limited’.
A.2 The Food Harvest 2020 Environmental Analysis Report.
This analysis was commissioned by the Department of Agriculture, Food land the Marine (DAFM) in
response to a recommendation contained in FH2020 that a Strategic Environmental Analysis be
carried out on the proposals in that report. The purpose of the study is to inform policy makers of
any likely environmental consequences affecting biodiversity, flora and fauna, water quality, air
quality, landscape and climate change including greenhouse gases.
The analysis reportxiv, published in January 2014, considers alternative scenarios to the achievement
of the primary production targets set out in FH2020 and presents the likely significant effects on the
environment of its implementation. At a sectoral level, three alternative scenarios were analysed:

a low intensity system;
a high intensification system; and
25

a system based on best knowledge and technology.
The authors of the report recognise that the concept of increased agricultural output and improved
environmental outcomes is sometimes seen as counterintuitive, but it is one that is being embraced
by DAFM. This report should prove valuable in informing the potential interaction between the
industry vision in FH2020 and important national strategies.
Within the report the large
contribution of the agriculture sector relating to targets for conservation, water quality, air quality
and climate change is recognised, and the key agricultural pressures from agricultural practices are
identified, assessments are made of the likely impacts and suitable mitigation measures are
proposed. The table in Figure 3.3 below summarises the pre-mitigation findings of the report.
Figure 3.3: Table of Conclusions of FH2020 Environmental Analysis Report
Environmental Characteristics
Pre-Mitigation Impact
Biodiversity & Flora/Fauna
Slight Negative
Water Quality
Slight Negative
Soils
Neutral/Imperceptible
Air Quality
Slight Negative
Landscape
Neutral/Imperceptible
Climatic Factors
Slight Negative
Post-Mitigation Impact
Negative impact can be reversed and
rendered neutral in most cases* and lead
to environmental gains in other cases
*Note: As noted, the risk of more localised or regional impacts on biodiversity and water quality exists. Continuing
monitoring in areas of known vulnerability is recommended through the expansion of the agricultural catchments
and other monitoring programmes. This will indicate where high level mitigation proposals need to be
supplemented by the development of detailed farm and regional level mitigation measures throughout the life of
Food Harvest 2020.
The recommendations made in this comprehensive report are already helping to inform policy
development including the draft Rural Development Programme 2014 to 2020 and are also
reflected in this document.
B Common Agricultural Policy Reform 2014-2020
The Common Agricultural Policy (CAP) is the main driver for agricultural policy across the European
Union Member States (see figure 3.2 below). The CAP is the main form of support for Irish farmers
and it is delivered through two pillars. It provides a level of income security to farmers through Pillar
One, as well as a framework for sustainable management of the natural environment in which
agricultural activity takes place through Pillar Two.
Historically, the CAP has seen the development by agricultural policies aimed at increasing food
production and ensuring food security. The emergence of an understanding of the negative impacts
that agriculture was having on the environment has been reflected in a series of reforms of the CAP.
In 2005, the CAP was ‘health checked’ with a view to its modernisation and simplification. Direct
26
payments to farmers were reduced and the savings transferred to the Rural Development budget to
enable Member States to respond to new challenges and opportunities and to reinforce
programmes in the fields of climate change, renewable energy, water management, and
biodiversity, as well as innovation linked to these four areas and for accompanying measures in the
dairy sector.
From 2015 onwards, the CAP introduces a new policy instrument in Pillar 1, the Green Direct
Payment. This accounts for 30% of the national direct payment envelope and rewards farmers for
respecting three obligatory agricultural practices, namely maintenance of permanent grassland,
ecological focus areas and crop diversification. As the green direct payment is compulsory, it has
the advantage of introducing practices that are beneficial for the environment and climate on most
of the utilised agricultural area.
Building on these compulsory elements, under pillar 2 the rural development programme (RDP
2014-2020) continues to play a pivotal role in achieving the CAP’s environmental objectives and in
combating climate change. The focus of the second pillar on sustainability is clearly visible by the
fact that at least 30% of the budget of each Rural Development Programme must be reserved for
voluntary measures that are beneficial for the environment and 20% cross-cutting climate change.
These include agri-environmental climate measures, organic farming, areas of natural constraints,
Natura 2000 areas, forestry measures and investments which are beneficial for the environment or
climate.
C. The Bioenergy Plan
Over the last year DAFM has worked closely with the Department of Communications, Energy and
Natural Resources in developing the recently published draft Bioenergy Plan. The plan sets out the
broader context for the development of energy from biomass, and the current status with regard to
the range of policy areas that must be coordinated in order to create the conditions necessary to
support the sustainable development of this sector. The plan also identifies the necessary next
steps to be taken by various government departments, agencies and State bodies in this regard. It
takes account of the various strands of bioenergy that are dealt with within DAFM, with a view to
maximising their potential contribution to achieving renewable energy targets for 2020 and beyond.
The development of the bioenergy sector can lead to both economic and environmental benefits
and will contributing to reaching our renewable energy targets. The SEAI and the Irish BioEnergy
Association commissioned report - Economic Benefits from the Development of BioEnergy in Ireland
to meet 2020 Targets - recognises that the cost-effective harnessing of the potential of sustainable,
indigenous, renewable energy resources is crucial, among other things, to reducing our dependence
on imported fossil fuels and reducing harmful emissions.
Advanced biofuels
In October 2012 the Commission proposed limiting the amount of food-based biofuels that can be
counted towards the EU's target of reaching a 10% share of renewable energy in the transport
sector by 2020, with a view to mitigating indirect land-use change emissions. The proposal also
contained a number of measures to incentivise the use of non-food based biofuels in meeting the
10% target. The aim is to promote biofuels that help achieve substantial emission cuts, do not
27
directly compete with food and are more sustainable at the same time. Advanced biofuels, (also
referred to as second and third-generation biofuels) such as those made from wastes and residues,
non-food crops and algae, provide high greenhouse gas savings with low risk of causing indirect
land use change and do not compete directly for agricultural land for the food and feed markets.
The EU Energy Council reached a political agreement on the draft directive in June. The agreed text
included a recommendation for a cap of 7 % on food based biofuels. Deliberations in relation to this
proposal are continuing, the outcome of which will need to be considered in future policy
development.
3.3 Agriculture Sector Mitigation Action Plan
3.3.1 Agriculture Sector Mitigation Actions up to 2020
Introduction
As mentioned above at Policy Drivers, The Common Agricultural Policy (CAP) has made an
increasingly significant contribution to the environmental sustainability of the European agri-food
sector in recent years.
A critical consideration in national climate change policy is to balance the environmental objective
of greenhouse gas emissions reductions with the economic and social objective of promoting the
sustainable development of a rural economy, which maintains the maximum number of farm
families and rural households, as well as diversifying activities and income streams through
measures such as afforestation. The positive contribution of agriculture policy to reducing
greenhouse gas emissions and increasing levels of carbon sequestration is an important element of
Ireland’s response to its greenhouse gas emissions reduction target for the purposes of the Kyoto
Protocol. The challenge is to ensure that there is clear coherence with the smart, green, growth
message of Food Harvest 2020.
Climate change will affect, directly or indirectly, all of the important benefits that agricultural land
provides to society. Agricultural systems and the ecosystem services they provide are very
vulnerable to changes in climate and are among the first to feel the effects. Many of the likely
pressures are not new but will be exacerbated and accelerated by climate change. The effects will
be felt differently, and over different timescales, in different regions of the country and by different
agricultural sectors. Therefore action to ensure agriculture can build resilience and adapt, now and
in the future, is crucial, and sustainable adaptation by agricultural systems will be a key part of our
overall national response to climate change.
Rural Development Programme (RDP) 2014-2020
The Rural Development Programme (RDP), 2014-2020 will be a key support in enhancing the
competitiveness of the agri-food sector, achieving more sustainable management of natural
resources and ensuring a more balanced development of rural areas. Regulation (EU) No 1305/2013
of the European Parliament and of the Council on support for Rural Development by the European
28
Agricultural Fund for Rural Development (EAFRD) sets out the breakdown of EU support for rural
development for each EU Member State for the years 2014 – 2020. Ireland’s total EAFRD allocation
for rural development is some €2.19 billion (or some €313 million per annum), as agreed at the
Multi-annual Financial Framework negotiations in 2013. EU funding amounts are combined with
national co-funding to provide for each Member State’s RDP. In Ireland’s case, National Exchequer
funding brings the total to be spent on RDP schemes in the 2014-2020 period to over €4 billion.
Annual costings for the RDP will be agreed in line with the roll out of schemes and the annual
budgetary process.
The new RDP 2014-2020 must contribute to the cross cutting themes of innovation, climate change
and environment but it must also be linked with national policies. The changes are consistent with
the smart green growth objectives of Food Harvest 2020. CAP also has a role to play in facilitating
mitigation by influencing farmers to adjust their production to the changing climatic situation and
to provide wider ecosystem services which are dependent on land management.
The Mitigation Action Plan will focus on
1. Improving the environmental impact of agriculture as a provider of agri-environment
climate measures through the measures in the Rural Development Programme 2014-2020.
2. Improving the uptake of mitigation practices by farmers through knowledge transfer
groups, targeted training, the European Innovation Partnership, Origin Green and Advisory
Services
3. Increasing the level of forest cover and use of wood products and fuels
4. Enhancing research on agriculture and climate change mitigation
DAFM also welcomes the progress being made across different sectors in developing guidance for
farmers on practical steps to reduce emissions and other environmental best practice. The Teagasc
2020 Roadmapsxv reflects the targets set out in the Government’s Food Harvest 2020 Report and
outlines the direction each sector is expected to take, and the technical performance levels that can
be achieved at farm level.
The purpose of the Action Plan is to set out a framework for action in Ireland for the period
2014-2020 and a vision for 2050.
The provision of Agri-Environment Climate Measures through the Rural Development
Programme 2014-2020. (RDP)
The Rural Development Regulation published by the European Commission was formally adopted
on the 17th December 2013. It is a clear prerequisite of funding support that the RDP of each
Member State take due account of the sustainable management of natural resources, and climate
action. While the ‘greening’ of Pillar 1 in the new CAP (2014-2020) can potentially also contribute to
achieving these environmental targets, Pillar 2 measures are required to encourage and assist
29
farmers to go beyond the Statutory and GAEC requirements of Pillar 1 and achieve more targeted
objectives.
In particular it is noted that 20% of the total RDP budget must be aimed at measures preserving and
promoting the changes necessary in agricultural practices that make a positive contribution to
climate action.
The draft Irish RDP for the period 2014-2020 submitted to the EU Commission was informed by the
findings and recommendations in the environmental analysis of FH2020 and the MACC reportix by
Teagasc. Once approved the new RDP will be a key support to achieving more sustainable
management of natural resources and climate action, enhancing the competitiveness of the agrifood sector, and ensuring a more balanced development of rural areas.
The measures have been designed to support the Smart Green Growth message of Food Harvest
2020 and thus will encompass the themes of technology, efficiency and sustainability.
The main elements of the RDP in terms of proposed measures are:

A substantial new agri-environment/climate scheme, GLAS, which will build on the
progress made under the previous agri-environment schemes, REPS and AEOS. For more
information on this scheme see 3.3.2. 1. Green Low-Carbon Agri-Environment Scheme (GLAS)
below.

A new beef data and genomic technology measure. This scheme will have a range of
benefits in terms of sustainability, profitability, animal health and welfare, quality assurance,
and herd quality. Genomic technology, in which Ireland is a world leader, uses DNA finger
printing to increase the efficiency of animal breeding programmes by identifying high
performance at a very early stage. For more information on this scheme see 3.3.2. 2. Beef Data
and Genomics Programme.

