Climate Action 2020: Community Climate Action Plan Draft ...
CLIMATE ACTION PLAN 2021
Transcript of CLIMATE ACTION PLAN 2021
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CLIMATE ACTIONPLAN 2021Securing Our Future
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�129 14.3 Pillar2–FinancingandFundingModels � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �133 14.4 Pillar3–SupplyChain,SkillsandStandards � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �135 14.5 Pillar4–StructuresandGovernance � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �139 14.6 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �14015 Transport � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �142 15.1 StateofPlay � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �143 15.2 Targets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �146 15.3 MeasurestoDeliverTargets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �146 15.4 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �15216 Agriculture � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �154 16.1 StateofPlay � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �157 16.2 Targets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �160 16.3 MeasurestoDeliverTargets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �161 16.4 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �16317 Land Use, Land Use Change, Forestry and the Marine � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �166 17.1 StateofPlay � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �167 17.2 Targets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �170 17.3 MeasurestoDeliverTargets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �170 17.4 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �17518 The Circular Economy � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �178 18.1 TheChallengeofSustainableUseofResources � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �179 18.2 StateofPlay � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �179 18.3 Targets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �182 18.4 MeasurestoDeliverTargets � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �183 18.5 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �18519 Ireland’s International Action on Climate Breakdown � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �187 19.1 Introduction � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 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� � � � � � � �195 20.5 SDG12:ResponsibleConsumptionandProduction � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �196 20.6 PolicyCoherence � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �19621 Adaptation � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �197 21.1 WhatisClimateAdaptation? � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �198 21.2 GlobalandEUPosition � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �198 21.3 PolicyMeasuresforIreland � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �200 21.4 Actions � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 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Glossary of AcronymsAR4 (IPCC)AssessmentReport4AR5 (IPCC)AssessmentReport5BAU BusinessAsUsualBER BuildingEnergyRatingCARO ClimateActionRegionalOfficeCAF ClimateActionFundCAP ClimateActionPlanCAP CommonAgriculturalPolicyCSP CommonAgriculturalPolicyStrategicPlanCCAC ClimateChangeAdvisoryCouncilCCAP CommunityClimateActionProgrammeCCS CarbonCaptureandStorageCCSAP ClimateChangeSectoralAdaptationPlanCIRI ConstructionIndustryRegisterIrelandCIT CorkInstituteofTechnologyCLT CrossLaminatedTimberCO2 CarbonDioxideCEG CommunityEnergyGrantCRU CommissionfortheRegulationofUtilitiesDART Dublin Area Rapid TransitDAFM DepartmentofAgriculture,FoodandMarineDCEDIY DepartmentofChildren,Equality,Disability,IntegrationandYouthDECC DeparmentoftheEnvironment,ClimateandCommunicationsDFA DepartmentofForeignAffairsDOT Department of TransportDMAP DesignatedMarineAreaPlanEGFSN ExpertGrouponFutureSkillsNeedsEI Enterprise IrelandEEOS EnergyEfficiencyObligationSchemeEPA EnvironmentalProtectinAgencyEPC EnergyPerformanceContractingESB Electricity Supply BoardESD EducationforSustainableDevelopmentESRI Economic,SocialResearchInsitituteETB EducationandTrainingBoardETS EmissionsTradingSystemEU EuropeanUnionEUTEN-E Trans-EuropeanEnergyNetworksEV Electric VehicleEXEED ExcellenceinEnergyEfficiencyDesign
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Glossary of Acronyms
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GAA GaelicAthleticAssociationGDP GrossDomesticProductGHG Greenhouse GasGWP GlobalWarmingPotentialHGV HeavyGoodsVehicleHLI HeatLossIndicatorICA IrishCountrywomen’sAssociationICE InternalCombustionEngineIDA IndustrialDevelopmentAgencyIFS InternationalFinancialServicesIT InformationTechnologyIoT InstituteofTechnologyIPCC IntergovernmentalPanelonClimateChangeKPI KeyPointIndicatorLDCs LeastDevelopedCountriesLEV LowEmittingVehiclesLARES LocalAuthorityRenewableEnergyStrategiesLECP LocalEconomicandCommunityPlanLEEF LabourEmployerEconomicForumLEO LocalEnterpriseOfficeLPG LiquifiedPetroleumGasLULUCF LandUse,LandUseChangeandForestryMAP MaritimeAreaPlanningBillMDB MulitlateralDevelopmentBankMPA MarineProtectedAreaM&R MonitoringandReportingMRTT MidlandsRegionalTransitionTeamMSS MicrogenerationSupportSchemeMtCO2eq MillionTonnesofcarbondioxideequivalentMARA MarineAreaRegulatoryAuthorityNAIDEA NationalArtificialIntelligentDairyEnergyApplicationNAF NationalAdaptationFrameworkNBP NationalBroadbandPlanNDCA NationalDialogueonClimateActionNDFA NationalDevelopmentFinanceAgencyNDP NationalDevelopmentPlanNESC NationalEconomicandSocialCouncilNewERA NewEconomyandRecoveryAuthorityNGO NonGovernmentalOrganisationNMP NutrientManagementPlanning
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Glossary of Acronyms
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NMPF NationalMarinePlanningFrameworkNPF NationalPlanningFrameworkNPWS NationalParksandWildlifeServiceNRRP NationalRecoveryandResiliencePlanNSCSF NationalClimateStakeholderForumNTMA NationalTreasuryManagementAgencyNZEB NearlyZeroEnergyBuildingODA Overseas Development AidOPW OfficeofPublicWorksORESS OffshoreWindundertheRenewableElectricitySupportSchemeOREDPII OffshoreRenewableEnergyDevelopmentPlanOSS One-Stop-ShopPHEV PluginHybridElectricVehiclePV PhotoVoltaicPSO PublicServiceObligationQQI QualityandQulaificationsIrelandRESS RenewableElectricitySupportSchemeREPS-2 RuralEnvironmentalProtectionScheme2SBLAS SutainableBeefandLambAssuranceSchemeSDGs Sustainable Development Goals SDAS Sustainable Dairy Assurance SchemeSEAS SustainableEggAssuranceSchemeSEAI SustainableEnergyAuthorityofIrelandSEC SustainableEnergyCommunitiesSIDS SmallIslandDevelopingStatesSFI ScienceFoundationIrelandSME SmallandMediumEnterpriseSOLAS AntSeirbhísOideachaisLeanúnaighagusScileanna, 'FurtherEducationandSkills
Service'TCO TotalCostofOwnershipTWh Terawatt-hourUNCLOS UnitedNationsConventionontheLawoftheSeaUNESCO UnitedNationsEducational,ScientificandCulturalOrganizationUNFCCC UnitedNationsFrameworkConventiononClimateChangeYCA YouthClimateAssembly
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Executive SummaryAstheworldgathersinGlasgowtotackleglobalwarming,wearepublishingtheClimateActionPlan2021.Thisplansetsaroadmapfortakingdecisiveactiontohalveouremissionsby2030andreachnetzeronolaterthan2050,aswecommittedtointheProgrammeforGovernment.
Thescienceisindisputableandtheeffectsofclimatechangearealreadyclear.Extremeweathereventsarebecomingmorefrequentwithdevastatingconsequences.Climatechangeishereandisalreadyimpactingourworld,withriskstoglobalsecurityincludingfoodsupplies.Irelandisalsoatriskofmorefrequentstormsandflooding.
Weknowwemustact,andbyactingnowwecanbuildacleanergreenereconomyandsociety,whichcreatesopportunitiesforusall.ImplementationoftheClimateActionPlanwillcreatejobs,neweconomicopportunitiesandprotectpeopleandtheplanet.Bydeliveringonthisplan,wewillsecurethefutureforourchildrenandgrandchildren.It’sourchancetomaketherightchoice.
CITIZEN ENGAGEMENTWemustensurewebringpeoplewithusandthatthetransitionisfair.TheNationalDialogueonClimateActionwillgiveeveryoneinsocietytheopportunitytoplaytheirpart.Wewillengagewithpeople,ensuringthattheyareempoweredtotaketheactionsneededtobuildanIrelandwhere:
• Ourcommunitiesarehealthyandsecure,enjoycleanerairandwater,andwherehomesarewarmerand cheaper to heat
• Thousandsofnewjobsarecreatedbyinvestinginareaslikeoffshorewind,retrofitandcutting-edgeagriculture
• Wecutourdependenceonimportedfossilfuels,andpowercomesfromourownindigenousrenewableresourcesincludingwindandsolar
• Walkingandcyclingaresafeandaccessible,publictransportiscleanerandmorefrequent,andtherolloutofelectricvehiclesissupportednationwide
• Farmershavecertaintythattheirindustryhasaviablefuturewherefarmerscancontinueproducingworld-classfoodwithanevenlowercarbonfootprint
JUST TRANSITIONTheplanacknowledgesthatsomesectorswillbemoreimpactedthanothers,andwewillneedtohelppeoplewiththecostsofthetransitiontoensurethatithappens.Justtransitionprinciplesareembeddedintheplan,includingtheprinciplethatpeopleneedtobeequippedwiththeskillstobenefitfromchangesandthatcostsneedtobeshared.AJustTransitionCommissionwillbeestablishedtosupportGovernmentpolicydevelopmentinthisarea.Allincreasesincarbontaxreceiptsamountingto€9.5billionoutto2030areearmarkedfortargetedsocialprotectionmeasures,anexpansionofretrofittingparticularlyforsocialandlow-incomehomes,andagri-environmentprojects.
TheMidlandsregionisthefirstinIrelandtodirectlyexperiencethenegativeimpactsofthetransitionawayfromfossilfuels,withtheendingofpeatextractionforpowergeneration,andthisplansetsoutajusttransitionimplementationplanforthisregion.
INVESTMENTEverysectormustadaptrapidly.Thiswillallowoursocietyandeconomytorealisetheopportunitiesofthetransition,andtoremaincompetitiveandresilient.Detailedanalysishasinformedtheidentification
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inthisplanofabatementtechnologiesthatwillneedtobeimplementedacrosssectorskeysectors.Considerableinvestmentwillberequiredtoreduceourgreenhousegasemissionsby51%by2030,andthismustinfluencebothpublicandprivatecapitalinvestmentchoices.
Therewillbeunprecedentedlevelsofinvestmentinclimateactionoverthenextdecade.
TherecentlypublishedNDPsetsoutatotalpublicinvestmentof€165billionovertheperiod2021to2030.Thiswillbringpublicinvestmentto5percentofGNI*,wellabovetherecentEUaverageof3percentofGDP.ExtensiveeffortshavebeenmadetoensurethattheNDPwillsupporttheGovernment’sclimateambitions.ForthefirsttimeinIreland,climateandenvironmentalassessmentoftheNDPmeasureshasbeenundertaken,alongwithanassessmentofthealignmentoftheplanasawholewiththeidealsofagreenrecoveryplan.CommitmentsaremadetofurtherreformsofthePublicSpendingCodeandtothetreatmentofEnergyPerformanceContracts.Mostsignificantly,€5billionofthetotal€9.5billioninadditionalcarbontaxreceiptsovertheperiodoftheNDPhavebeenallocatedtoincreasecapitalinvestmentlevelsinenergyefficiency.Inaddition,ourNationalResilienceandRecoveryPlancommits€518milliontoprioritisingadvancingthegreentransitiontosignificantlyreformanddirectrelevantfundingtowardsdecarbonisingprojectssuchasretrofitting,ecosystemresilienceandregeneration,climatemitigationandadaptation,andgreendatasystems.
ELECTRICITYAmongthemostimportantmeasuresintheplanistoincreasetheproportionofrenewableelectricitytoupto80%by2030,includinganincreasedtargetofupto5Gigawattsofoffshorewindenergy.Thiswillnotjustreduceouremissionsfromelectricity,itwillallowustoelectrifyothersectorssuchastransportandheatandreduceouremissionsinthesesectorstoo.Inadditiontotheupcomingmicrogenerationsupportschemeforhouseholdersthegovernmentwillintroduceasmall-scalegeneratorschemeforfarmers,business,andcommunitiestogeneratetheirownelectricityandfeedintothegrid.Aswellasdevelopingimprovedstorage,wewillalsobegintodeployrenewablegassuchasbiomethaneandgreenhydrogen.Thegovernmentwillreviewitsstrategyondatacentrestoensurethatthesectorwillbeinalignmentwithsectoralemissionsceilingsandsupportrenewableenergytargets.[62%-81%reductioninemissionsby2030]
ENTERPRISEThegreeneconomy,includingretrofitting,renewableenergy,cleanmobility,andsustainableagriculturewillcreatehighqualityemployment,andtheIDAwillalsoseektoattractbusinessestoinvestindecarbonisationtechnologies.TheIDA,EnterpriseIrelandandtheSEAIwillworktohelpdecarboniseindustryandaligngrantsandothersupportswithemissionsreductions.ThegovernmentwillalsoproduceaClimateToolkitforbusiness.Amongthemeasurestocutemissionsareincreasingtheuptakeofcarbon-neutralheating,anddecreasingtheembodiedcarboninbuildingmaterialsthroughusingmorewoodinconstruction.[29-41%reductioninemissionsby2030]
BUILDINGSGovernmenthasalreadycommittedtoretrofit500,000homesby2030(includingincreasedfundingthroughtheNationalDevelopmentPlanparticularlyforfreeupgradesforlow-incomehouseholds)andwillinstall680,000renewableenergyheatsourcesinbothnewandexistingresidentialbuildings.Werecognisethatwewillneedworkoutwaystoassistbroadersocietywiththecostsofretrofitting.ThenewNationalRetrofitPlanwilldrivedemand,makeretrofittingmoreaffordable,andexpandthecapacityoftheindustryincludingtrainingofworkers.Afurther3specialisttrainingcentreswillbeestablished.Othermeasuresincludeincreasedtargetsfordistrictheatingandthepublicsectorandstrengtheningbuildingstandardsforallbuildings.[44-56%reductioninemissionsby2030]
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TRANSPORTTheplancallsforasignificantcutintransportemissionsby2030throughmeasuresincluding:
• 500,000extrawalking,cyclingandpublictransportjourneysperdayby2030• Increasingtheproportionofkilometresdrivenbypassengerelectriccarstobetween40and45%by2030,inadditiontoareductionof10%inkilometresdrivenbytheremaininginternalcombustionenginecars
• Allreplacementsforbusandcommuterrailvehiclesandcarriagestobeloworzerocarbonby2030• IncreasedrolloutofruralpublictransportthroughConnectingIreland.[42-50%reductioninemissionsby2030]
AGRICULTUREFarmersknowthelandbetterthananyone.Wewillempowerfarmerswithascience-basedapproach,backedbyrobustresearch.Farmpracticesthatenablefarmerstoproduceworld-classfoodwithalowercarbonfootprintarekey.Theplancommitstousinglesschemicalnitrogenandmoretargeteduseoffertiliser,whilemaintainingthesamelevelofgrassgrowththroughmulti-speciesswards.Othermeasuresincludeimprovingthegeneticsofourherdstoreduceemissionsandimproveproductivity.Wewillalsoincentiviseincreasedorganicfarminganddiversificationintoforestry,biomethaneandenergyproduction.[22-30%reductioninemissionsby2030]
LAND USE Ireland’slanduse,landusechangeandforestrysectoriscurrentlyacarbonsourceratherthanacarbonsink.Toreduceemissionsandmovetobeinganoverallstoreofcarbon,willinvolvefurtherbogrehabilitation,increasedafforestation,improvedmanagementofgrasslandsonmineralsoils,increasingtheuseofcovercropsintillage,andtherewettingoforganicsoils.Anewforestryprogrammewillbepreparedforlaunchin2023.[37-58%reductioninemissionsby2030]
CIRCULAR ECONOMYTheCircularEconomyandtheBioeconomyofferalternativestotoday’slinear‘take-make-waste’modelofproduction.ThiswillbesupportedbythepublicationofaWhole-of-GovernmentCircularEconomyStrategy,theenactmentoftheCircularEconomyBill2021,andthedevelopmentofaBioeconomyActionPlan.Wewillreducefoodwasteby50%andwillensurethatallplasticpackagingisreusableorrecyclableby2030.Wewillalsoincreaseourcapacitytorecyclepackagingwasteby70%,andplasticpackagewasteby55%.
PUBLIC SECTORThePublicSectorwillleadbyexampleinthistransitionbyreducingemissionsby51%by2030,bymandatingpublicsectoremployers,collegesandotherpublicsectorbodiestomoveto20%homeandremoteworking,byintroducingasustainablemobilitypolicy,byreplacingallbuseswithelectricvehiclesby2035andbytriplingthelengthofelectrifiedrailby2030.
GOVERNANCEOuractionstodelivertheambitionwillbesupportedbyarobustgovernancestructure.TheClimateActionDeliveryBoardwillholdeachDepartmentandpublicbodyaccountableforthedeliveryofactionssetoutintheClimateActionPlanandwillpresentadeliveryreporttoGovernmenteachquarter�
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TheGovernmentwillannuallyupdatethenewClimateActionPlanandtheroadmapofactionstoreflectdevelopmentsinthepreviousyear,developmentsintechnologyandresearchinrelationtoclimateactionandtoensuretherequiredemissionsreductionsareachieved.The2022PlanwillreflectthelegallybindingcarbonbudgetsandsectoralceilingswhichwillbeadoptedbyGovernmentinthecomingmonthsfollowingconsiderationbytheOireachtas.
SUSTAINABLE DEVELOPMENT AND INTERNATIONAL CLIMATE ACTIONClimateActionPlan2021reflectsIreland’scommitmenttoachievingthe2030AgendaforSustainableDevelopment.Irelandwillworkwithitsinternationalpartnerstoensurethatclimateactionremainsamajorpolicypriority,inrecognitionofthegravethreatclimatechangeposestotheachievementoftheSustainableDevelopmentGoalsglobally.Thiswillbeachievedbyengagingproactivelyininternationalnegotiationsrelatingtoclimateaction,byprovidingincreasedfinancialsupportsforclimateactiontodevelopingcountries,andbyworkingwithlike-mindedinternationalpartnerstopromoteclimateaction.ThiswillbesupportedbyourexpandingdiplomaticnetworkundertheGovernment’sGlobalIrelandinitiative.