Knowledge transfer and innovation measures including support for the European
Innovation Partnership and continuous professional development of advisors. These knowledge
transfer measures are aimed at underpinning farm viability, sustainability and growth through
the adoption of best practice and innovative solutions. For more information see 3.3.2 3.
Knowledge Transfer Measures

Incentives for on-farm capital investment, which will incorporate support for investments
with clear sustainability benefits such as investment in trailing shoe slurry spreading and
Biomass expansion scheme. For more information on this scheme see 3.3.2. 4. Targeted
Agricultural Modernisation Schemes II (TAMS II)

Other supports are aimed at collaborative farming, artisan producers and organic farming. In
particular the proposed Organic Farming Scheme promotes organic agriculture as an
alternative farming system and will provide support for management practices that can help
farmers to adapt and mitigate against the effects of climate change through enhancing
ecosystems, diversifying crop and livestock production, and building farmers’ knowledge base
to confront changes in climate. For more information on this see 3.3.2. 5. Organic Farming
Scheme.
30
In particular it should be noted that the beef genomics and suite of knowledge transfer measures
target the promotion of the cost beneficial mitigation options identified by the Teagasc MACC.
This type of smart investment will ensure that we remain as efficient as possible in our production
systems. Irish agriculture has already achieved significant progress in production efficiency
including the use of fertiliser and manure, grassland management, improved breeding and better
fertility. Essential ongoing research into new technologies is being undertaken to maintain our
economic and environmental competitive advantages. The level of emissions from agriculture has
been steadily decreasing in recent years and the Department of Agriculture, Food and the Marine
will continue to work with state and industry stakeholders to seek greater future efficiencies in a
sustainable Irish agriculture sector.
B. Single Payment Scheme and Cross-Compliance
Since 1 January, 2005 direct payments to farmers under the CAP have been fully decoupled from
production, i.e. the level of CAP direct payments to farmers is now independent of the level of
production of agricultural products. Applicants under the various direct payments schemes are
required to comply with the requirements of cross compliance as detailed in EU governing
regulations. Cross compliance requires farmers to comply with 18 statutory management
requirements (SMRs) set down in EU legislation on the environment, (including the Nitrates
Directive) food safety, animal health, welfare, and plant health, and a requirement to maintain the
farm in good agricultural and environmental condition (GAEC).
C. Origin Green
Origin Green at farm level
In June 2012 Origin Green was launched, a national sustainability development programme that is
designed to help Ireland become a world leader in sustainably produced food and drink.
At farm level since May 2011, over 43,000 members of Bord Bia’s Beef Quality Assurance Scheme
members and 6,000 dairy farmers have participated in a sustainability survey, as part of their
regular quality assurance farm audit. The sustainability survey includes a carbon audit and Ireland is
the first country in the world to assess the footprint performance of farms on a national scale.
Similar programmes are planned across for poultry production at both farm and processing level;
for pigmeat and lamb production with a view to completing this work in the near future; and
projects are also being planned for grain and horticulture.
The rollout of the sustainability audit program including carbon audit is funded by DAFM, and
commenced across all 43,000 beef farms that are members of the Beef & Lamb Quality Assurance
Scheme (BLQAS) with a similar process now underway to 18,000 dairy farms through the
Sustainable Dairy Assurance Programme (SDAS).
The key focus of the programme is feedback and advice. The initial feedback focuses on informing
the farmer how they performed and how the result compares with other similar farms.
31
Comparing results across farms
Your Beef Enterprise Carbon
footprint
0
2
4
6
8
10
This audit can be further built upon using the Carbon Navigator developed jointly by Teagasc and
Bord Bia, where farmers can set targets for improvement in practical management areas and see
the potential impact of achieving them on their farm’s footprint and financial performance. It is the
intention that this carbon navigator will be used to focus advice under the knowledge transfer and
beef genomic schemes in the draft RDP.
3.3.2 Outline of Mitigation Actions
1. Green Low-Carbon Agri-Environment Scheme (GLAS)
Proposed new GLAS scheme introduced under the RDP (2014-2020) will build on the progress of
previous agri-environment schemes and will deliver overarching benefits in terms of rural
environment whilst addressing the issues of climate change mitigation, water quality and the
preservation of priority habitats and species. The incorporation of core mandatory requirements
and the focus on the farmer delivering actions that will provide the most environmental benefit on
his/her farm will ensure that the optimum environmental impact is achieved. Central to its
objective of environmental protection and conservation will be its application supported with the
appropriate level of specialist knowledge. The Knowledge Transfer Measure of the RDP will play a
key role in this regard. GLAS aims to work within the framework for environmental sustainability
and the scheme will contribute to meeting Ireland’s objectives as set down by the EU Climate
Change and Renewable Energy Package and the Kyoto Protocol. To this end, the advancement of
low-carbon agriculture will form a central component of GLAS through the retention of soil carbon
stocks and through the encouragement of climate friendly agricultural practices such as minimum
tillage, green-cover establishment and low-emission manure spreading techniques. It is expected
that 50,000 farmers will join GLAS in its first five years
2. Beef Data and Genomics Programme
The new Beef Data and Genomics Programme is designed
to build on the strong link between the sustainability of Irish
beef production and maximising the contribution of Irish
agriculture to national climate change initiatives. This
programme will provide support to farmers to take samples
for genotyping from selected animals in their herds and to
provide vital breeding data to support the development of a
national cattle breeding databank. This data will provide
farmers with the tools to select higher quality and more
efficient breeding replacements through the use of cutting edge genomic technology.
The application of this technology on a national scale through investment in this programme aims
to secure this technology’s adoption in the national suckler herd similar to its widespread adoption
32
in the national dairy herd. It supports efficiency gains which deliver benefits directly to the farmer in
terms of output and financial return as well as to the environment as efficiency of production
systems improve. Thus the targeted increased value of output will be achieved with a reduced
suckler herd and less intensive resource inputs than is currently the case. This is predicted to result
in a reduction in emissions to the environment, including a reduction in greenhouse gas emissions
This initiative will help to place Ireland firmly to the forefront globally in beef genetics, enhance our
reputation as a world leader in sustainable food production, increase the carbon efficiency of the
sector, and from a marketing perspective, help to reinforce the uniqueness of our offering on EU
and world markets. The collection of vital genetic information can also provide a building block for
the development of a genetic traceability system which would be a global first, placing Ireland
firmly in first place globally when it comes to consumer assurance and traceability.
The benefits of this improved and increased infrastructure will be further reinforced when coupled
with the Knowledge Transfer elements of the RDP which will assist farmers to be appropriately
educated in key environmental matters such as understanding and appreciating the necessity to
protect the environment and, secondly, in acquiring the necessary skills in how to achieve that
protection at a practical operational level.
3. Knowledge Transfer Measures
The benefits of this suite of knowledge transfer measures will further support and reinforce other
elements of the RDP such as GLAS and beef genomics which will assist farmers and advisors to be
appropriately educated in key environmental and climate action matters and, secondly, in acquiring
the necessary skills in how to achieve that protection at a practical operational level.
Knowledge transfer to the farming community is to be achieved through the application of a
number of schemes in the 2014-2020 RDP. These are: the establishment of Knowledge Transfer
Groups, European Innovation Partnerships, Continued Professional Development for Advisors and
the development of a Targeted Animal Health and Welfare Advisory Service.
These measures have the potential to make an important contribution to both the efficiency and
quality of farming activity in Ireland. While improved efficiency has the potential to increase output,
and hence raise the environmental footprint of agriculture overall, its close linkage to
environmental knowledge and environmental best practice has the potential to greatly increase the
depth and quality of the application of environment protection and enhancement at individual farm
level. This can be regarded as a positive impact on the primary environmental receptors of farming
activity, namely soil, surface water, ground-water, biodiversity and climate (the latter in the context
of GHG emissions). Other initiatives that increase the knowledge transfer base include:



The Carbon Navigator – a management tool which allows farmers to set improvement
targets in key management areas and see results for their enterprise in terms of
environmental and economic performance.
Beef Technology Adoption Programme 2014 (BTAP) – an initiative to encourage cattle
farmers to improve their beef businesses.
Beef Data Programme (BDP)
33



Sheep Technology Adoption Programme (STAP)
Smart Farming – tool used at farm level to measure, monitor and reduce environmental
performance
Teagasc BETTER Farm Programme
Some of the above measures will be part of the knowledge transfer programme in the Rural
Development Programme 2014-2020.
Decisions about how land is used and its effect on emissions are not solely the preserve of
stakeholders within agriculture. In particular, the willingness of farmers to adopt new practice will
depend on knowledge transfer of best practice. Likewise the willingness of farmers to invest in
forestry and other biomass crops, such as willow or miscanthus, will depend on energy policy and
growth in demand for biomass. The public sector can help stimulate demand particularly through
the usage of biomass in the heating of public buildings. In conclusion, working towards carbon
neutrality is an important ‘horizon-point‘ on which agriculture can take the lead but which will
require active commitment from a range of government departments, agencies and organisations.
4. Targeted Agricultural Modernisation Schemes II (TAMS II)
TAMS was introduced under the RDP 2007-2013, and the new draft plan RDP includes a range of
measures under TAMS II. These schemes target particular areas of investment in order to assist
farmers to establish or upgrade their facilities in a particular manner. Examples of facilities to be
supported include dairy equipment, slurry storage, animal housing and low emission slurry
spreading equipment. The grant-aid provided will ensure that farmers can meet the current
challenges of the agriculture sector as well as providing benefits in relation to animal welfare, the
environment, reduction of labour costs, climate change and increased efficiency.
This investment has the capacity to yield positive environmental benefits by reducing the risks of
accidental pollution and hence serves to protect the natural environment, most notably in the area
of water, soil, biodiversity, flora, fauna, air quality and climate. Investments such as low emission
slurry spreading equipment and manure storage can contribute to improving nitrogen use
efficiency.
The Bioenergy Scheme, now part of TAMS II, has provided establishment grants since 2007 to
farmers to grow miscanthus and willow for the production
of biomass suitable for use as a renewable source of energy.
There is the added benefit of providing an alternative land
use and income source for individual farmers, with the
potential for additional employment in rural areas as supply
chains develop and increasing areas of energy crops are
established. The future shape of the scheme is being
examined at present, with a view to establishing it on the
most effective footing for the next programming period.
Importantly, the bio-energy scheme has the potential to deliver benefits in the context of climate
change through reduction of GHG emissions and through carbon uptake. Secondary environmental
benefits include:
34
Protection of surface water and groundwater through the greater level of bio-absorption of
contaminants originating from farm animals;
Potentially positive impacts on biodiversity, most notably invertebrates and birds, through the
provision of additional types of habitats;
Positive impacts in maintaining rural populations through locally produced energy;
Development of a local bio-energy infrastructure that can also utilise biomass that would otherwise
arise as a waste thereby helping in the diversion of wastes from landfill.
Potential for Planting Biomass energy crops - The Tillage Sectoral Energy Crop Development Group
has indicated that there is the potential for planting up to 67, 000 hectares with biomass energy
crops which could produce up to 629,800 oven dry tonnes of woodchip per year. This is equivalent
to 39% of Ireland’s 2020 renewable heat target.
The Biomass Expansion Scheme will build on experience of similar grant assistance provided since
2007 to farmers to grow miscanthus and willow for the production of biomass suitable for use as a
renewable source of energy. The scheme will contribute to one of the principal objectives of the
draft RDP which is to support the more sustainable management of natural resources and
importantly, it has the potential to deliver benefits in the context of climate change through
reduction of GHG emissions and through carbon uptake. In addition to the Biomass Expansion
Scheme, other potential investments in renewable energies can be considered under the LEADER
element of the RDP where local development strategies seek to address the cross-cutting issue of
climate change.
5. Organic Farming Scheme
The proposed Organic Farming Scheme under the RDP (2014-2020) promotes organic agriculture as
an alternative farming system and will provide support for management practices that can help
farmers to adapt and mitigate against the effects of climate change through enhancing ecosystems,
diversifying crop and livestock production, and building farmers’ knowledge base to confront
changes in climate.
To meet these objectives, and with the support of the Organic Farming Scheme, organic agriculture
farmers need to implement a series of practices that optimise nutrient and energy flows and
minimise risk.
Organic production is an overall system of farm management and food production that combines
best environmental practices, a high level of biodiversity, the preservation of natural resources and
the application of high animal welfare standards, and a production method in line with the
preference of certain consumer for products using a natural substances and processes.xvi To meet
these objectives, and with the support of the Organic Farming Scheme, organic agriculture farmers
need to implement a series of practices that optimise nutrient and energy flows and minimise risk,
such as:
35








Crop rotations as a prerequisite for an efficient use of on-site resources;
Crop diversity;
Taking advantage of on-site resources, such as livestock manure for fertiliser or feed produced
on the farm. Organic fertilisers are known to have positive effects on soil carbon;
Choosing plant and animal species that are resistant to disease and adapted to local
conditions;
Raising livestock in free-range, open-air systems and providing them with organic feed;
Using animal husbandry practices appropriate to different livestock species;
Symbiotic nitrogen fixation with legumes and
Biological pest control
At present, there are c.1,330 organic farmers in Ireland with 52,783 hectares of land under organic
production methods. This equates to just over 1% of our agricultural land. The national target of 5%
of Utilisable Agricultural Area (UAA) under organic production is reaffirmed in the Food Harvest
2020 report.
6. Use of Animal By-products
DAFM in collaboration with the Department of the Environment, Community and Local
Government and the EPA has sought to encourage the use in practice of animal by-products such as
tallow which can be used as a substitute for imported heavy fuel oil, and poultry litter which can be
used as a biomass energy source. The sustainable use of animal by-products can also result in wider
environmental and economic benefits. For example, as an end product of processing, the organic
residue agri-fertiliser has the potential to replace other fertiliser sources and, used in accordance
with a nutrient management plan, can assist in meeting the objectives of the EU (Good Agricultural
Practice for Protection of Waters) Regulations, 2014.