ADAPTATIONAswellastakingmeasurestoreducegreenhousegasemissions,wewillcontinuetoadapttocertainclimatechangeimpactsthatarealreadylockedinandwillcontinuetoevolvefortheforeseeablefuture.
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Enterprise
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The Critical Nature of the Challenge 1
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1. The Critical Nature of the Challenge
Thecurrentchangesintheplanet’sclimatearetransformingtheworld.Eachofthelastfourdecadeshasbeenwarmerthananypreviousdecadesince1850andthelasttwodecadeshasincluded18ofthewarmestyearsonrecord.Extremeweatherevents,suchasforestfires,heatwavesandfloods,arebecomingmorefrequentinEuropeandelsewhere.
Evidenceforwarmingofourclimatesystemisbeyonddispute.Thereisunequivocalevidencethathumaninfluencehaswarmedtheclimateataratethatisunprecedentedinthelast2,000years.Itisalsobecomingincreasinglyclearthattheweatherandclimateextremesnowbeingexperiencedarebeingdrivenbyclimatechangewhichiscausedbyouractions.
Observationsshowthatglobalaveragetemperatureshavenowincreasedbymorethan1°Csincepre-industrialtimes.Scientistswarnthatwithouturgentaction,globalwarmingislikelytobemorethan2°Cabovepre-industriallevelsby2060,andcouldevenbeasmuchas5°Cabovepre-industriallevelsbythe end of the century�
Theatmosphereandoceanshavewarmed,theamountofsnowandicehasreduced,andsealevelshaverisenastheconcentrationsofgreenhousegases(GHGs)haveincreased.Theimpactsofclimatechangearenowaffectingeverypartoftheworld.ProjectionsoffutureglobalandregionalclimatechangeindicatethatcontinuedemissionsofGHGswillcausefurtherwarmingandfurtherchangestoourclimate.Theevidencenowsuggeststhatasglobaltemperaturesincreasetheextremesofweatherandclimateweexperiencewillalsoincrease.
Climatechangewillhaveadevastatingimpactonnature,bringingaboutirreversiblechangestomanyecosystems,withaconsequentlossofbiodiversityandtheecosystemfunctionsandservicesthathumanwell-beingdependson.HighertemperaturesandextremeweathereventswillresultinhugecoststoIreland’sandtheEU’seconomyandsociety.
ThesechangeswillcauseextensivedirectandindirectharmtoIrelandanditspeople,aswellastoothercountriesmoreexposedandlessablethanwearetowithstandtheassociatedimpacts,whicharepredicted to include:
• Risingsea-levelsthreateninglandandparticularlycoastalinfrastructure• Extremeweather,includingmoreintensestormsandrainfallaffectingourland,coastlineandseas• Furtherpressureonourwaterresourcesandfoodproductionsystemswithassociatedimpactson
river and coastal ecosystems • Increasedlikelihoodandscaleofriverandcoastalflooding• Greaterpoliticalandsecurityinstability• Displacementofpopulationswithincreasednumbersofclimaterefugees• Heightenedriskofthearrivalofnewpestsanddiseases• Poorerwaterquality• Changesinthetimingoflifecycleeventsforplantsandanimalsonlandandintheoceans
Inaddition,pollutants(suchasmethane,nitrousoxideandothers),whichtogetherwithcarbondioxideareresponsibleforclimatechange,arealsodamagingtohumanhealthandhave,forexample,beenshowntobelinkedtorespiratorydiseases.The Critical Nature
of the Challenge 1
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Theimpactofclimatechangewillbefeltbyeveryindividual,household,andcommunityinIrelandandthereisnowahighlevelofawarenessandunderstandingofthis.TheworkoftheCitizens’AssemblyinitsreportonclimatechangeillustratesthatthereisanearconsensusontheneedforstrongandearlyactiontoreduceIreland’sGHGemissionsandtomakeIrelandresilienttofutureclimateimpacts.Thereis,therefore,anonusonustomitigatethemagnitudeoflong-termclimatechangebytakingactiontoreduceGHGemissions,andtoincreasethecapacityofcarbonsinkssuchasforestsandwetlands.
TheEuropeanGreenDealframesEurope’sresponsetothesechallenges.ItisthenewgrowthstrategythatwillleadthetransformationinEuropetoaclimate-neutral,fairandprosperoussociety,withamodern,resource-efficientandcompetitiveeconomy.Italsoaimstoprotect,conserveandenhancetheEU’snaturalcapital,andtoprotectthehealthandwell-beingofcitizensfromenvironment-relatedrisksandimpacts.Atthesametime,thistransitionmustbejustandinclusive:Itmustputpeoplefirst,andpayattentiontotheregions,industriesandworkerswhowillfacethegreatestchallenges.TheGreenDealcommitstodeliveringnet-zerogreenhousegasemissionsatEUlevelby2050.ItalsoincreasestheEU-wideGHGemissionsreductiontargettoatleast55%for2030inordertolimitwarmingto1.5degreesCelsiusandalignwiththegoaloftheParisAgreement.TheEUisworkingontherevisionofitsclimate,energyandtransport-relatedlegislationunderthe‘Fitfor55Package’inordertoaligncurrentlawswiththe2030and2050ambitions.ThismeansthatadditionaleffortwillbeaskedofallMemberStates,includingIreland.IrelandfullysupportstheenhancedambitionatEUlevel.
InlinewithEUambition,theProgrammeforGovernment,OurSharedFuturecommitstoachievinga51%reductioninIreland’soverallGHGemissionsfrom2021to2030,andtoachievingnet-zeroemissionsnolaterthan2050.Theselegally-bindingobjectivesaresetoutintheClimateActionandLowCarbonDevelopment(Amendment)Act2021,theenactmentofwhichwasakeypriorityintheProgrammeforGovernment.TheClimateActwillsupportIreland’stransitiontonet-zeroandtheachievementofaclimateneutraleconomynolaterthan2050.Italsoestablishesalegallybindingframeworkwithcleartargetsandcommitments,toensurethenecessarystructuresandprocessesareinplacetodeliverournational,EUandinternationalclimategoalsandobligationsinthenearandlongterm.Againstthisbackground,strategiesmustbedevisedtoreduceandmanageclimatechangerisksthroughacombinationofmitigationandadaptationresponses.ThisClimateActionPlansetsoutaroadmaptodeliveronourclimateambition.Itwillbeupdatedannually,includingin2022toalignwiththelegallybindingeconomy-widecarbonbudgetsandsectoralceilingsthatwewilladoptinthecomingmonths.AsenvisagedintheProgrammeforGovernment,wearenotinapositiontoidentifyalltheemergingtechnologies,changingscientificconsensusorpoliciestomeetourfullambition.Thiswillrequireafurtherallocationwithinouroverallcarbonbudget,subjecttointenseevaluation.Thisapproach,whichmirrorstheDanishmodel,isreflectedintheClimateActionandLowCarbonDevelopment(Amendment)Act2021,andwillbeafeatureoftheiterativenatureourannualClimateActionPlans.
Therecentlypublishedreport(August2021)bytheIntergovernmentalPanelonClimateChangeaspartofitsSixthAssessment,setsoutthemostup-to-datephysicalsciencebasisforourunderstandingofclimatechange.TheEnvironmentalProtectionAgency’srecentlypublishedClimateStatusReportforIreland2020alsosetsoutthemostup-to-dateclimateobservationsforIreland.Thesereportsconfirm,amongotherthings,thatwehavealimitedwindowforrealactiontoreduceemissionstoensurethatcurrentandfuturegenerationscanlivesustainablyinalow-carbonandclimate-resilientworld.
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Itis,therefore,essentialthattheinternationalcommunitystepsupitseffortstowardsmeetingtheParisAgreementobjectivesof:
• Holdingtheincreaseintheglobalaveragetemperaturetowellbelow2°Cabovepre-industriallevelsandtopursueeffortstolimitthetemperatureincreaseto1.5°Cabovepre-industriallevels,recognisingthatthiswouldsignificantlyreducetherisksandimpactsofclimatechange
• IncreasingtheabilitytoadapttotheadverseimpactsofclimatechangeandfosterclimateresilienceandlowGHGemissionsdevelopment,inamannerthatdoesnotthreatenfoodproduction
• Makingfinanceflowsconsistentwithapathwaytowardslowgreenhousegasemissionsandclimate-resilient development
TheParisAgreementandAgenda2030SustainableDevelopmentGoals(SDGs)recognisethattheimpactsofclimatechangewillbefeltbyall,butthattheseimpactswillbeuneven.Vulnerablecommunitiesandpeoplearoundtheworld–inparticularwomenandgirls–facedevastatingimpactstotheirlivelihoodsandgreaterchallengesinadaptingtothelong-termeffectsofclimatebreakdown.AsapartytotheParisAgreement,IrelandrecognisesthePrincipleof“commonbutdifferentiatedresponsibilityandrespectivecapabilities”withintheAgreement,whichacknowledgesadiverserangeofcapacitiesandresponsibilitiesbyParties.Irelandalsorecognisesboththerightandresponsibilityofallcountriestopursuelow-carbon,climate-resilientdevelopment,andissupportinginitiatives–withintheframeworkofboththeParisAgreementandtheUnitedNationsSDGs–tosupportless-developedcountriesinachievingtheseobjectives.Inlightofthis,ourclearambitionistocontinuetodeliverastep-changeinouremissionsperformanceoverthecomingdecade,sothatwewillnotonlymeetourEUtargetsfor2030,butwillalsobewellplacedtomeetourmid-centurydecarbonisationobjectives.
Inlightoftheincreaseinambtionunderthisplan,wehaveintroducedsignificantadditionalmeasures,tobeundertakenacrossthewholeofIrishsocietyandacrosstheeconomy,inordertoachievethelevelofchangerequired.Thisplanalsoassumesfullimplementationofthe2019plan.
TheNationalDevelopmentPlan2021-2030(NDP)setsouttheinvestmentprioritiesthatwillunderpintheimplementationoftheNationalPlanningFramework,throughatotalinvestmentofapproximately€165billion.TheNDPhasbeendesignedtoensurethatitsupportsthegovernment’sclimateambitions.ForthefirsttimeinIreland,climateandenvironmentalassessmentoftheNDPmeasureshasbeenundertaken,alongwithanassessmentofthealignmentoftheNDPasawholewiththeprincipleofagreenrecovery.
TheCOVID-19pandemichasplacedanenormousburdenonoursocietyandeconomy.Asweemergefromthecurrentcrisisandrebuild,itiscrucialthatweembedclimateresilienceaspartofourrecovery.Wemustmakestructuralchangesthatwillbreakthelinkbetweenfossilfuelsandeconomicprogressandensurethatourpost-COVID-19recoveryisfullyconsistentwiththetransformationtoadecarbonisedeconomyoverthecomingdecades.Ireland’sNationalRecoveryandResiliencePlan(NRRP)prioritisesasustainable,equitable,greenanddigitalrecovery,inamannerthatcomplementsandsupportsthegovernment’sbroaderclimateambition.
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Focusingonclimateactionaspartofa‘green’recoveryofferstheopportunitytorebuildoureconomyandgeneratenewjobs,whilerespondingeffectivelytoclimatechange.Thisplan,togetherwiththeNDPandtheNRRP,adoptsthisapproachinrecognisingtheprofoundnatureandscaleofthedecarbonisationchallenge,whileunderscoringthenewopportunitiesforbusinessesandforjobsinembracingthechallengeahead.
Itisimpossibletopredicthowthenextdecadewillunfold.Thepaceofindividual,technological,scientific,societalandeconomicchangewillnotbepreciselyinlinewithourassumptionstoday.Wewill,therefore,updatethisplanevery12months,inlinewiththeClimateActionandLowCarbonDevelopment(Amendment)Act2021,andfollowingconsultationwithkeystakeholders.Theseupdateswillbeinformedbythelatestanalysesandbyourperformanceagainsttargets;andwillincludeanyneworcorrectiveactionsthatwemayneedinordertostayontracktowardsouroverall2030targetsandourultimateobjectiveofachievingatransitiontoaclimateresilient,biodiversityrichandcarbonneutraleconomy no later than 2050�
Whilemuchofthisplanfocussesonclimatemitigation–theimperativetoreduceouremissionsofGHGsandtherebyreducewarming–wealsoneedtofocusonclimateadaptation.ThisisaddressedinChapter21ofthisplan.PeoplethroughoutIrelandhavealreadyexperiencedfirst-handthelikelyimpactsofclimatechange,particularlythroughrecentfloodsandstorms,andthesubsequentdamagecaused.Eventslikethese,andtheexpectedincreaseintheirfrequencyandintensity,highlighttheneedforadaptationmeasurestohelpthecountrycopewiththeeffectsofclimatechange.TheNationalAdaptationFramework,publishedinJanuary2018,setsouttheactionswearetakingtoreduceourvulnerabilityandincreaseourresilienceinresponsetoclimatechange.TheFrameworkisduetobeupdated in 2022�
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Enterprise
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Enterprise
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Where We Stand 2
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2. Where We Stand
2.1 Trends in Ireland’s Emissions to DateIreland’sgreenhousegas(GHG)emissionshaveundergoneconsiderableshiftinthethreedecadessince1990�1AccordingtotheEnvironmentalprotectionAgency(EPA)inventorydata,therateofemissionsreductionwasmodestupto2008,witheffortstodecarboniseconstrainedbystrongeconomicactivity.Since2011,emissionshavetrendedupwardsagainwithanoverallpeakinemissionsreportedin2018.Agricultureisthelargestsourceofemissions,representing37.1%oftotalnationalemissionsin2020,basedonprovisionalestimates.Thetransportandenergyindustries(primarilypowergeneration)sectorsrepresent17.9%and15.0%respectively,oftotalGHGemissionsin2020.ThetransportsectorhasbeenthefastestgrowingsourceofGHGemissions,showinga100percentincreasebetween1990and2020.Thesethreekeysectors-agriculture,transportandenergyindustries-consistentlyhavethelargestshareofemissions.
DespitetheeconomicimpactofCOVID-19,GHGemissionsinIrelanddecreasedbyonly3.6%in2020,demonstratingthescaleofthedecarbonisationchallengeforIrelandoverthecomingdecade.AssetoutinFigure2.1,thedecreaseinemissionsisevidencedinmostsectorswiththeexceptionofincreasesinresidential,agricultureandpublicservices.
Keydriversofrecentreductionsinemissionsincludereduceduseofpeatandincreasedrenewablepowergenerationintheelectricitysector;reducedemissionsduetotheimpactofCOVID-19restrictionsonpassengercarandpublictransportjourneys;anddecreasesincombustionandprocessemissionsduetoreducedcementproductionwithmostplantshavingextendedclosuresduetoCOVID.
Increasesinemissionsin2020intheresidentialsectorweredrivenbyanincreasednumberofheatingdaysin2020duetoacolderwinter,aswellaslowkerosenepricesandincreasedworkingfromhome.Increasedactivityintheagriculturesectorwasevidencedthroughincreaseinnitrogenfertiliseruseandliming,aswellashigherdairycownumbersandmilkproduction.
Figure 2.1 – Ireland’s CO2eq. Emissions Inventories 1990-2020 2
1 GreenhousegasemissionstrendsandinventoriespublishedbytheEPA.Seehttps://www.epa.ie/our-services/monitoring--assessment/climate-change/ghg/
2 Chartdataavailablefromhttps://www.epa.ie/our-services/monitoring--assessment/climate-change/ghg/key-messages/
Where We Stand
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2.2 Ireland’s National Climate TargetsTheClimateActionandLowCarbonDevelopment(Amendment)Act2021commitsIrelandtoreachalegallybindingtargetofnet-zeroemissionsnolaterthan2050,andacutof51%by2030(comparedto2018levels).Underthe2021Act,Ireland’snationalclimateobjectiverequiresthestatetopursueandachieve,bynolaterthantheendoftheyear2050,thetransitiontoaclimateresilient,biodiversityrich,environmentally sustainable and climate neutral economy�
Ourstatutorynationalclimateobjectiveand2030targetsarealignedwithIreland’sobligationsundertheParisAgreementandwiththeEuropeanUnion’sobjectivetoreduceGHGemissionsbyatleast55%by2030,comparedto1990levelsandtoachieveclimateneutralityintheEuropeanUnionby2050.
Box 2.1
Ireland’s EU climate targetsInitsapproachtodecarbonising,theEUhassplitGHGemissionsintotwocategories,namelytheEmissionsTradingSystem(ETS)andthenon-ETS. EmissionsfromelectricitygenerationandlargeindustryintheETSaresubjecttoEU-widetargetswhichrequirethatemissionsfromthesesectorsmustbereducedby43%by2030,relativeto2005levels.WithintheETS,participantsarerequiredtopurchaseallowancesforeverytonneofemissions,withtheamountoftheseallowancesdecliningovertimetoensuretherequiredreductionof43%inGHGemissionsisachievedatEU-level. Emissionsfromallothersectors,includingagriculture,transport,buildings,andlightindustryarecoveredbytheEUEffortSharingRegulation.ThisestablishedbindingannualGHGemissiontargetsformemberstatesfortheperiod2021–2030.Irelandwillneedtoreduceitsemissionsfromthesesectorsby30%by2030,relativeto2005levels. UndertheEUGreenDeal,thetargetsfortheETSandnon-ETSsectorswillberevisedupwardsinordertoachievethecommitment,atEUlevel,toreachaneconomy-wide2030reductioninemissionsofatleast55%,comparedto1990levels.LegislativeproposalstoimplementthesetargetswerepublishedinJuly2021andthesearecurrentlybeingnegotiatedatEUlevel.