DAFM will continue to encourage and facilitate the innovative use of animal by-products for
energy production in accordance with EU regulations.
DAFM will engage with the agri-food sector, particularly with regard to new agri-food
enterprises in terms of using their waste product for energy production.
DAFM will explore opportunities for research, development and demonstration projects in
the bioenergy sector accessing funding available from sources such as Research Stimulus
Fund, the Council for Forest Research and Development (COFORD) Research Programme
and the European Innovation Partnership on Agricultural Sustainability and Productivity.
Teagasc and other relevant third level institutions will continue to engage in bioenergy
research, development, demonstration, training and advice provision, including in relation
to the forest-based biomass supply chain.
36
7. Research on Agriculture and Forestry
The Department’s Research Division manages publicly-funded agriculture, food and forestry
research programmes. The principal sources of funding are:
• The Food Institutional Research Measure FIRM): FIRM is the primary national funding
mechanism for food research in third level colleges and research institutes with the aim to develop
‘public good’ technologies that will underpin a competitive, innovative and sustainable food
manufacturing and marketing sector.
• The Research Stimulus Fund (RSF): RSF provides funding, on a competitive basis, to the Irish
research institutes for 'public good' agricultural production related research. The main aims of the
programme are to facilitate research that fills gaps in the mainstream programme, to support
sustainable and competitive agricultural production practices and policies, and contribute to
building and maintaining a knowledge economy and research capability in the agriculture sector.
• Programme of Competitive Forestry Research for Development (COFORD):
COFORD provides funding, on a competitive basis, to the Irish research institutes for 'public good'
research that addresses forestry policy and priorities, and transferring the knowledge generated
into practice.
Research Initiatives can be seen at APPENDIX NO. 1 Research Initiatives
3.4 Measure Report Verify
The Teagasc MACC included a cost/benefit analysis of emission mitigation measures. A version of
this is shown in the table below:
Figure 3.7: Cost Benefit Analysis of Emission Mitigation Measures (MACC)
Measure
Enterprises
involved
Improving genetic
merit
-Improving fertility
-Increasing milk
yield per U
-Earlier calving
-Improved survival
and health
Higher daily weight
gain in Beef Cattle
Continuing to improve genetic
merit of dairy herd by
increasing EBI by a further €32
per cow to €140
Dairy
Use of finishing bulls to
improve average lifetime daily
gain. To gain 0.75kg per day
from 0.68.
Beef
Extended grazing
season
Extension of the grazing season
(the number of days that
animals spend on grass
outdoors) reduces emission
intensities by reducing the
quantity of stored manure and
Dairy /Beef
less stored manure
and lower enteric
methane emissions
Abatement
Potential 2020
(MtCo2eq)
0.555 (LCA global)
Cost
Cost Beneficial
0.596 (IPCC)
0.146 (LCA global)
Cost Beneficial
0.122 (IPCC)
0.332 (LCA global) –
Dairy
0.264 (IPCC) - Dairy
Involves training
and advisory costs
but is economically
beneficial to farmers
0.08 (LCA global) –
37
Figure 3.7: Cost Benefit Analysis of Emission Mitigation Measures (MACC)
Measure
on grazed diets
Manure
Management
Other gains in
nitrogen efficiency
(incl. use of clover)
Enterprises
involved
by lowering direct enteric
methane emissions from
animals.
Comprises a number of related
farm management actions that
will reduce GHG emissions
associated with manure
1. Spring application
2. Bandspreader or trailing
shoe application methods
3. Extended grazing and
reduced slurry volume
being produced
This measure encompasses all
farm interventions that result
in more efficient use of
nitrogen fertiliser on grassland,
other than improved manure
management and the use of
nitrification inhibitors.
Includes use of clover, nutrient
management planning and
further improvements in the
timing and application of
fertiliser nitrogen.
Abatement
Potential 2020
(MtCo2eq)
Beef
0.04 (IPCC) - Beef
Dairy/Beef
0.056 (LCA)
0.036 (IPCC)
0.065 (LCA global) –
(Trailing shoe)
0.041 (IPCC)
(Trailing shoe)
Dairy,
Suckler
0.238 (LCA global)
Associated with
purchase of new
equipment. May be
cost-prohibitive and
will depend on grant
payments
Cost-beneficial
0.080 (IPCC)
Beef
Sheep
Use of nitrification
inhibitors
One potential mitigation
measure to reduce N²O
emissions is the use of
nitrification inhibitor
dicyandiamide (DCD). DCD has
been shown to reduce nitrous
oxide and nitrate leaching
losses and in some cases
increase pasture production
Dairy/Beef
Minimum tillage
techniques
Reducing tillage intensity
typically increases storage of
SOC relative to conventional till
practices as these practices
reduce soil erosion.
Tillage
Increased use of
cover crops
Cover crops are traditionally
used to reduce N emissions to
groundwater during the fallow
period – winter cover has been
observed to reduce net soil
CO2 emissions
Tillage
Biofuel/Bioenergy
crops *
Willow & Miscanthus for
production of electricity
Beef
0.281 (LCA global)
0.298 (IPCC)
Willow for the production of
heat
Beef
0.376 (LCA global)
0.419 (IPCC)
Oilseed Rape for Biodiesel
Cost
0.389 (LCA global)
0
(IPCC)
0.148 (LCA)
-0.02 (IPCC)
Associated with
technological
interventions May
be cost-prohibitive.
Cost beneficial but
will be based on
technological
interventions
0.24 (LCA)
0.08 (IPCC)
Tillage
(replace
Based on land use
change
0.112 (LCA global)
38
Figure 3.7: Cost Benefit Analysis of Emission Mitigation Measures (MACC)
Measure
Winter Wheat for bioethanol
production
AD of pig slurry
Enterprises
involved
spring
barley)
Tillage
Abatement
Potential 2020
(MtCo2eq)
Cost
0.174 (IPCC)
0.223 (LCA global)
0.318 (IPCC)
Sugar Beet for bioethanol
production
Tillage
Abatement measure involves
using pig slurry in combination
with grass silage in an AD to
convert methane to energy.
Pig sector
0.093 (LCA global)
0.147 (IPCC)
0.188 (LCA)
0.188 (IPCC)
Associated with new
tech/and cost of
equip. May be costprohibitive and will
depend on grant
payments
39
4. The Forestry Sector
4.1 Introduction
Ireland’s national forest estate now covers 737,904 ha by the end of 2013, or 10.7%, of the land area.
Since 1990, approximately 300,000 hectares have been afforested. Despite this rate of planting, the
level of forest cover is low by European standards where average forest cover among the EU-27
countries stands at 37%8. Non-native species represent 76.2% of the forest area, and native species
represent 23.8%. The species composition in Ireland’s forest estate is as follows:
Figure 4.1: Species composition (%) in Ireland's forest
estate
Norway Spruce, 4.1
Scots pine,
1.3 Other pines, 9.7
Douglas fir, 1.6
OLL Broadleaves,
1.5
OS Lbroadleaves,7.3
Larch spp, 4.4
Other Conifers, 0.6
Ses & ped Oak, 2.6
Beech, 1.5
Ash, 3.2
Sycamore, 1.5
Sitka spruce,
52.4
Birch spp. 5.9
Alder, 2.4
The forest industry, comprising the growing, harvesting and processing of forest products, makes a
significant and increasing contribution to the Irish economy. It is estimated that the economic value
of the forest sector in 2012 was €2.3 billion, when both indirect and induced effects are taken into
account. The sector is responsible for approximately 12,000 jobs in the economy. Wood processing
in Ireland is export-led: in 2012, exports of forest products were valued at €303 million. Wood based
panels (WBP) accounted for €179 million, the balance comprising paper and sawn timber exports.
Woodlands and forests contribute much to the health and diversity of Ireland’s natural
environment, and contain substantial carbon (C) in the soil, trees and other vegetation. Globally
they are hugely important to the carbon, water and energy cycles and have substantial impacts on
habitats and ecosystems. The removal of forests releases CO2 into the atmosphere, while growing
trees absorb CO2 from the air. Other GHGs such as methane and nitrous oxide are also exchanged
between forests and the atmosphere, so forests are a key component of the planet’s GHG balance.
Therefore the functioning and management of forests are critical for climate change mitigation,
and contribute to the reduction of net GHG emissions into the atmosphere.
8
Source, FAO Global Forest Resources Assessment 2010
40
4.2 Climate change mitigation and Irish forestry
Deforestation (loss of forest cover) is one of the major contributors to climate change, and currently
accounts for 17% of global greenhouse gas emissions. Forests provide a range of raw materials for
industry as well as services to society. One of the main services provided by forests is climate
change mitigation which works by removing and locking up carbon dioxide from the atmosphere
which is strongly dependent on having young age classes to balance out harvest and other
decreases in carbon stocks.
Forests play a significant role in mitigating climate change by removing carbon dioxide from the
atmosphere and then storing it in trees, other vegetation and in soils. This process is known as
carbon sequestration, and the rate at which it occurs is referred to as the forest sink. It is important
to distinguish between a reservoir and a sink in terms of forests and climate change:
Irish Forests – Carbon Reservoirs and Sinks
A reservoir is defined under the Climate Change Convention as a component or components
of the climate system where a greenhouse gas is stored.
A sink is defined as any process, activity or mechanism which removes a greenhouse gas
from the atmosphere.
The total carbon reservoir or store in Irish forests currently exceeds one billion tonnes of carbon
dioxide, most of which is in the soil. Annual removal of carbon dioxide from the atmosphere by
Ireland's forests exceeds 6 million tonnes per annum, or 3.6 million tonnes net of carbon dioxide
removed in roundwood harvest.
The use of forests to mitigate climate change is one of the mitigation mechanisms recognised by
the Kyoto Protocol. There are specific parts of the protocol and related decisions of the UNFCCC
that specify how forest sinks can be used to meet Parties’ compliance with their Kyoto greenhouse
gas emissions limit. Forest sinks in Kyoto forests, those forests established since 1990 make a
substantial contribution to Ireland complying with its Kyoto target and sequestered 15 million
tonnes of carbon dioxide over the 5-year period to the end of 2012.
Pre-1990 forests also sequester carbon, and contribute to climate change mitigation. Current
projections suggest that these forests will sequester about 142,000 tonnes of carbon dioxide per
year, under business-as-usual harvest. Additional sequestration over this amount will result in
credits, and vice versa less sequestration will result in debits.
The forestry sector provides a range of opportunities to mitigate rises in greenhouse gas levels,
including:





afforestation/reforestation;
forest management;
reduced deforestation (land use change from forest to non-forest);
increased use of wood products;
use of forest products for bioenergy to replace fossil fuel use.
41
Deforestation at the national level needs to be controlled in order to protect the climate change
mitigation benefits of Ireland's forests and in order to sustain the absorption of carbon dioxide. In
the Irish context, this entails the need to continue afforestation at a level in the region of 15,000
hectares per annum for the next two decades. Achievement of this goal will not only sustain the
ability of the national forest estate to remove carbon dioxide from the atmosphere, it will also
provide a renewable energy resource and a sustainable raw material for construction, and a range of
other uses which will be a key component of national climate change and land use policy.
Forests themselves are vulnerable to the impacts of climate change and current knowledge of
impacts of climate change on forest ecosystems is subject to large uncertainties, particularly in
relation to the interactions between different climatic factors. However, taking the current state of
knowledge, effective and co-ordinated planning is required to ensure a timely and progressive
transition towards a climate resilient national forest in the future. Given the long-term nature of
forestry, the selection of suitable provenances or genotypes and adaptable management practices
under future climate change scenarios is essential for sustainable forestry in Ireland. 9
4.3 Key Policy drivers for the Forestry Sector
A. EU Forest Policy
The EU Forestry Strategy10 adopted in 1998 put forward as its overall principles the application of
sustainable forest management and the multifunctional role of forests. The Strategy was reviewed
in 2005 and the Commission presented an EU Forest Action Plan11 in 2006. The EU Green Paper - A
Public consultation about the future of forests and forestry policy in the European Union was launched
in March 2010. These include a wide range of social, economic and environmental functions with an
emphasis on climate change and biodiversity loss.
The Commission adopted a Communication on a new EU Forest Strategy12 in 2013. The EU Forest
Strategy highlights that forests are not only important for rural development, but also for the
environment, for industry, bio-energy, and the fight to combat climate change. The strategy
encourages Member States to optimise the forest sector’s contribution to the green economy and
improve the resilience, environmental value and mitigation potential of forest ecosystems. The
promotion of wood fuel as a substitute for fossil fuels is a priority area within the Strategy.
B. National Forest Policy
Notwithstanding the necessity to link proposed measures to EU policy goals, forestry measures must
also fulfil and be consistent with national policy. In this regard, the Departments Statement of
Strategy includes the following goal in relation to forestry:
“promoting economic, social and environmentally sustainable farming, fishing and forestry”
Strategic actions to achieve this goal include the following:
9
Eugene Hendrick, 2014
http://ec.europa.eu/agriculture/fore/index_en.htm
11
http://ec.europa.eu/agriculture/fore/action_plan/index_en.htm
12
http://ec.europa.eu/agriculture/forestry/strategy/communication_en.pdf
10
42