2.3 Impact of Existing PoliciesIreland’slatestprojectionsofGHGemissionsto2030,publishedbytheEPA,showtotalemissionsdecreasingfromthelatestinventory(2020)levelsby19%withtheimpactofadoptedandplannedpolicies,beforetheadditionalimpactofthisClimateActionPlanisfactoredin.Theseprojectionsalreadyassumesignificantreductionsinkeysectorssuchaspowergeneration,residential,transport,commercialandpublicservices,andagriculture,withfullandearlyimplementationofexistingpolicycommitments.Theseinclude,by2030,achievingatleast70%ofelectricitydemandfromrenewablesources,retrofitting500,000homestoaB2equivalentBERstandard,andincreasingthenumberofelectricvehiclesonourroadstoalmost1million.EarlyimplementationofthesepolicycommitmentswillalsoenableIrelandtomeetitsEUEffortSharingRegulationtargetsfor2021-2030(seeBox2.1).
2.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
1 FinaliseIreland’slong-termclimatestrategy
Where We Stand
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3. Policy to Date and Expected Impact of Planned Policies
TheClimateActionPlan2021setsoutadetailedsectoralroadmapdesignedtodelivera51%reductioningreenhousegas(GHG)emissionsby2030.Thisdoublestheambitionofour2019Plan,andwillrequiresignificantreductionsfromallsectors,recognisingthattheabatementpotentialwillvarybysector�
Wehavealreadystartedonthetransitionwithsignificantprogressmadeoverthelasttwoyears.AswellasthemassivecapitalinvestmentprogrammesrecentlycommittedtoundertheNationalDevelopmentPlan(NDP)outtoend2025,somekeyachievementsbysectorinclude:
Electricity • FirstRenewableElectricitySupportScheme(RESS)auction• FinalisationoftheFrameworkforOffshoreElectricityTransmissionSystemandpublicationoftheNationalMarinePlanningFramework
• Communitybenefitfundsandcommunityenergyprojectssupportedunderfirstrenewable electricityauction
• ConsultationonfirstauctiontosupplyelectricityfromoffshorewindundertheRESS
Transport• Newgrantschemelaunchedtoassistinthepurchaseofmoresustainabletrucks,buses,
vans and coaches• €360milliongrantedtosupportthedeliveryofimprovedwalkingandcyclinginfrastructure• FirstLuastramextensiondelivered• NewSchemefor200on-streetpublicchargepointsperyearforelectricvehicles• ElectricVehiclePolicyPathwayReportpublished
Buildings• Developmentof‘One-Stop-Shop’modeforresidentialandcommercialenergyefficiencyupgrades• Establishmentofadedicatedtrainingcentreforupskillingconstructionworkerstonearzeroenergybuildingstandards,pavingthewaytoexpandtoatotalof5centresofexcellencenationwide
• Twolarge-scaledistrictheatingprojects,supportedbytheClimateActionFund,nowunderway
Enterprise• Eco-designlegislationupdated,whichwillimprovetheenergyefficiencyofproductsonthemarket• ClimateActionEnterpriseFundlaunchedtosupportclientcompaniesthroughEnterpriseIreland
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Agriculture• Launchofpilotprojecttolinkfarmers’paymentswithenvironmentallyfriendlyfarmingpractices• Organicfarmingschemereopenedtosupportfamerstofarmmoresustainably• NewSignpostFarmProgrammedevelopeddemonstratingmitigationmeasuresthatwon’timpactonfarmprofitability
Carbon Pricing• Newlegislationputinplacegivinggreaterclarityandtransparencyonthecarbontaxratesto2030• Introductionofnewshadowpriceofcarbontoensurepublicinvestmentprojectstakeaccountof
the climate impacts
Public Sector• ResourceEfficiencyActionPlansforallgovernmentdepartmentspublished• Newregulationstophaseoutfossilfuelvehiclesinpublicfleets
Circular Economy • WasteActionPlanforaCircularEconomypublished• DraftCircularEconomyBillpublished
OvertimetheseachievementswillbereflectedinreducingGHGemissions.Intermsofthestep-upineffortnowrequired,Table3.1showsproposedemissionsreductionsbysectortoachievetheambitioninthisPlan.
Table 3.1 Proposed Emissions Reductions by Sector
Sector3 2018 emissions (MtCO2eq.)
2030 target emissions (MtCO2eq.)
% reduction relative to 20184
Electricity 10�5 2-4 62-81%Transport 12 6-7 42-50%Buildings 9 4-5 44-56%Industry 8�5 5-6 29-41%Agriculture 235 16-18 22-30%LULUCF 4�8 2-3 37-58%Unallocated Savings N/A 46 N/A
Thedetailsoftheplannedpolicies,measuresandactionstodelivertheseemissionsreductionsaresetout in the sectoral chapters of this plan�
3 EmissionsfromWasteandPublicSectornotshownseparatelyintable4 RangeswillbefinalisedinClimateActionPlan2022followingthelegaladoptionofcarbonbudgetsandsectoralemissionsceilings
5 ProjectedfiguretobeconfirmedwheninventoriesbasedontheFifthAssessmentReport(AR5)oftheUnitedNationsIntergovernmentalPanelonClimateChangearepublished
6 4MtCO2eq.areunallocatedonaneconomy-widebasis–seereferencetoDanishmodel(citedinPfG)below
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LandUse,LandUseChangeandForestry(LULUCF)emissionsaredealtwithasadistinctsectoralcategoryinthisplan,separatefromagriculturesectoremissions.In2018,netemissionsfromLULUCFwere4.8MtCO2eq.A51%reductionwouldmeana2030targetof2.4MtCO2eq.,asitisnotcurrentlyenvisagedthatthenon-LULUCFsectorscancontributemorethanissetoutinthetableabove.However,thisnetemissionstargetforLULUCFismorechallengingthanitappears.The4.8MtCO2eq� netemissionsin2018representsnon-forestlandasasourceofemissionswithourforestsinknettedoff.TheforestsinkisdecliningandonaBAUbasisitisexpectedthatnet-LULUCFemissionswillbeatleast7MtCO2eq� in 2030�
TheClimateChangeAdvisoryCouncil(CCAC)hasadvisedthatinsettingandaccountingfortargetsforLULUCFemissionsto2030,thegovernmentshouldtakeaccountoftheunavoidabledelaybetweenactionsandoutcomesintermsofactualremovals,withtheunderstandingthatmanyoftheactionstakenwillbearfruitinthepost2030period.Forexample,plantingahectareofforesttoday,willremovecarbondioxidefromtheatmosphereasthetreesgrow,butwilldelivermostofitssequestrationpotentialintheperiodafter2030.Theinventoryreflectsthegradualaccumulationofcarbonintothetrees,whichinyoungerandmaturetreesislimited.Inordertoincentiviseactivity,provisioncouldbemadeinregulationtoaccountforthecommittedremovalinashortertimeframe,whileavoidingdoublecounting.Thegovernmenthasfollowedthisadvice.Thisplanidentifiesmeasurestodeliver2.5MtCO2eq.,withpotentialtoaccountforafurther2.1MtCO2eq.offuturesavingsfromafforestationintheperiodto2030,creatingtherightincentivestoachieveafforestationratesconsistentwithmeetingour2030target,andbecomingclimateneutralby2050.
TheProgrammeforGovernmentrecognisedthatwewouldnotyetbeinapositiontoidentifyalltheemergingtechnologies,changingscientificconsensusorpoliciestomeetourfullambition.Thiswillrequireafurtherallocationwithintheoverallcarbonbudgetsasthedecadeprogressesandwillbesubjecttointenseevaluation.Thisapproach,whichmirrorstheDanishmodel,isreflectedintheClimateActionandLowCarbonDevelopment(Amendment)Act.ThisClimateActionPlanleavessavingsof4MtCO2eq.unallocatedonaneconomy-widebasispendingidentificationofadditionalabatement measures�
Itshouldbenotedthatwhilethisplanisconsistentwitha51%reductioninGHGsby2030,itwaspreparedpriortoconsiderationandadoptationbythegovernmentandOireachtasoftheproposedprogrammeofcarbonbudgetsrecentlypublishedbytheClimateChangeAdvisoryCouncil.TheClimateActionPlan2022willfullyreflectthelegallyadoptedcarbonbudgetsandsectoralceilings.
3.1 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
2 Conductareviewofgreenhousegasemissionsonaconsumptionbasis,withagoalofensuringthatIrishandEUactiontoreduceemissionssupportsemissionreductionsglobally,aswellasonourownterritories
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4. Choosing the Pathways which Create the Least Burden and Offer the Most Opportunity for Ireland
4.1 IntroductionTheClimateActionPlan2019(CAP19)wasbasedonamarginalabatementcostcurve(MACC),andreliedlargelyonknownandwellunderstoodmeasuresandtechnologiestoreduceemissions.Themeasuresandtechnologiessetoutinthe2019planremainunchanged.TheClimateActionPlan2021(CAP21)willbuildontheseinordertodeliverthegreaterambition.
GiventhesignificantincreaseinambitionrequiredforCAP21,alargerrangeofmeasuresarerequired.Someofthesearestillrelativelynewandtheirpotentialimpactandcostwillevolveoverthecomingdecade.Toreflectthis,themeasuresinCAP21aredividedintotwocategories:coremeasuresandfurther measures�
Coremeasurescovertheestablishedfundamentalsofdecarbonisation,suchasdevelopingrenewablepowerforelectricitysupply,electrificationacrossdemandsectors,anddemandmanagementmeasures.ThesebuildontheexistingCAP19actions.ThesecoremeasuresarenecessarybutnotsufficienttoachievetheCAP21targets.Inordertodeliverthe-51%targetby2030,furthermeasuresarerequiredthataremoretechnicallychallengingorarenotyetavailableatscaleinIreland.Examplesoffurthermeasuresincludebiogas/biomethanewithcurrentlylimitedsupply;greenhydrogen,whereelectrolysistechnologiesarestillbeingdevelopedandcostsarerelativelyhigh;andCarbonCaptureandStorage(CCS)whichrequirescapitalexpenditureandthedevelopmentoftransportandstorageinfrastructure.
Figure 4.1
Deployingallcoremeasureswouldreduceemissionsby10-11MtCO2eq� by 2030� Three sets of further measurescouldclosethegap(setoutbelow).Giventhatthesefurthermeasuresaremorechallenging,aprogrammeofworkwillbeundertakentorefinethepotentialofthesemeasuresandtosetrelevanttargets/pathways.ThesewillbereflectedinfutureClimateActionPlans.
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Figure 4.2
4.2 Sector Abatement AmbitionDeliveringthesecoreandfurthermeasureswillmeanastep-upinambitionacrossallsectors.Thefigurebelowshowsasectoralsplitoftheimpliedemissiontargetsby2030andidentifiestherelevantcoreandfurthermeasures�
Figure 4.3
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Theanalysisdemonstratesthatsustainedeffortsacrosssectorswillberequiredtomeettargets.Thetimelinetorealisethebenefitsdifferbetweensectorsandinterventions,buteachsectorrequiresactionnowtodeliverby2030:
Electricity: Theproposedpathwayincludesamorerapidbuild-outofrenewablegenerationcapacity(windandsolarpowergenerationtechnologies),increasedstorage,andthedeploymentofzero-emissionsgas.Thedecarbonisationpathwayfortheelectricitysectorischallenginggiventherapidgrowthindemandforpower,aswellastheneedtoensuresecurityofsupplythroughthedecarbonisationjourney.
Transport: Theproposedpathwayintransportisfocusedonacceleratingtheelectrificationofroadtransport,theuseofbiofuels,andamodalshifttotransportmodeswithlowerenergyconsumption(e.g.publicandactivetransport).
Buildings:TheproposedpathwayincludesdeliveringtheretrofitambitioninCAP19,rolloutofdistrictheatingincities,andaccelerationofzero-emissionsheatingincommercialbuildings.
Industry:Theproposedpathwayincludesacceleratinguptakeofcarbon-neutralheatinginindustry;enablingelectrificationofhigh-temperatureheating;phase-outofhigh-GWPF-Gases;blendingofzero-emissiongas;anddecreasingembodiedcarboninconstructionmaterials.Inaddition,theremaybearoleforCCSinhardtoabateindustrysectors.
Agriculture:KeymeasuresinagricultureincludeincreasingtheuptakeofGHGefficientfarmingpracticesanddiversifyingfarmactivities(e.g.,throughafforestation,forestmanagementandbioenergy),andcreatingnewbiomethanebusinessopportunities.
LULUCF:InadditiontotheambitiousafforestationtargetsinCAP19,thepathwayincludessignificantreducedmanagementintensityofourpeatlands,andmoreefficientmanagementofgrasslandsto reduce emissions�
Figure4.4showsthecoremeasuresoutlinedabovebysector,settingspecificambitions(indicatedbyKPIs)tobeachievedby2030.ArticulatingtheKPIswillenableeachsectortoregularlymonitorprogress,andtogaugewhetherthemostappropriatepolicytoolshavebeenidentifiedandarebeingdeployed,orwhetherthereisaneedtoreconsiderthepolicyand/ortheambition.
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Figure 4.4
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4.3 Investments RequiredReducingourgreenhousegasemissionsby51%by2030mustinfluencebothpublicandprivatecapitaloverallinvestment(publicandprivate)choices.Amodelledestimate7,basedonavailableinformationatthetimeofwritingtheplan,suggeststhatdeliveryofCAP21couldrequire~€45billionadditionalinvestmentcomparedtoifIrelandtooknoclimateactionatall.Thisfigureispurelyinvestmentcost,anddoesnotincludetheoperationalsavingsthatcouldfollow,forexample,theoperatingcostsofrenewablesareexpectedtobemuchlowerthanthoseforcoalgeneration.Oftheadditional~€45billionincapitalexpenditure,~€25billion(~55%)isestimatedtobeinvestedinthebuildingssector,~€15billion(~35%)inthepowersector,and~€5billion(~10%)intransport.
DeliveryofCAP21couldrequireafurther~€80billionofreallocatedfunds(publicandprivate)thatcouldotherwisebeinvestedinincumbenttechnologies,basedonacomparisonofinvestmentassociatedwithapathwayconsistentwithCAP21anda“noclimateaction”baseline.Figure4.5showsthatthisresultsinatotalof~€125billion–summingadditionalandreallocated–capitalinvestmentinlow-carbontechnologiesandinfrastructureintheperiod2021to2030.Thismeasureof“totalcapex”isforthetotalinitialinvestmentrequired(e.g.abatteryelectricvehicle)andisagnosticof(i)theoperationalsavingsthatmayfollowand(ii)theinvestmentthatwouldhaveotherwisebeeninvestedinincumbenttechnologies(whichisconsideredonlyintheadditionalfigureabove).Asshownbelow,investmentrequiredthisdecadeisexpectedtobedrivenbytransport(~€51billion)andbuildings(~€35billion).Thesearetwosectorsthatareexpectedtotransitionearlierthansomeothers.Forexample,industryishardertoabateandinvestmentisexpectedtocomeinthefollowingdecades.Theanalysissuggeststhatthemostsignificantshareofcapitalcouldflowintoelectricvehiclepassengercars,renewables,andbuildinginsulation.Forcalibration,theincrementalinvestmentfor2021-30perheadisbroadlycomparable,oncescaled,tothatoftheUK’sClimateChangeCommitteeequivalentprojectionfortheUK8�
7 These estimateswillcontinuetobeupdatedastheplanevolvesovertime8 ClimateChangeCommittee(2020)UKSixthCarbonBudget
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Figure 4.5Figure4.5highlightsthattheshareoftotalinvestmentthatisadditionalcouldvarysubstantiallybysector.Forexample,comparisonofrequiredinvestmentinadecarbonisedscenarioversusa‘noclimateaction’scenario,suggeststhatthebuildingssectorhasaparticularlyhighshareofitstotalinvestmentthatisadditionalbecausemostoftheretrofitswouldnotbeimplementedina‘noclimateaction’scenario.Whereas,powerhasamoderatelyhighshareofitstotalinvestmentasadditional,andthisisdrivenbythehighercapexofrenewablesversusfossilfuelpowergeneration,togetherwiththeneedtoexpandthegridcapacityaselectrificationoccurs.Bycontrast,arelativelylowshareoftotaltransportinvestmentisexpectedtobeadditionalbecausevehiclesarereplacedregularlyandthepricedifferencebetweenelectricvehiclesandinternalcombustionvehiclesdeclinesoverthedecade.
AnnualisingthetotalcapitalexpenditurefigureassessedabovesuggeststhatdeliveryofCAP21couldrequireatotalof€14bnp.a.,onaverage,overthenineyears2021-30.
TherecentlypublishedNDPsetsoutatotalpublicinvestmentof€165billionovertheperiod2021to2030.Thiswillbringpublicinvestmentto5percentofGNI*,wellabovetherecentEUaverageof3percentofGDP.ExtensiveeffortshavebeenmadetoensurethattheNDPwillsupporttheGovernment’sclimateambitions.ForthefirsttimeinIreland,climateandenvironmentalassessmentoftheNDPmeasureshasbeenundertaken,alongwithanassessmentofthealignmentoftheplanasawholewiththeidealsofagreenrecoveryplan.CommitmentsaremadetofurtherreformsofthePublicSpendingCodeandtothetreatmentofEnergyPerformanceContracts.Mostsignificantly,€5billionofthetotal€9.5billioninadditionalcarbontaxreceiptsovertheperiodoftheNDPhavebeenallocatedtoincreasecapitalinvestmentlevelsinenergyefficiency.Bywayoffurtherexample,measuresintheenergyareawillbefinancedthroughavarietyofmechanismsincombinationwithprivateinvestment:directExchequercapitalsupports;displacingfossilfuelimports;thePublicServiceObligation(PSO)Levy;and,inrespectofinvestmentintheregulatedgasandelectricitynetworksbythesystemoperators,throughnetworkcharges.Inaddition,ourNationalResilienceandRecoveryPlancommits€518milliontoprioritisingadvancingthegreentransitiontosignificantlyreformanddirectrelevantfundingtowardsdecarbonisingprojectssuchasretrofitting,ecosystemresilienceandregeneration,climatemitigationandadaptation,andgreendatasystems.