Develop and implement measures, schemes and services that underpin a rural economy
Collaborate with other organisations to deliver policies on environmental sustainability and
biodiversity
Enhance the development of a sustainable and diverse forestry sector
Implement measures to promote use of non-food crops for energy production
National forestry policy is also framed by the Smart, Green, Growth message of Food Harvest
2020.
Proposed measures in the Forestry Programme 2014-2020 aimed at addressing these objectives
include:
Smart: knowledge transfer and innovation features proposed are knowledge transfer groups,
targeted training and advisory services.
Green: Support for the creation of new forest and woodlands will contribute to resource efficiency
and the shift to a low carbon economy by providing sustainable and renewable raw material for
industry and renewable energy. Support for native woodland conservation will contribute to the
protection and enhancement of forest ecosystems. The forest genetic measure will support the
conservation of native forest genetic material and improve the resilience of Irish forest species to
disease and the efforts of climate change.
Growth: The range of measures proposed provides for a number of supports aimed at encouraging
growth and maintaining viability.
C. Forests, products and people - Irelands forest policy – a renewed vision
A new forest policy, based on a stakeholder process, was issued by DAFM in June 2014. Entitled
Forests, products and people - Irelands forest policy – a renewed vision,13 it sets out an updated
national forest policy strategy which takes account of the substantial changes that have occurred
since the publication of Growing for the Future in 1996.
The strategic goal now is to develop an internationally competitive and sustainable forest sector
that provides a full range of economic, environmental and social benefits to society and which
accords with the Forest Europe definition of sustainable forest management. Overall, this renewed
forest policy reflects the Oslo Ministerial Decision: European Forests 2020 (Ministerial Conference on
the Protection of Forests in Europe 2011), and the vision it contains for Europe’s forests:
To shape a future where all European forests are vital, productive and multifunctional. Where
forests contribute effectively to sustainable development, through ensuring human well-being, a
healthy environment and economic development in Europe and across the globe. Where the forests’
unique potential to support a green economy, livelihoods, climate change mitigation, biodiversity
conservation, enhancing water quality and combating desertification is realised to the benefit of
society.
Irelands new forest policy will guide the expansion of the forest sector to 2046 in a sustainable and
cost efficient manner and it outlines the general objective of national forest policy and puts forward
a series of strategic actions. Forests can provide multiple environmental and social benefits, such as
13
Forests, products and people - Ireland's forest policy - a renewed vision
43
biodiversity, water quality, landscape, recreation and leisure, climate change mitigation and
renewable energy. To deliver on these services will require the wise management of existing
resources and careful planning of future afforestation.
Forests’ contribution to climate change mitigation through carbon sequestration forms an
important element of the national climate change strategy. It is estimated that Irish Kyoto-eligible
forests will sequester about 4.8 million tonnes of carbon dioxide (CO2) in 2020, representing
between 40% and 60% of distance to target (depending on the emission scenario used and the final
nature of targets to 2020). The afforestation policy will not only support Ireland’s efforts to reach
the demanding greenhouse gas emission reduction targets (which are anticipated to rise to 80% of
the 1990 level by 2050) but will also reduce dependence on fossil fuels and support the transition to
a low carbon economy.
D. Irish Forests and Renewable Energy
Ireland, with growth rates of certain species more than double those achievable in some European
countries, has a strong comparative advantage in the growing of wood fibre. It is vitally important
that future afforestation harnesses this advantage through the use of suitable reproductive
material, appropriate species choice and suitable site types. Such an approach will contribute to the
sustainability of raw material supply and enhancement of carbon sequestration and towards
ensuring sustainable supplies of renewable energy in line with the legally-binding 16% renewable
energy 2020 target under the EU Renewable Energy Directive.
The National Renewable Energy Action Plan (NREAP)14 sets out the Government’s strategic
approach and concrete measures to deliver on Ireland’s 16% target of its total final energy
consumption from renewable energy sources by 2020. The development of renewable energy is
central to overall energy policy in Ireland. Renewable energy reduces dependence on fossil fuels,
improves security of supply and reduces greenhouse gas emissions creating environmental benefits
while delivering green jobs to the economy.
The Bioenergy Plan will seek to form a link between critical policy areas for Ireland ,namely,
renewable energy, agriculture, forestry, the environment, sustainability and the growth potential of
the green economy. It seeks to provide a mechanism to inform and coordinate policy and
implementation across these policy areas, thus supporting the sustainable exploitation of Ireland’s
bioenergy resources.
A COFORD study (http://www.coford.ie/media) has shown that the contribution of wood biomass
required to meet the 16% renewable energy target by 2020, will double the gross demand for wood
biomass (in the Republic of Ireland), from 0.952 million cubic metres in 2011 to 1.696 million cubic
metres in 2020. Such a steep increase in wood biomass demand will require a high level of
investment in the supply chain, and will significantly increase the competition for wood fibre.
Sustaining wood fuel production beyond 2020 from Irish forests at the increased levels envisaged is
dependent on a continuation of policy measures and critically on the level of afforestation over the
next two decades. As wood fuels are mainly sourced from young forests a balanced age class
structure at national level is a prerequisite for sustained supply. An annual afforestation programme
in the region of 15,000 ha and preferably considerably more, needs to be implemented for an
extended period (two decades) to provide a long-term sustainable supply of wood fuels.
14
http://www.dcenr.gov.ie/NR/rdonlyres/C71495BB-DB3C-4FE9-A725-0C094FE19BCA/0/2010NREAP.pdf
44
Strategic Goal number 2 of Ireland’s Strategy on Renewable Energy 2012 - 2020 calls for “A
sustainable bio energy sector supporting renewable heat and power generation”. Forest roads,
forestry for fibre, thinning and tending schemes will all help to increase the level of supply of forestbased biomass and to sustain it into the future. These schemes also support the national climate
policy launched in April 2014, which calls for sustainable development, climate adaption and
resilience. Policies aimed at promoting renewable energy (in the form of heat and electricity) from
biomass will create a market for thinning and residues (both in-forest and from sawmilling).
E. Irish National Biodiversity Plan
One of the targets of Ireland’s second National Biodiversity Plan15 published by the Department of
Arts, Heritage and the Gaeltacht, is to optimise opportunities under agricultural, rural development
and forest policy to benefit biodiversity. The targets will be met through a series of actions set out
for various sectors. The actions for forestry are as follows:






Maintain target of 30% broadleaf planting in afforestation;
Continuation of forest research programme on forest biodiversity, carbon accounting and
the interaction of climate change and forest systems;
Ensure effective implementation of cross-compliance, statutory management
requirements and forest service guidelines/requirements to ensure conservation of
biodiversity;
Consider and develop guidance on alternative forestry management options which aim to
deliver additional biodiversity benefits;
Identify non-wood imports driving deforestation and investigate the effectiveness of any
potential measures to prevent, minimise and/or mitigate this deforestation;
Introduce revised forest legislation which will support the conservation, protection and
sustainable management of forest biological diversity.
Biodiversity issues have been increasingly integrated into national forestry policy. Sustainable forest
management underpins all forestry policy, grant schemes, licenses, consents and other measures
administered by the Forest Service. This is achieved through implementation of the National Forest
Standard, Code of Best Forest Practice and a suite of environmental guidelines covering areas such
as water quality, landscape, biodiversity and forest protection.
4.4 Forestry Sector Action Plan 2014-2020
4.4.1 Introduction
The overall aim of Ireland’s national forestry programme is to develop the sector to a scale and in a
manner that maximises its contribution to national economic and social well being on a sustainable
basis, and which is compatible with the protection of the environment. The current target is to
increase the area under forest from 10.7% of the land area to 18% by 2046.
The new EU Forest Strategy requests Member States to optimise the forest sector’s contribution to
the green economy, improve the resilience, environmental value and mitigation potential of forest
ecosystems achieving nature and biodiversity objectives, adapting to climate change, conserving
15
Ireland's second National Biodiversity Plan 2011 - 2015
45
genetic resources, forest protection and creating new woodland. Forest biomass is a priority area
within the strategy, where the Commission commits to working with Member States to explore and
promote the use of wood as a substitute for fossil fuels. Ireland’s national afforestation policy will
not only support Ireland’s efforts to reach the demanding greenhouse gas emission reduction
targets but it will also reduce dependence on fossil fuels and support the transition to a low carbon
economy.
As a first step, the following four actions have been identified:
1. Create new woodland to capture carbon, produce wood and help mitigation
2. Increase the supply of forest-based biomass
3. Support forest holders to actively manage their plantations and
4. Optimise the environmental and social benefits of new and existing forests
The implementation of the forest action plan can contribute towards climate change mitigation by
increasing forest carbon absorption capacity by planting more trees, increasing biomass
accumulation through better forest management and conserving existing forests under the native
woodlands conservation scheme. The support for seed stands and seed orchards will also help to
develop improved planting material for future forests. The above actions are supportive of the EU’s
strategy on adaptation to climate change.
4.4.2 Create new woodland to capture carbon and increase the level of forest cover
The objective is to establish 10,000 ha’s approximately of new forests and woodlands per annum to
increase the level of forest cover. In order to achieve this objective, the DAFM will implement the
afforestation and creation of woodlands measure which includes the following schemes:
-
Afforestation Scheme
Native Woodlands Scheme (Establishment)
Forestry for Fibre Scheme
Agro- Forestry Scheme and
Reconstitution Scheme
4.4.2.1 Afforestation Scheme
This is mostly aimed at commercial wood production but which retains a 15% open area\retained
habitat obligation for plantations over 10 ha. These forests must also contribute to the target of
achieving 30% broadleaf planting on an annual and national basis.
4.4.2.2 Native Woodlands Scheme (Establishment)
This scheme has a mainly environmental focus and is aimed at extending native woodland cover
and associated biodiversity in Natura 2000, acid sensitive sites and riparian areas. Support under
this scheme is provided for the planting of native broadleaves and the retention of species rich
habitats such as fens and species rich grasslands. Close to nature forest management is encouraged
under this scheme.
46
4.4.2.3 Forestry for Fibre Scheme
This scheme provides an opportunity for land owners to plant trees for fuel or for supply to other
end uses such as panel board manufacture.
4.4.2.4 Agro-Forestry Scheme
Aimed at farmers who wish to plant forest but who also wish to use their land for grazing or silage.
This provides farmers with an opportunity to become involved in forestry on a small scale to grow
quality wood for their own heating needs while also maintaining their existing agricultural income
stream.
4.4.2.5 Reconstitution Scheme
This scheme deals with forest holders whose plantations have suffered damage of more than 20%
of the relevant forest potential. This scheme offers reassurance that the State will support the reestablishment of a grant aided plantation to its original condition. It also provides aid for the
removal and destruction of infected material thereby reducing the risk of disease spreading.
By adhering to the principles of sustainable forest management, these schemes will deliver a range
of forest services such as water quality protection, soil protection, habitat provision, as well as
amenity and recreational services.
The new Sustainable Use of Pesticides Directive16 will also be an important feature of these
schemes ensuring proper pesticide management. Furthermore, these forests will contribute to the
mitigation of climate change though sequestration, abatement (converting agricultural land mostly
used for livestock rearing from a source to a sink of greenhouse gases) and substitution (by
replacing imported fossil fuels with indigenous wood fuels in the production of heat and power and
by replacing more energy intensive materials).
4.4.3 Increase the supply of forest based biomass
4.4.3.1 Forestry for Fibre and Agro-Forestry Schemes
The report Forests, products and people Ireland’s forest policy – a renewed vision recently concluded
that the long term sustainable level of forestry’s contribution to renewable energy targets is
dependent on the scale and accessibility of the forest resource.
In order to increase the supply of forest based biomass, DAFM will introduce forest for fibre and
agro forestry schemes which will provide opportunities for private growers to plant trees for energy
purposes. Farmers who otherwise might not be attracted to more traditional forms of forestry
either because of the long rotations before commercial harvesting or the permanent loss of
agricultural land might be more amenable to taking part in these schemes.
4.4.3.2 Forest Road Scheme
A Value for Money Review17 of the Forest Road Scheme was undertaken in 2010 and concluded,
inter alia, that the scheme’s outcomes reflect the growing awareness of the importance of forest
roads in the overall afforestation programme. Food Harvest 2020 states that the Department
should continue to support the provision of the forest road network, while also evaluating new
infrastructure systems.
16
17
The Sustainable Use of Pesticides Directive
Department of Agriculture, Fisheries and Food, Value for Money Review – The Forest Road Scheme (2010)
47
Access is vital if forests are to be sustainably managed and currently the private forest estate due to
its age structure is largely unroaded. Ireland’s existing forest resource is relatively young, especially
in the private sector where output is projected to increase significantly over the next 15-20 years.
The initial cost of forest road construction (c.€1,000/ha) is prohibitive for many private forest
owners and support for private forest holders to build forest roads is crucial. Without financial
support it would be uneconomical to thin and without roads there is no access to the forest. Support
for development of forest infrastructure is necessary to improve access to forests to facilitate
harvesting and timber extraction.
In order to increase the forest road infrastructure by 110-125 km per year, DAFM will invest in the
servicing of forest area for clear felling and thinning operations. This infrastructure will also provide
vital access to forest areas for emergency vehicles and for recreational and amenity purposes.
4.4.4 Support private forest holders to actively manage their forests
Encouraging and facilitating knowledge transfer in the forest sector is a primary policy objective.
Private forest holders find it difficult to single-handedly thin their plantations as the cost of
harvesting and transportation can outweigh the financial returns on an individual basis.
Furthermore, due to the age profile of the forest estate, there is little forest management culture
among private forest owners in Ireland. Consequently, many owners are not familiar with thinning
operations nor of the importance of thinning to ensure the long term economic viability of forests.
In order to support private forest holders to actively manage their forests, the DAFM will implement
the following measures:
-
Knowledge Transfer Groups (KTG)
Establishing Producer Groups
Continued Professional Development (CPD)
Targeted Training
Advisory Services
Forest Management Plans
4.4.4.1 Knowledge Transfer Groups (KTG’s)
A survey of forest owners, (Ni Dhubhain, A., Maguire K., Farrelly N., 2010) found that those who had
attended forest activities are 2.5 times more likely to thin their forests. There is a clear need,
therefore, to build significantly on the existing skills and knowledge base and develop a culture of
sustainable forest management among forest owners. The transfer of awareness, knowledge and
skills to forest owners through forest Knowledge Transfer Groups (KTG’s) can play a pivotal role.
Group facilitators approved by DAFM, would be trained to a FETAC accredited standard in order to
operate a group. The programme will be open to established members of forest holder groups and
to forest holders wishing to join or form groups for the first time. The programme will focus
primarily on silviculture, financial, management, forest health, and environmental awareness to
include water quality and biodiversity and timber harvesting/marketing.
KTG’s are important contributor in bridging the gap between organisations and individuals who are
focussed on research and process improvement on the one hand and on the other, forest holders
whose enterprise can benefit from these developments. The aim will be to improve market uptake
of new forest technologies, processes and concepts. There are 26 producer groups already in
existence and the potential exists to use these groups as a platform for growing a network of KTG’s.
48
4.4.4.2 Establishing Producer Groups
The Food Harvest 2020 Report recommended that the forest industry should promote forest
producer groups in order to reduce management costs and increase the marketability of timber
from private forests. It also recommends mechanisms for relevant and up to date training to meet
new developments.
In recent years, facilitated by Teagasc and the Forest Service, 26 forest producer groups have been
established to date. While more than 1,900 forest owners have already become involved in group
structures, Forest Service statistics indicate that a further 8,000 forest owners have plantations of
12- 22 years old which are approaching or have already reached thinning stage. The majority of
these forest owners have no ongoing forest management or planning regimes in place. Critical
management decisions and in many cases, time critical harvesting interventions are now required.
DAFM will provide financial support to establish forest producer groups and the objective will be to
increase the number of existing producer groups by 50% over the programme period. Producer
groups provide a useful platform for forest holders living within a geographic catchment to combine
their expertise as well as their resources for mutual benefit. Learning from other forest holders can
engender a stronger ethos for accumulating knowledge which can lead to developing a certain level
of expertise in an area. Economies of scale as well as knowledge can provide the right circumstances
for growers to thin where they might not have done so if a producer group hadn’t existed.
4.4.4.3 Continuous Professional Development (CPD)
There is a need for CPD for registered foresters in the area of environment and forest management
activities. Up-skilling is required so that registered foresters are in a better position to assist
existing forest holders and advise individuals who are contemplating planting. This is particularly
relevant in relation to environmental compliance, best practice in forest management in relation to
support schemes operated by the DAFM.
DAFM will provide financial support to establish a CPD structure for 300 registered foresters.
Continuous professional development would require that professional foresters would participate in
a set number of events per year in order to remain on the list of registered foresters. The objective
is to establish a CPD structure for all registered foresters.
4.4.4.4 Targeted Training Scheme
There is increasing demand, particularly among emerging forest holder groups, for education and
training programmes on forest management including timber measurement, formative shaping,
pruning, chainsaw safety, preparing for first thinning and the marketing of forest products.
The issue of the safe handling of harvesting machine and chainsaw operators is now being raised
with representative bodies and needs to be addressed. Coillte specify harvesting machine operator
competency certification as a requirement in order to operate in Coillte forests and thus maintain its
FSC standard.
DAFM will provide financial support for training courses in relation to forestry schemes, procedures,
guidelines and environmental directives. Targeted training will be aimed at both forest holders and
forestry professionals and will include seminars, field events or more formal training courses aimed
at specific needs such as harvesting on sensitive sites.
4.4.4.5 Advisory Services Scheme
Advisory services in relation to new and existing schemes provide a key support mechanism for the
forestry programme where resources are aimed at promotion and encouraging farmers to plant. As
the forest industry expands in line with the expected increase in roundwood production, there is a
need to provide additional advisory support in areas such as forest management, bio-energy, agro49
forestry, harvesting on sensitive sites, environmental issues, plant health, marketing of forest
products and adoption of new technology. In relation to the latter, new technology related to
timber measurement could reduce the costs for private forest holders, thereby improving farm
viability. Agro-forestry is a new form of land use in Ireland which will require advisory services
promotion and support if it is to become a viable alternative land use option for farmers.
DAFM will provide financial support for advisory services and supports and it will be delivered in the
form of clinics, field days, information meetings, workshops, events such as “Talking Timber” and
conferences. This measure is particularly important in the context of the 2015-2020 Forestry
Programme as a number of schemes are being introduced for the first time.
4.4.4.6 Forest Management Plans (FMP’s)
Forest management plans are a priority area for the Forest Service. FMP’s contribute to accurate
forecasting of round-wood and biomass production, planning for harvesting, forest infrastructure
requirements, disease/fire risk assessment and management, environmental protection and forest
certification. Proper management is essential for the health and vigour of a forest plantation which
enables owners to maximise financial return.
Optimisation of forest information is included in the EU Forest Strategy where FMP’s are said to be
key instruments in delivering multiple goods and services in a balanced way. FMP’s are also
important features of both the EU 2020 Biodiversity Strategy and EU Rural Development funding.
4.4.5 Enhance the environmental and social benefits of new and existing forests
The state has invested significantly in the broadleaf planting programme and it is important that
the benefits of these forests are maximised for society. In order to enhance the environmental and
social aspects of forests, the DAFM will implement the following schemes:
-
Native Woodland Scheme (Conservation)
Thinning and Tending Scheme
Neighbourwood Scheme
Innovative Forestry Technology Scheme
Forest Genetic Reproductive Material scheme
4.4.5.1 Native Woodland Scheme (Conservation)
This scheme aims to enhance existing native woodlands and establish new native forests and
provide for the protection of endangered species such as the freshwater pearl mussel. The target is
to establish 60 ha of NWS (Conservation) per annum and improve the conservation status of the
freshwater pearl mussel in the eight priority catchments.
Support for example would include converting conifer forests growing along riparian zones to
native woodlands using close-to-nature forestry. Ground vegetation would be encouraged to grow,
acting as a filter reducing sedimentation from within the catchment. This would also have the effect
of stabilising vulnerable river banks and protecting the soil from erosion.
4.4.5.2 Thinning and Tending Scheme
This scheme is aimed specifically at broadleaf forests where support is provided to improve the
health and vitality of these forests by removing malformed, wolf or diseased trees, Thinning
encourages growth of potential crop trees and by managing natural regeneration.
These activities improve the visual amenity of the forest thereby enhancing the landscape. Forests
which have been thinned can also play an important role in soil and water protection where
healthier trees are better placed to perform these functions. Broadleaf forests can slow down
surface water runoff in water catchments reducing sedimentation\eutrophication of nearby
50
watercourses. These services are enhanced by ground vegetation that is encouraged to grow once
the canopy is opened up leading to more light reaching the forest floor.
4.4.5.3 Neighbourwood Scheme
This scheme is aimed at realising the recreational and wider social benefits woodlands and forests
can provide. The Neighbourwood Scheme is all about bringing communities and woodlands
together, by helping local authorities and others to create ‘close-to-home’ woodland amenities in
partnership with communities, for local people to use and enjoy.
Neighbourwoods provide accessible opportunities for recreation and regular exercise, and offer
people contact with the natural world and the changing seasons. They provide a venue for a wide
range of community and sporting events which contribute to social inclusion, and represent an ideal
‘outdoor classroom’ for local school children to learn about nature and the environment.
Neighbourwoods also deliver a wide range of environmental benefits, providing vital habitats for
wildlife, removing atmospheric carbon, promoting air quality and improving the visual landscape.
4.4.5.4 Innovative Forestry Technology Scheme –
The use of new forest technologies can contribute to reducing the environmental footprint of forest
activities as well as reducing forest management costs. However, there is reluctance on the part of
forest holders and forestry companies to invest in new technology for reasons of cost, risk and lack
of knowledge about such technologies. Support for investment in new technologies is therefore
necessary, whereby early adopters could purchase the equipment, use and test the equipment in
the field and if suitable to Irish conditions, demonstrate it to others. If this technology was
supported and proven to work effectively, it would increase the viability of private forests.
DAFM will provide support to assist individuals in procuring new technologies which can have a
positive impact on the economic as well as environmental aspects of their business once it relates
directly to the forest plantation. For example damage to forest and minor county roads can be
reduced through the use of variable tyre pressure systems for the haulage of logs, chip or forestbased biomass. Innovative forest technologies which have a cost associated with them and which
have not yet established a proven track record under Irish conditions could also be supported under
this scheme. Inventory measurement equipment is another example of technologies that could be
supported.
4.4.5.5 The Forest Genetic Reproductive Material Scheme
The conservation of genetic resources is referred to in the EU strategy as having a role in the
sustainable management of forests. Furthermore, the stategy highlights that in order for forests
to react to future threats and trends, genetic diversity must be enhanced and endangered genetic
resources protected. The strategy calls for forest genetic conservation (tree species diversity) and
diversity within species and within populations to be strengthened by Member States.
Ireland imports significant quantities of seed, for example, 95% of sitka seed is imported. Support
for seed stands and the establishment of new seed orchards would reduce dependency on imports
while providing an opportunity to improve the genetic quality of planting stock. The Forest Policy
Review calls for the use of genetically improved planting material which will deliver improved
timber quality and timber wood volumes to be supported.
51
Sustaining and Developing Ireland’s Forest Genetic Resources18 sets out a strategy for forest genetic
resource conservation and development and makes recommendations as to how this can be
achieved, including the establishment of a National Forest Genetic Resource Advisory Group.
Provision for funding to conserve and protect genetic resources at selected sites can form part of
this strategy.
4.4.6 Summary of Action Plan 2014 -2020
Figure 4.2
Action
Increase the level of forest
cover
Increase the supply of
forestry based biomass
Support private forest
holders to actively manage
their forests
Scheme
Target 2015-2020
Afforestation
NWS (Establistment)
Agro Forestry
Reconstitution
37,215 ha
2,700 ha
195 ha
Approvals generates demand
Forestry for Fibre
Forest Roads
3,300 ha
690 km & 600 special works
Knowledge Transfer
Groups and targeted
training activities
500 participants in KTG's specific
courses funded on request from
3rd level bodies
Advisory and Promotion
Services
600 individual visits, 3500 phone
consultations 20 field days and
other events
Establishing Producer
Groups
Investment in Forest
Technology
Forest Management
Plans
Enhance the
environmental and social
benefits of new and
existing forests
Woodland
Improvement
NWS (Conservation)
Neighbourwood
Scheme
Forest reproductive
Material
Maintain existing groups and
create 13 new groups
180 projects funded
6000 plans
9,000 ha thinned and tended
1,950 ha
30-60 projects
350 ha supported
Cahalane, G., Doody, P., Douglas, G., Fennessy, J., O’Reilly, C. and Pfeifer, A. 2007. Sustaining and
Developing Ireland’s Forest GeneticRresources. An outline strategy. COFORD, Dublin.
18
52
4.5 Measure, Report, Verify (MRV)
4.5.1 Create new woodland to capture carbon and increase the level of forest cover
The new forestry programme for Ireland proposes a suite of schemes which will provide
environmental services aimed at protecting water quality, improving soil stability, retaining and
enhancing diverse habitats, protecting endangered species, mitigating climate change and
enhancing the visual amenity of surrounding landscapes.
The afforestation and creation of woodland measure aims to increase the level of forest cover to
18% by 2046. The target is to create 10,000 hectare approximately of new forests each year (subject
to the availability of funds) over the programme period 2015 to 2020 which will lead to greater
supplies of forest biomass and saw-log sized material for renewable energy uses and for wood
product manufacture.
More specific targets are as follows:
Figure 4.3
Scheme Type
Afforestation
NWS
Establishment
Agro Forestry
Forestry for Fibre
Total
Programme Year 2015-2020
2017
2018
2019
2015
2016
2020
Target
5,440
5,990
6,165
6,215
6,615
6,790
450
450
450
450
450
450
2,700
10
20
25
40
50
50
195
100
200
500
500
1,000
1,000
3,300
450
450
450
450
450
450
2,700
37,215
Schemes to create new woodlands must contain at least 15% open space and retained habitat
(Areas of Biodiversity Enhancement) where the size of the new forest exceeds 10 ha. In sites less
than 10ha, the open space element of ABEs should be designed in conjunction with neighbouring
land use and may be reduced. These schemes must contribute to the national broadleaf target of
30% thereby contributing to a greater range of habitat types and a more diverse species mix.
The afforestation and creation of woodlands measure will be measured against






total afforestation planting achieved versus planting targets set
total broadleaf planting measured against the 30% broadleaf target
The total number of hectares of ABE established under this measure
The total number of hectares of NWS establishment versus the planting targets set
The total number of hectares of agro-forestry planted versus the planting targets set
The total number of hectares of forest for fibre planted versus the planting targets set
Given the levels of afforestation that have occurred since 1990, it is estimated that between 2008
and 2012 the average rate of sequestration in qualifying forests (under Article 3.3) over the first
commitment period of the Kyoto Protocol will be 3.23 Mt CO2 per annum. While afforestation levels
proposed under the new programme will have little effect on the levels of carbon sequestered in the
short term because forests grow relatively slowly as they establish themselves over the first five
years or so, these forests will make a substantial contribution to climate change mitigation in the
longer term. A planting programme of 10,000 ha will also support a sustainable harvest of 7-8million
m3 roundwood per annum into the future and consequently a sustainable and meaningful
contribution to climate mitigation over the long term.
53
4.5.2 Increase supply of forest based biomass
In 2012, the National Forest Inventory confirmed that 23% of the national estate had reached
thinning stage but had not been thinned. Mobilising wood output from first and subsequent
thinnings is a key strategy in meeting both wood biomass and round wood demand. The gross
demand for wood biomass will increase two-fold, from 1.589 million m3 in 2011 to 3.259 million m3
in 2020 which will require a high level of investment in the sectoral supply chain and will
significantly increase the competition for wood fibre. This demand is likely to increase beyond 2020
as the cost of fossil fuels continues to rise and higher renewable energy targets are set by the EU in
response to climate change and fuel security considerations. DAFM also supports a wood fuel
quality assurance scheme in partnership with the Irish Bioenergy Association, and an advisory
service on wood fuels at http://www.woodenergy.ie/
The success of the road scheme will be measured by comparing the number of kilometres of road
constructed against the target of 110-125 km per year thereby servicing up to 34,500 hectares of
forest for clear felling and thinning operations which will achieve a net realisable volume production
of 4.6 million m3 per annum by 2020 and 7-8 million m3 by 2028.
Good forest roads are crucial for effective forest management and maintenance. Wood harvesting,
game control and recreational activities require the accessibility provided by a suitable road
network. The construction of forest roads has an important and positive impact on the
environment, which results in the completion of first thinning and the uncovering of the forest
canopy. Light filtering through the canopy will stimulate vegetation growth leading to greater
biodiversity and enrichment of the forest floor in terms of animal, plant and insect life.
4.5.3 Support private forest holders to actively manage their forests
DAFM will provide financial aid to support private forest holders to actively manage their
plantations and the actions will be measured as follows:
a) Knowledge Transfer Groups (KTG’s)
The objective is to maximise the potential for knowledge and skill transfer to forest owners,
thereby stimulating proactive management and appropriate tending, thinning and harvesting
interventions. KTG will be measured against the number of groups established against the
target of funding 1000 new forest holders per year.
b) Setting up of Producer Groups
In recent years, 26 forest producer groups were established to date and this action will be
measured by comparing it with the objective of increasing the number of existing producer
groups by 50% over the programme period.
c)
Continued Professional Development (CPD)
This action will be measured by establishing whether the objective to establish a CPD structure
for 300 registered foresters has been achieved.
d) Targeted Training
This action will be measured by ensuring that there are sufficient numbers of adequately trained
harvesting (including chainsaw) and forwarding operatives, thinning taking place on time,
round-wood production targets are reached, new format of draft FMP proposed being
submitted, minimal accidents in forest operations, reduced pilot cases from the EU regarding
breaches of habitats directive.
54
e) Advisory Services
The objective is to ensure that the appropriate support is available to forest holders to enable
the maximum financial return to be generated from the forest resource. Its success will be
measured against the total number of advisory hours provided, number of demonstrations
given, events held, number of specialist areas covered and finally the number of forest holders
receiving advice.
f)
Forest Management Plans
The success of this action will be measured by comparing the number of forest plans supported
against the target of financing 6000 plans over the programme.
4.5.4 Enhance the environmental and social benefits of new and existing forests
DAFM will provide support for the following schemes to enhance the environmental and social
benefits of new and existing forests:
The Native Woodland (Conservation) Scheme
The success of the scheme will be measured by comparing the number of hectares planted against
the planting target of up to 360 ha per annum and improvement in the conservation status of
freshwater pearl mussel in the eight priority catchments.
The Thinning and Tending Scheme
The success of the scheme will be measured by comparing the number of hectares thinned against
the thinning target of 1500 ha of broadleaf and mixed forests each year under the programme. The
target total hectares of broadleaf woodlands thinned (9,000 ha) will be used to measure the
environmental benefits.
The Neighbourwood Scheme
The success of the scheme will be measured by comparing the number of projects supported
against the target of supporting up to 10 quality projects each year. It will also be measured by the
increase in the number of visitors to forests after the programme is completed against the baseline
figure of 18million people that visited forests in 2012.
The Innovative Forestry Technology Scheme
Support for the introduction of new technologies for use in private forests has the potential to
reduce management costs and improve accuracy in terms of forest management outputs. The
success of the scheme will be measured by the number of new technologies adopted by forest
holders, producer groups and contracting companies. Approximately 30 projects per annum will be
supported.
The Forest Genetic Reproductive Material Scheme
The success of the scheme will be measured by comparing the number of hectares supported
against the target of 350 hectares of seed production areas and 20 hectares of seed orchards to be
funded each year.
4.5.5 Conclusion
The Forest Service will re-instate a stand-alone annual report providing a review of achievement
versus specific goals in areas such as afforestation, timber production, environmental compliance
and climate mitigation while also providing a statistical database for reporting and planning. The
55
Forest Service will publish five year and annual business plans which clearly set out the work
programme for the coming period, indicators of achievement and the funding arrangements.
56
5. Challenges to 2050
5.1 The challenge to 2050
The National Economic and Social Council (NESC) report sets out a vision that Ireland will be a
carbon-neutral society by 2050, based on an approach to economic development that is socially and
environmentally sustainable. It outlines a way of thinking about the challenges - of climate-change
policy and the global resource crunch - and proposals for a pragmatic approach involving
simultaneous action along three tracks.
To move Ireland towards becoming a carbon-neutral society, the NESC Secretariat proposes a
pragmatic three-track approach. All three tracks should begin immediately and proceed
simultaneously and what distinguishes them is the kinds of action required in each:

Track 1: Strategic and Institutional - including Ireland’s engagement with the UN and EU
climate policy processes, new institutional structures and five strategic building blocks;

Track 2: Exploration and Experimentation - to consciously build policy and organisational
networks in specific areas and push these to ever-greater decarbonisation; and

Track 3: Design and Implementation - focuses on where early action makes sense and is
feasible, and measures to meet Ireland’s 2020 targets.
In addition, five strategic building blocks for the transition to a carbon neutral Ireland were
identified and one of those blocks is to create a world class agri-food sector working within a
carbon-neutral system of agriculture, forestry and land-use.
Ireland needs to, and can, become a world leader in the production, management and marketing of
low-carbon, high-quality sustainable food. This can be achieved by adopting carbon neutrality as a
point on the horizon for the country and the industry to work towards. The challenge of working
towards carbon neutrality will be achieved by pushing scientific research and probing practice to
identify further means of reducing emissions and ways of maximising the carbon-sink potential
associated with land use, land-use change and forestry.
5.2 The Emissions Gap
In the period to 2020, even with the adoption of technically feasible mitigation options for the
agricultural sector, as suggested in the Teagasc MACC, and with appropriate supports under the
proposed RDP, emissions are likely to flatline at best. This is not to say Irish agriculture is being
complacent - in fact significant progress has been made in achieving efficiency improvements and
the emissions intensity per calorie of food output in 2013 is reduced by approximately 14% relative
to 2005. Major efforts are being made in further improving the climate efficiency of agriculture and
to build upon the progress made to date. While leaving a gap in absolute reductions, it is important
to emphasise the enormous climate efficiency ambition that is implicit in achieving a flat lining of
emissions.
Agriculture in 2020 is likely to be shaped by agricultural policies that are largely determined and by
technologies that are currently here or near market. Agriculture thereafter to 2050 may well be
shaped by policies, market developments and technologies that are unknown at this point.
57
In relation to forestry, Ireland has a target to expand forest cover from the current 11% of the land
area of the country to 18% by mid century, with all of the expansion coming from agricultural land.
The current forestry programme envisages an annual afforestation programme of 8,000 ha by 2020.
The estimated cost to the state of the afforestation programme since 1990 and out to 2030 is €3.5
billion, which over the period 2021-2030 will remove an estimated net 5.2 million tonnes of CO2 per
annum. Not acknowledging this mitigation potential in the current EU ESD agreement would seem
inappropriate especially where there is a demonstrated high level of efficiency already achieved in
the agricultural sector means that limited additional cost effective mitigation potential exits using
currently available technologies and practices.
The Teagasc report ‘Carbon-Neutrality as a horizon point for Irish Agriculture: a qualitative appraisal
of potential pathways to 2050’ 19 assesses how Irish agriculture can approach carbon-neutrality by
2050. ‘Carbon-neutrality’ has been proposed as a “horizon point for agriculture by 2050” by the
Secretariat of NESC and by the Oireachtas Committee on Environment, Culture and the Gaeltacht.
The report states that “The concept of carbon-neutrality as a horizon point marks a change from the
policy conventions used heretofore to frame the discussions on agriculture and green house gas
emissions, which are largely focussed on the methodologies specified by National Inventory Reports
and UNFCCC reporting guidelines. In these inventories, emissions of agricultural green house gas
emissions (methane, nitrous oxides, carbon dioxide) are attributed to the agricultural sector, whilst the
benefits arising from agriculture in the form of carbon-sequestration and fossil fuel offsetting are
attributed to other sectors of the economy. This apparent anomaly has thus far reduced the menu of
options for the agricultural industry to reduce net green house gas emissions while at the same time
growing the industry in the context of the Food Harvest 2020 Strategy, the phasing out of EU milk
quota and international food security concerns”.
Addressing climate change across the economy is now a major policy concern for government, with
an approach to carbon neutrality being considered as a ‘horizon point’ for the agriculture sector.
It is likely that only a small part of agricultural greenhouse gas emissions will be offset by carbonsequestration in grasslands and forestry in the coming decades, thus leaving an ‘emissions gap’.
However, the pathways that could be utilised to narrow, if not close, this emissions gap between
now and 2050 include:

an acceleration of forestry planting rates to increase carbon sequestration;

the use of advanced technologies and mitigation strategies to reduce emissions;

a dramatic increase in the cultivation of bio-energy crops and/or anaerobic digestion of
grass and slurry to offset fossil fuel emissions;

constraining agricultural activity to limit emissions and

an acceptance that agriculture emissions will need to increase to some extent to satisfy
growing future food demand.
19
http://www.teagasc.ie/publications/2013/3002/CarbonNeutrality.pdf
58
The concept of an approach to carbon-neutrality significantly broadens the menu of options open
to farmers to contribute constructively to reducing net emissions from agriculture, while at the
same time growing the production and export of food. It changes the emphasis from gross
emissions to net emissions (i.e. the difference between gross emissions and offsetting), which
opens up opportunities to grow the industry while at the same time reducing net emissions through
the incentivisation of offsetting mechanisms. Partial carbon-neutrality for agriculture may be
achieved by 2050 by the selective implementation of all five pathways simultaneously. However,
the report emphasises that immediate action is needed in order to set a course towards carbonneutrality by 2050. It should be seen as a ‘horizon point’ for the agricultural sector to aim for, rather
than a target, as full carbon-neutrality may not be technically feasible.
5.2.1 Emissions:
Total emissions20 from the agricultural sector, based on data provided by Teagasc to the EPA, are
projected to increase by 9% between 2013 and 2020 as a result of the targets set out in Food
Harvest 2020. This is predominantly driven by a projected increase in dairy cow numbers of 14%
between 2015 and 2020 following the abolition of milk quotas in 2015 as well as a projected increase
in fertilizer nitrogen use of 27% by 2020. For 2030 it is estimated that dairy cow numbers will have
increased to 1.56 million head (from 1.36 million in 2020) and that fertilizer nitrogen use will remain
relatively stable post-2020. On the other hand the beef herd is forecasted to contract by 12%
between 2020 and 2030 from 5.3 million head to 4.7 million head.
The Teagasc document Carbon-Neutrality as a horizon point for Irish Agriculture21 used the FAPRII
model to estimate agricultural emissions by 2050. Projections for the period to 2050 are based on
assumptions that the real price of agricultural commodities remains relatively fixed and that CAP
policy will remain unchanged.
The assumptions are that:
Dairy cow numbers are likely to increase following the phasing out of EU milk quota and
stabilise after 2030.
Suckler cow numbers are likely to be reduced gradually in line with the long term
erosion of the real value of agricultural support payments.
In terms of total bovine stock numbers, the likely net result is a marginal increase up to
2030, followed by a stabilisation of animal numbers.
The FAPRI-Ireland models shows that emissions would rise in the short to medium term, reaching
about 22 MtCO2eq by 2030, and continue to rise at a much lower rate beyond 2030. The principal
divers for the increase in emissions in the short to medium term are the growing population of dairy
cows, pigs and poultry and associated increases in fertiliser emissions and emissions associated with
20
21
http://www.epa.ie/pubs/reports/air/airemissions/GHG_Emiss_Project_publication_2014_finalv2.pdf
http://www.teagasc.ie/publications/2013/3002/CarbonNeutrality.pdf
59
animal waste. This overall growth in emissions would be only partially offset by a decline in the
number of suckler cows. See Figure 5.1.
a.
Figure 5.1
Figure XXX: Projected agricultural GHG emissions and total cattle numbers under the reference
scenario. Source: Donnellan et al. (2013)
5.2.2 Offsetting
The table below shows the emissions gap in the business as usual (BAU) scenario as the difference
between agricultural emissions and offsetting. It shows that the emissions gap would likely to
equate to two-thirds of total agricultural emissions by 2030.It is likely that only a small part of
agricultural greenhouse gas emissions will be offset by carbon-sequestration in grasslands and
forestry in the coming decades, thus leaving an ‘emissions gap’ .
The concept of carbon-neutrality, significantly broadens the menu of options open to farmers to
contribute constructively to reducing net emissions from agriculture, while at the same time
growing the production and export of food. It changes the emphasis from gross emissions to net
emissions (i.e. the difference between gross emissions and offsetting), which opens up
opportunities to grow the industry while at the same time reducing net emissions through the
incentivisation of offsetting mechanisms. A reduction in the agricultural ‘emissions gap’ by 2050
requires significant and immediate incentivisation programmes, which in turn will require crosssectoral and coherent policy initiatives, both at national and international level.
The potential for offsetting through carbon sequestration depends on the following carbon sinks:
- Grassland
- Cropland
- Peatland/wetland
- Forestry (both carbon sequestration in forest biomass, litter, deadwood, soils and
sequestration of carbon into harvested wood products (HWP) & fossil fuel replacement
abatement using forest fuelwood.
60
Figure 5.2: Total potential agricultural GHG emissions and offsetting, and the resulting
emissions gap by 2030 and 2050 under the reference scenario (no mitigation). All figures in
MtCO2eq per year; positive figures refer to net emissions, negative figures to net
offsetting.
2030
2050
Total agricultural GHG emissions
+21.7
+22.2
Forestry (incl. Fossil fuel displacement)
Grassland
Cropland
Wetland
Total Offsetting
-2.6 (-4.2)
-6.5
0
+2.2
-6.9 (-8.5)
-0.8 (-1.6)
-6.8
0
+2.2
-5.5 (-6.2)
Emissions gap (Incl fossil fuel displacement)
+14.8 (+13.2)
+16.7 (+16.0)
Source: Teagasc: Carbon-Neutrality as a horizon point for Irish Agriculture (2013)
Carbon stocks/removals
5.2.3 Minimising the Emissions Gap
Teagasc in their Carbon-Neutrality as a horizon point for Irish Agriculture have proposed and assessed
five pathways towards closing or minimising the emissions gap by 2050.
1. Pathway A (Offsetting): An acceleration of forestry planting rates to increase carbon
sequestration
2. Pathway B (Advanced Mitigation): The use of advanced technologies and mitigation
strategies to reduce emissions
3. Pathway C (Fossil Fuel Displacement): Dramatic increase in the cultivation of bio-energy
crops (including anaerobic digestion of grass) to offset fossil fuel emissions
4. Pathway D (Constrained Production Activity) : Constraining agricultural activity to limit
emissions
5. Pathway E (Residual Emissions): An acceptance that agriculture emissions will need to
increase to some extent to satisfy growing future food demand.
Partial carbon-neutrality for agriculture may be achieved by 2050 by the selective
implementation of all five pathways simultaneously. However, the report emphasises that
immediate action is needed in order to set a course towards carbon- neutrality by 2050. It
should be seen as a ‘horizon point’ for the agricultural sector to aim for, rather than a target, as
full carbon-neutrality may not be technically feasible.
The graphic at Figure 5.3 below is a visual representation of the five pathways towards carbon
neutrality. Black/grey bars indicate the part of agricultural emissions that are offset by
61
sequestration, dark green bars indicate the part of agricultural emissions offset through specific
pathway measures, while the red bar indicates an emissions gap.
Figure 5.3
Source: Teagasc ‘Carbon-Neutrality as a horizon point for Irish Agriculture – a qualitative
appraisal of potential pathways to 2050
Each of the five pathways has merits and potential in reducing the emissions gap from agriculture
by 2050 specifically pathway A has significant potential to reduce the emissions gap through
offsetting and fossil fuel displacement. As suggested in the report the implementation of a mosaic
of pathways is more likely to be effective in reducing the emissions gap from agriculture. Given the
uncertainty of policy and market developments over the time horizon to 2050 it is difficult to assess
with any certainty at this point whether the emissions gap can be fully closed so that full carbonneutrality for agriculture can be achieved.
5.2.4 Projections and modelling
The Irish TIMES Energy System Modelling Project is the only project of its kind in Ireland and
investigates how the energy system in Ireland can meet CO2 emission reduction targets out to the
year 2050. The model provides a means of testing energy policy choices and scenarios, and
predicting implications for the Irish economy and for the environment, including greenhouse gas
emissions. It is being used to both examine baseline projections and to assess the implications of
emerging technologies and mobilising alternative policy choices such as carbon mitigation
strategies.
The projections for non-CO2 emissions (CH4 & N2O) from the agricultural sector are based on the
FAPRI-Ireland model and provide an add - on to the Irish times model above to provide an economy
analysis. The mitigation options and strategies for the agricultural sector are described in the
Teagasc MACC and are linked to the FAPRI-Ireland model.
5.2.5 Plan to address various gaps including key actors
There is a strong scientific and research base that can be used to find new ways to account for and
reduce emissions. DAFM and Teagasc are active in international networks and research groups
related to GHG. Teagasc research suggests that there are measures that could be taken in the short
62
term, which would both increase farm profits and enhance carbon efficiency. In the context of 2050,
existing and emerging research becomes critical in identifying what and how carbon efficiency can
be achieved. Ireland has significant expertise in relevant areas that can help put the country in a
leadership position to make agri-food less carbon-intensive and more efficient.
63
6. Next Steps:
This document is very important in setting out the sectoral mitigation inputs as set out under the
Climate Action and Low Carbon Development Bill 2015. The first mitigation plan will outline what
the sector can contribute to the overall national emissions target for 2020, through cost-effective
mitigation measures while maintaining economic sustainability and efficiency in the sector. It will
be informed by scientific evidence and research findings and will also outline a longer term view
right out to 2050 which will seek to balance the objectives of allowing the food industry to grow so
as to meet the food security challenges that face the world, as well as the need to meet future
climate change ambition. We welcome your submissions on how you think Ireland can best achieve
this vision.
Ireland is a world leader in developing carbon efficient food production systems. Reducing carbon
intensity further will require a focus on issues like improving animal health, better nutrient
management, better soil carbon management, improving breeding and genetics and improving
overall management. Other initiatives, such as the measurement of the carbon footprint of the
major food commodities in order to set out benchmarks, provide performance information to
farmers and identify priorities for future research and advisory efforts will be pursued.
Our main focus is consistently on the need to achieve smart, green growth, as envisaged in Food
Harvest 2020. We need to be smart about what we do so that we can become more efficient and
more competitive, and we need to do it in a way that is sustainable from an environmental and
climate viewpoint. This Department continues to stress the need to combine the climate change
mitigation ambition with a competitive and carbon efficient farming system.
Finally, we welcome stakeholder involvement as we prepare for the publication of the first
Agriculture Sector Low Carbon Transition and Mitigation Plan. This discussion document is an
important step in that it will allow you to contribute to developing policy in this vitally important
area. In the course of developing the sectoral elements, the Department of Agriculture, Food and
the Marine is open to considering and would welcome suggestions on strengthening the structure
and/or content of sectoral elements up to 2020 and beyond.
64
APPENDIX NO. 1 Research Initiatives
The Agricultural Greenhouse Gas Research Initiative for Ireland
The EU 2020 Climate Change and Energy Package poses considerable challenges for Irish
agriculture, particularly in the context of ambitious production targets envisaged by Food Harvest
2020. Nitrous oxide emissions are the second largest portion of agricultural emissions, but also can
be readily mitigated. However, there is currently a high degree of uncertainty surrounding the N2O
emission factors, and refinement of these would allow the adoption of ‘win-win’ strategies, such as
greater use of urea, which would in turn allow more flexibility in terms of sectoral expansion.
Carbon sequestration is also associated with pastures and improved grassland management could
provide a mitigation option without impacting on agricultural production. This project seeks to
assess the influence of climate and soil on C sink capacity as well as quantifying effective ways to
enhance pasture sequestration. The twin measurement and modelling approach will ultimately lead
to more refined and flexible inventories. This will allow thus allow for mitigation research that has
been on-going for several years to be inputted into inventories, thus obtaining a net benefit to the
sector in terms of reducing its emissions profile.
Animal Diet Research
Research is ongoing to evaluate a range of measures that could be used to reduce CH4 emissions per
animal. Examples of such measures include increasing the level of oil in the diet, to study the impact
on emissions and to establish the resultant changes in rumen microflora composition – this is
important work in the context of developing the best animal feeding strategies to reduce emissions.