7
About 60% of the required Climate Action Plan 2021 measures have a stand-alone business case
Share of total investments by 2030, % (100= ~ EUR 125 bn)
Negative business case
Mixedbusiness case
Core measures Further measures
Increase adoption of GHG-efficient farming practices
A1
LULUCF measuresL
Build-out renewable generation capacity (pushing renewable generation share to ~80%)
E1
T4 Modal shift (tier 1) towards transportation modes with lower energy consumption per kilometre
Increase targets for roll-out of district heating
B3
Ramp-up zero-emission heat in commercial buildings
B2
Enable electrification of high-temperature heat generation
I4
Accelerate uptake of carbon-neutral low temperature heating
I1
Phase-out high-GWP F-GasesI2
A2 Diversify farm activities (e.g., through forestry, bioenergy)
Increase targets for public sector buildings
Accelerated adoption of zero-emission passenger cars and commercial vehicles
B4
T1
Continue to phase out fossil fuels in new homes
B1
Reduce embodied energy in construction
I3
Increase biodiesel blend-rateT2
Zero-emission domestic goods and passenger mass transportation
T3
Create new biomethane business opportunities
A3
Stand alonebusiness case
~60%
%
Significantly reduce embodied energy in construction
I5B5 Blend in zero-emission gas for fuel use in buildings
Produce hydrogen for consumption in other sectors
E3E2 Deploy zero emission gas generation (e.g., biogas/ biomethane, hydrogen)
T4 Further modal shift (tier 2) through behavioural changes to reduce kilometres travelled to a greater extent
Deploy carbon capture and storage (CCS)
I7I6 Blend in zero-emission gas for fuel use in industry
Accelerate sustainability transformation in agriculture
A4
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Businesscaseanalysissuggeststhat~€75billion(60%)ofidentifiedinvestmentscouldhavepositivestandaloneinvestmentcasesthroughdisplacingfossilenergycosts.However,theremainderof~€50billion(40%)includesmeasuresthatareexpectedtopaybacksometimes,dependentoncontextandothersthatarenotexpectedtoeverpayback.Asshownabove,theanalysisillustratedthattheshareofinvestmentswithapositiveinvestmentcasecouldvarysignificantlybysector.Forexample,mostofthetransportandpowerinvestmentshavestandalonebusinesscases.Batteryelectricvehiclesareanexampleofatechnologythatisexpectedtohaveastandalonebusinesscase,withapaybackofabout9yearswithoutacarbonpriceifpurchasedin2025(loweringtoabout7yearswiththeIrishcarbonpricetrajectory).Thisworksbecausethehigherinitialprice(comparedtoadieselcar)willthenberecoupedthroughloweroperatingcostsovertime.
Forbuildingsandindustry,whiletheremaynotbeapurefinancialbusinesscase,therewillbeassociatedco-benefits,suchascleanerairandcomfortthatareimportantandcoulddrivethetransition.
ItshouldbenotedthatreliancesolelyonExchequerexpenditureschemesisneitheraffordablenoradequatetothescaleofthechallengetobeaddressed.GovernmentrecognisesthatclimateactionwillrequireatargetedbalancebetweenExchequer-supportedexpenditure,andtaxationpoliciesandregulation.Privateinvestmentwillbeneededtoworkalongsidepublicfundingtoachieveourtargets.Incertaincases,taxationpolicymayhaveastrongerroletoplayinchangingindividualorbusinessbehaviour.Inaddition,thefinancialcostandresultingbenefitswillbeevaluatedinaccordancewiththePublicSpendingCodeaspoliciesareputinplacetosupportthedeliveryofIreland’sclimatetargets.
4.4 Benefits for IrelandBesidesthecriticalcontributiontolimitingglobalwarming,decarbonisationcandeliverbroadbenefitsforIreland.Analysis(spanningfinancing,employment,competitivenessandhouseholdbills)suggeststhatdeliveryofCAP21couldhavesignificantnetpositivesocioeconomicimplications,contingentoncarefulmanagement.However,italsohighlightsthattherecouldbevariationinimpacts.
DeliveryofCAP21couldbenefitIrishbusinessesinvariousways.ForIrishbusiness,thestakesarehigh.Thestrongglobalcommitmenttonet-zeroandthe'racetothetop’thatisunderwaymeansthatnotactingcarriesarealriskofbeingleftbehind–producingoutdatedproductsforchangingmarketsandconsumerdemands.Changeisinevitable,maintainingthestatusquoisnotanoption.Thechoiceisbetweenhelpingkeysectorstransitionatpace,ordelayingandfacingalaterscrambletocatch-up.TheCAP21alsocreatesopportunities.Forexample,byincreasingjobneedsforhigher-skilledroles(e.g.offshorewindinstallationengineers),andbypositioningIrelandwelltoseizenewhigh-growthgreenexportandimportsubstitutionopportunities(e.g.horticulture,harvestedwoodproducts).
CAP21leverscanbenefitindividualsalso.Embracingactivetravel(e.g.walkingandcycling)canhaveimprovedhealthbenefits,inadditiontothepositiveenvironmentalimpact,whiletheshifttorenewablefuel sources improves air quality�
However,analysisalsohighlightsthattheseimpactscouldbeunevenlydistributed.Forexample,certainsectorsandassociatedoccupationscoulddecline,householdswithcertaincharacteristicscouldincurhigherthanaveragecosts,andenergypricesarelikelytoincrease,impactingparticularindustrialgroupsmore than others�
ThepurposeofthisplanistosetouttheactionsrequiredtoensurethatIreland’sresponsetoclimatechangemaximisesthepotentialbenefitsandensuresthattheimpactsarefairlydistributed.
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5. Governance of the Challenge
5.1 Governance StructureSincethepublicationoftheClimateActionPlan2019,therehasbeenasignificantstrengtheningofthegovernancestructuretosupportambitiousclimateaction,underpinnedbytheenactmentoftheClimateActionandLowCarbonDevelopment(Amendment)Act2021.Wenowhavealegallybindingtargettobeclimateneutralnolaterthan2050,andtoreduceemissionsby51%by2030.
5.2 Delivery of the Climate Action PlanTheClimateActionPlanhasbeenplacedonastatutoryfooting,withrequiredannualupdatestofocusonthenearandmediumtermtimehorizon.Oncetheprogrammeofcarbonbudgetshasbeenlegallyadopted,futureClimateActionPlansmustbeconsistentwiththeirachievement,andprovidearoadmapofactions,includingsectoralactions,thatareneededtoensuresuchcompliance.
TheClimateActionDeliveryBoardwillensurethateachdepartmentandpublicbodyisheldtoaccountforthedeliveryofactionssetoutintheClimateActionPlan.TheBoardwillalsoreviewkeystrategicprojectsandareasofwork.
TheCabinetCommitteeonEnvironmentandClimateChange,supportedbytheassociatedseniorofficialsgroup,willbecentraltoclimatepolicyformulationandimplementationonawhole-of-governmentbasis.
AdeliveryreportwillbeprovidedtotheCabinetCommitteeonEnvironmentandClimateChangeandtheCabineteachquarteraheadofitspublication.Wewillstreamlinethereportingprocesstodistinguishbetweenkeyactionsthatdeliversignificantemissionsabatement,andsupportingactions.Thisallowforgreatertransparencyonprogresstowardsdecarbonisation.
Wewillensurethatcapacityexistsacrossalldepartmentstodeliveronclimateaction.
5.3 Carbon Proofing of Government PolicyWewillcontinuetheprocess,incorporatedintoCabinetprocedures,ofensuringthatall governmentmemorandaandmajorinvestmentdecisionsaresubjecttoaclimatemitigationandadaptationevaluation.
5.4 Carbon Budgets and Sectoral Emissions Ceilings
Carbon BudgetsTheClimateActionandLowCarbonDevelopment(Amendment)Act2021establishesasystemofcarbonbudgetingwiththreefive-yeareconomy-widebudgetsincludedineachcarbonbudgetprogramme.Thecarbonbudgetswillbeconsistentwithfurtheringtheachievementofournationalclimateobjectivesandincludeallgreenhousegases(GHGs).Thefirstcarbonbudgetprogrammewillcomprisecarbonbudgetsforthefollowingperiods:2021-2025;2026-2030and2031-2035.Eachfive-yearcarbonbudgetsetalimitonaneconomy-widebasistotheamountofGHGsthatcanbeemittedinthe period�
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Sectoral CeilingsTheeconomywidecarbonbudgetswillbesupplementedbysectoralemissionsceilings,settingthemaximumamountofGHGemissionsthatarepermittedinagivensectoroftheeconomyduringeachfiveyearcarbonbudget.TheMinisterfortheEnvironment,ClimateandCommunications,inconsultationwithotherrelevantMinisters,willdevelopasectoralemissionsceilingforeachrelevantsectorwithineachfive-yearbudget,oncetheoverallcarbonbudgethasbeenadopted.Thesesectoralemissionceilingswillbeapprovedbygovernment.
Adopting Carbon Budgets and Sectoral CeilingsUndertheAct,theClimateChangeAdvisoryCouncil(CCAC)willproposeaprogrammeofthreesuccessivefive-yearcarbonbudgetstotheMinisterfortheEnvironment,ClimateandCommunications.Thedetailedprocessfromsubmissionofthebudgetstotheirfinaladoptionbygovernment,andincludingtheroleoftheOireachtasintheprocess,issetoutatSection9oftheAct.