Field scale research with beef cattle has shown that reductions of approximately 20% in daily
enteric methane output are possible when coconut oil is added to the diet at a rate of 250 grams per
day. However this practice is likely to be feasible only in part of an animal’s life (i.e. the finishing
winter when concentrates are being fed which allow delivery of the oil), and thus the reduction in
lifetime emissions would be 5-6%. Coconut oil is expensive and the measure will likely have some
cost of implementation at farm level, depending on the relative costs of oil, other feedstuffs and the
value of beef or milk output. The feasibility of using other cheaper oils e.g. soya oil is being
explored. A range of commonly used concentrates are being examined to determine if one is more
suitable than another in terms of reducing methane emissions.
Animal Breeding and Genomics
The Irish Cattle Breeding Federation (ICBF)xvii is the only organisation approved by DAFM to
produce genetic evaluations for beef and dairy cattle. These evaluations (breeding indexes) are a
measure of how profitable each animal is and they are designed to produce an efficient, healthy
animal that will thrive in our unique grass based production conditions. The indexes are constantly
evolving to take account of various future pressures/costs and they are designed not only to
promote economic efficiency but also environmental efficiency as well.
National breeding objectives have been developed for dairy cattle, beef cattle and sheep and the
primary focus is to continually develop, refine and disseminate the usefulness of these indexes in
breeding more profitable animals for the entire agri-food industry. Animal breeding and genetics
research, in collaboration with other research departments at Teagasc, is developing tools to more
accurately identify the most profitable animal for current and future production systems.
ICBF and Teagasc developed the first ever national custom genotyping chip (International Dairy and
Beef 19k SNP chip) for Ireland which facilitates genomic selection, undertakes parentage testing
65
where the parents are genotyped on the traditional microsatellite technology, screens for lethal
recessive genes, and tests for congenital genetic defects and major genes. The tool is sufficiently
flexible to add genetic mutations as they are discovered and research is underway to develop the
pipelines for the detection of congenital defects using a real-life scenario detected in an Irish dairy
bull in 2013. The usage of genomically selected bulls continues to increase (54% of inseminations in
2013). A major initiative by ICBF and Teagasc which began in 2013 was to genotype all pedigree
male calves born in Irish herds. This will position Ireland extremely well for the implementation of
genomic selection in beef cattle.
A new G€N€ IR€LAND22 beef program was established in 2012, with the objective of doubling the
rate of genetic gain in beef by 2020. The new G€N€ IR€LAND maternal breeding programme is
currently being rolled out to the industry. The new terminal and maternal indexes have also been
rolled out to the industry, with a lot of interest being generated through the Beef Technology
Adoption Programme discussion group.
Teagasc and ICBF have now established the Next Generation Dairy Herd at Teagasc, Moorepark,
Fermoy, Co. Cork to generate accurate data for future‐proofing the Economic Breeding Index, data
for research (into genetic and genomic evaluations) and high EBI bulls suitable for the G€N€
IR€LAND dairy breeding programme. Key data collected from these animals include milk, fertility,
health, disease and feed efficiency.
The new suckler herd at Teagasc Grange, Co. Meath has also been established with 165 animals
purchased (75 from the dairy herd and 90 from the beef herd). Within each of these groups, high
and low genetic merit animals have been targeted, which will allow accurate evaluation of the new
maternal indexes. The heifers will be bred in Spring 2013 and will calve for the first time in Spring
2014.
Soil research
The ‘Gaseous Emissions and Land Use Network – GHG Ireland’, is a Network that aims to bring
together all principal investigators working in the field of agricultural climate change research
during a 4 year initiative. The main focus of this network is to improve our understanding of carbon
stock changes in agricultural soils in order to contribute to the development of a more robust
inventory and underpin future accounting for these categories.
Research Stimulus Fund
Ongoing research will continue to contribute to further options to reduce emissions from
agriculture. The Department of Agriculture, Food and the Marine has committed almost €20m to
climate change research projects since 2005 under the Research Stimulus Fund and continues to
monitor ongoing research both nationally and internationally
Other Forestry Research
DAFM funds research on the wood energy supply chain and related topics under the national forest
research programme. Teagasc, the farm advisory service, provides advice and information on the
harvesting and processing of forest-based biomass. DAFM also supports a wood fuel quality
22
http://cattle.ie/services/geneireland/dairy/index.php
66
assurance scheme in partnership with the Irish Bioenergy Association, and an advisory service on
wood fuels at http://www.woodenergy.ie/
INTERNATIONAL RESEARCH INITIATIVES:
Ireland is one of the founding members of the Global Research Alliance – GRA. The GRA on
Agricultural Greenhouse Gases was launched in December 2009 and now has 40 member countries
from all regions of the world. The Alliance is focused on research, development and extension of
technologies and practices that will help deliver ways to grow more food (and more climate-resilient
food systems) without growing greenhouse gas emissions. Ireland is an active founding member of
the GRA participating in the Cropland and Livestock research groups and in the Governance group.
Due to the importance of the agriculture sector to our economy, we are among the leading
countries in GHG research in the sector and have much to offer the Alliance.
Climate & Clean Air Coalition (CCAC) – The CCAC Mission is to accelerate the transition to local
energy systems through innovative policies and programs that deliver cost-effective renewable
energy, strengthen local economies, foster environmental sustainability, and provide energy
resilience. DECLG are the lead on this mainly from the point of view of clean air however there is
also a work stream related to control of short lived climate gases from agriculture such as methane.
Joint Programming Initiative on Agriculture Food Security and Climate Change (FACCE-JPI). The
FACCE-JPI brings together 21 countries who are committed to building an integrated European
Research Area addressing the interconnected challenges of sustainable agriculture, food security
and impacts of climate change.
FACCE-JPI provides and steers research to support sustainable agricultural production and
economic growth, to contribute to a European bio-based economy, while maintaining and restoring
ecosystem services under current and future climate change.
5 core research themes:
 Sustainable food security under climate change, based on an integrated food systems
perspective: modelling, benchmarking and policy research perspective
 Environmentally sustainable growth and intensification of agricultural systems under
current and future climate and resource availability
 Assessing and reducing trade-offs between food production, biodiversity and ecosystem
services
 Adaptation to climate change throughout the whole food chain, including market
repercussions
 Greenhouse gas mitigation: nitrous oxide and methane mitigation in the agriculture and
forestry sector, carbon sequestration, fossil fuel substitution and mitigating GHG emissions
induced by indirect land use change
Climate Change, Agriculture and Food Security Programme of Consultative Group on International
Agricultural Research (CGIAR) - CGIAR research is dedicated to reducing rural poverty, increasing
food security, improving human health and nutrition, and ensuring more sustainable management
67
of natural resources. It is carried out by 15 centres that are members of the CGIAR Consortium in
close collaboration with hundreds of partner organizations, including national and regional research
institutes, civil society organizations, academia, and the private sector.
FAO Committee on World Food Security – High Level Panel of Experts (CFS-HLPE) - The HLPE on food
security and nutrition has been created as part of the reform of the international governance of
food security to advise the Committee on World Food Security (CFS) which is the foremost
intergovernmental and international platform dealing with food security and nutrition. Its key
functions are to:
 Assess and analyze the current state of food security and nutrition and its underlying
causes.
 Provide scientific and knowledge-based analysis and advice on specific policyrelevant issues, utilizing existing high quality research, data and technical studies.
 Identify emerging issues, and help members prioritize future actions and attentions
on key focal areas.
Ireland is one of the founder Partners and funders of the FAO’s Livestock Environmental and
Assessment Performance (LEAP) partnership - LEAP aims to develop methodologies and guidance
for measuring the environmental footprint of livestock supply chains and to communicate this work
effectively to livestock stakeholders to support the overall goal of “improved environmental
performance of the livestock sector, while considering economic and social viability.” DAFM
provided funding for the partnership, while Teagasc represents Ireland on the Steering Group and
has provided a Walsh Fellow to the Partnership. Other partners include the Governments of New
Zealand, France, Netherlands and Switzerland, as well as industry stakeholder groups.
Global Alliance for Climate Smart Agriculture (GACSA) – Ireland with DAFM as lead in conjunction
with Irish Aid and DECLG was one of the first nations to pledge its support to the GACSA at the 1
day UN Climate Summit in New York on 23rd Sept 2014. The aim is to scale up efforts to make
agricultural practices more resilient to environmental pressure & enable 500 million farmers to
practice climate-smart farming by 2030. Other early signatories came from Fr, Lith, Esp, Swe, UK,
as well as the US, New Zealand, Mexico, Switzerland, Vietnam & Japan. Other important
stakeholders to the climate-savvy plans include the Kellogg Company, Walmart, McDonald’s, the
World Farmers’ Organisation, World Food Programme, World Bank & International Fund for
Agricultural Development – with the latter two announcing that 100% of their agricultural
investment portfolios – about $11 billion – would be climate-smart by 2018.
The US and Dutch Governments have been to the forefront in efforts to form this alliance which is a
response to the need to sustainably produce enough food for our growing population in the face of
climate change. The concept of Climate Smart Agriculture is formed around the following three
pillars:
 Sustainable and equitable increases in agricultural productivity and incomes;
 Greater resilience of food systems and farming livelihoods; and
 Reduction and/or removal of greenhouse gas emissions associated with agriculture
(including the relationship between agriculture and ecosystems), where possible.
The GACSA will enable governments and other stakeholders to make these transformations in ways
that bridge traditional sectoral, organizational and public/private boundaries. The GACSA will
support other international processes, related to agriculture, food security and climate change.
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Lastly on behalf of the FACCE-JPI and the CFS-HLPE, Teagasc have been engaged with a number of
the international research initiatives on agriculture and climate change listed above and with the
Belmont forum & the Wheat Initative. The aim of the engagement is to establish methods to work
together and coordinate their activities and explore the potential for shared actions that will be of
direct relevance to the ongoing United Nations Framework Convention on Climate Change
(UNFCCC).
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Reference Notes
i
i Intergovernmental Panel on Climate Change 2013. Fifth Assessment Report, Working Group 1 Report:
Climate Change 2013:The Physical Science Basis. Summary for Policymakers. IPCC, Geneva.
ii http://report.mitigation2014.org/spm/ipcc_wg3_ar5_summary-for-policymakers_approved.pdf
iii http://issuu.com/teagasc/docs/tresearch_summer_2013
iv Air Emissions :: Environmental Protection Agency, Ireland
v http://www.epa.ie/pubs/reports/air/airemissions/GHG_report2014.pdf
vi http://ec.europa.eu/clima/policies/2030/docs/com_2014_15_en.pdf
vii NESC Secretarial, 2013. Ireland and the Climate Change Challenge: Connecting How Much with How To/
viii Schulte, R.P.O and Lanigan, G, 2011l Irish Agriculture, Greenhouse Gas Emissions and Climate Change:
opportunities, obstacles and proposed solutions.
http://www.teagasc.ie/publications/2011/61/61_ClimateBillSubmission.pdf
ix Schulte, R.P.O. and Donnellan, T, 2012. A Marginal Cost Abatement Curve for Irish Agriculture.
http://www.teagasc.ie/publications/2012/1186/1186_Marginal_Abatement_Cost_Curve_for_Irish_Agriculture
.pdf
x Schulte et al 2013. Carbon Neutrality as a horizon point for Irish Agriculture Teagasc Carbon Neutrality as a
Horizon Point
xi http://ec.europa.eu/agriculture/analysis/external/livestock-gas/full_text_en.pdf
xii /Food Harvest 2020/2020FoodHarvestEng240810.pdf
xiii http://www.teagasc.ie/publications/2013/2890/DairyRoadMap2020.pdf
xiv
http://www.agriculture.gov.ie/media/migration/ruralenvironment/climatechange/FoodHarvest2020Environm
entalAnalysisFINAL050214.pdf
xv http://www.teagasc.ie/whats_new/roadmaps.asp
xv http://ec.europa.eu/agriculture/organic/eu-policy/european-action-plan/index_en.htm
xv
xvii
http://www.icbf.com/
http://www.icbf.com/
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