Oncecarbonbudgetsandsectoralceilingshavebeenadopted,theywillbereflectedintheClimateActionPlan2022.Aspartofthatprocess,adecisionwillbetakenbygovernmentontheallocationofsectoralresponsibilityforemissionsacrosstherelevantMinisters.
What happens if sectoral targets and carbon budgets are not achieved?Ifrequired,correctiveoradditionalmeasuresmaybeintroducedtoensuretargetsareachieved.However,attheendofafiveyearcarbonbudgetperiod,anyexcessemissionswillbecarriedforwardtothenextbudgetperiod,whichwillbereducedaccordingly.InadditiontotheprovisionsoftheAct,wewillconsultonhowindividualsectorscouldbearanycompliancecostsforthestatearisingfromfailuretoreachsectoraltargets.
5.5 Oversight of GovernmentTheEnvironmentalProtectionAgency’sannualGHGinventoryandprojectionreports,andtheCCACannualreport,willinformmonitoringofcompliancewithnationalandsectoralprogresstowardseachcarbonbudgetandsectoralemissionsceiling.
Eachyear,theCCACmustreportby30October,followingwhichrelevantMinisterswillberequiredtogiveaccounttoanOireachtasCommitteeonperformancebothinimplementingClimateActionPlanactionsandinadheringtotheirsector’semissionceilingunderthecarbonbudgetperiod.WhereMinistersarenotincompliancewiththetargets,theywillneedtooutlinewhatcorrectivemeasuresareenvisaged.MinisterswillhavetorespondtoanyrecommendationsmadebytheCommitteewithin3months.This‘complyorexplain’approachwillensuregreaterscrutinyandaccountabilityisprovided.
TheannualrevisiontotheClimateActionPlanactsasafurtherreviewmechanismandopportunitytore-adjustorrefocusactionstoensuretargetsareachieved.
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5.6 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
3 Streamlinethereportingprocesstodistinguishbetweenkeyactionsthatdeliversignificantemissionsabatement,andsupportingactions,toallowforgreatertransparencyonprogresstowardsdecarbonisation
4 Activateaprocess,incorporatedinCabinetprocedures,toensurethatallGovernmentmemorandaandmajorinvestmentdecisionsaresubjecttoaclimatemitigationandadaptationevaluation
5 Undertakeacapacityreviewacrossalldepartmentstoensurethatboththepeopleandsystemsareconfiguredtodeliveronclimateaction
6 Completetheadoptionofeconomy-widecarbonbudgetsandsectoralceilings
7 PrepareClimateActionPlan2022tofullyreflectthelegallyadoptedcarbonbudgetsandsectoralceilings
8 ConsultonhowindividualsectorscouldbearanyEUcompliancecostsfortheStatearisingfromfailuretoreachsectoraltargets
9 IdentifycommonchallengestoclimateactionimplementationwithintheCivilServiceanddevelopaproposaltoaddressanychallengesidentified
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Ensuring a Just Transition to a Climate Neutral Ireland 6
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Ensuring a Just Transition to a Climate Neutral Ireland
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6. Ensuring a Just Transition to a Climate Neutral Ireland
6.1 IntroductionTheClimateActionandLowCarbonDevelopment(Amendment)Act2021setsIrelandonthepathtoa51%reductioninemissionsbytheendofthisdecadeandtonet-zeroemissionsnolaterthan2050.
Deliveringajusttransitionisbasedonrecognisingthetransformationallevelofchangerequiredtomeetthesetargetsandhavingasharedunderstandingthatthetransitionisfair,just,andthatthecostsaresharedequitably.Ourclimatepoliciesshould,therefore,seektoprotectthemostvulnerable.
AjusttransitionrequiresaframeworktostructurehowIreland’seconomyandsocietywilltransitiontoalowcarbonfuture.ImportantelementsofthisarealreadyinplaceinIreland.StrongclimategovernanceandprogressivepoliciescontainedinthisClimateActionPlanareenablingIrelandrespondtothechallengesandopportunitiesahead.ArefreshedNationalDialogueonClimateActionwillhavejusttransitionatitscore.TheNationalEconomicandSocialCouncil(NESC)willcontinuetoprovidestrategicadvice,researchandanalyticalsupportforajusttransition.Wearedevelopinganenterprise,educationtrainingsystemthatisresponsive,targetedandeffective,andwearecommittedtoensuringthatourcarbontaxationpoliciesareprogressivebycomplementingfutureincreaseswithtargetedincreasesinsocialwelfareandotherinitiativestoaddressfuelpoverty.
Irelandhasalreadybeendemonstratingleadershipinajusttransitionbyexplicitlyrecognisingandaligningitwithourclimatepolicyframeworkthrough:thepredecessortothisClimateActionPlan;theClimateActionandLowCarbonDevelopment(Amendment)Act2021;theappointmentofaJustTransitionCommissioner;andtheestablishmentofarangeoffinancialsupportsfortheMidlandsregioninitstransitionawayfrompeatharvestingforpowergeneration.
AjusttransitionframeworkforIrelandwillbeaboutensuringthatweeffectivelymonitorandmanageourtransitionthroughthestructuresandresponsesalreadyinplaceandplanned,thatourresponsesremainflexiblesothatwecanrespondtofuturetransitionchallenges,andthatwetargettheareasinneed of support�
6.2 Defining a Just Climate TransitionThereisnosingleinternationallyagreeddefinitionofa‘justtransition’andtherearemanydifferentwaystounderstandtheterm.InIreland,theNationalEconomicandSocialCouncil(NESC)hasproposedthefollowingdefinition:“A just transition is one which seeks to ensure transition is fair, equitable, and inclusive in terms of processes and outcomes”.9Ajusttransitioncan,therefore,referbothtothebroaderpolicyframeworkofclimateactiontosupportindividualsandcommunitiesinthetransition,aswellastheprocessofensuringthatindividualsandcommunitieshaveavoiceandaroleininformingandshapingthesesupports.
Buildingonthis,theClimateActionandLowCarbonDevelopment(Amendment)Act2021situatesajusttransitiontoaclimateneutraleconomyasaprocess,withinthewiderstatutoryframeworkofclimateaction,whichendeavours,insofarasispracticable,tomaximiseemploymentopportunities,andsupportpersonsandcommunitiesthatmaybenegativelyaffectedbythetransition.
9 NESC(2020)AddressingEmploymentVulnerabilityasPartofaJustTransitioninIrelandhttp://files.nesc.ie/nesc_reports/en/149_Transition.pdf
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Whilejusttransitioncanalsobeappliedinotherpolicycontextstorefertopolicyconsiderationswhichrequirefairness,inclusionandprotectionofthemostvulnerable,inthecontextofclimatepolicythetermisusedspecificallyinrelationtothetransitiontoaclimateresilient,biodiversityrich,environmentally sustainable and climate neutral economy�
Ourclimatepolicieshavehugepotentialtoopenupnewemploymentandenterpriseopportunities.Ajusttransitioncanmeannewjobs,newskills,newinvestmentopportunities,andthechancetocreateamoreproductiveandresilienteconomy.Whilethetransitionwillrequiretargetedsupportstohelpparticularlyimpactedgroups,regionsandcommunitiesadapt,wearealsoworkingtosupportourcitizens,communitiesandregionstorealisethebenefitoftheseopportunities.
Figure 6.1 – Our Principles for a Just Transition
6.3 Just Transition Framework
Thejusttransitionframeworkismadeupoffourprinciples:
1� An integrated, structured, and evidence-based approachtoidentifyandplanourresponsetojusttransitionrequirements
2� Peopleareequipped with the right skills to be able to participate in and benefit from the future net zeroeconomy
3� The costs are shared so that the impact is equitableandexistinginequalitiesarenotexacerbated4� Social dialogue to ensure impacted citizens and communities are empowered and are core to the transitionprocess
Theinstruments,policiesandregulationsdeployedinthedeliveryofourclimatepolicywillneedtoalignwiththesefourprinciples,andensuretheyaretakenintoaccountintheirdesignandimplementation.
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6.3.1 Principle 1: An integrated, structured, and evidence-based approach to identify and respond to just transition needs as they emerge
IntheMidlandsregiontheimpactfromtheendofpeatasapowergeneratorhasbeenregionallyconcentrated.Basedonourcurrentunderstanding,itislikelythatthefutureimpactsofourtransitiontoaclimateneutraleconomywillbebothincrementalandbroadly-based,affectingoccupationsmostcloselylinkedtoconsumptionoffossilfuels,arisingfromincreasesinheating,energyandtransportcosts,orresultingfromchangesinagriculturalpractices.
Thisdoesnotexcludethepossibilityofconcentratedimpactsindifferentpartsofthecountryorincomegroups(e.g.withhigherrelianceonprivatecarsformobility,onsolidfuelsfordomesticheating,oronparticulartypesofagriculturalproduction).
Forthetransitiontobejust,itmustbestructuredinsuchawayastoallowthestatetoidentifyandrespondtojusttransitionneedsastheyarelikelytoemerge.
OurresponsetotheacutecrisisthatemergedintheMidlandsregionintheelectricitygenerationsectorrequiredtheappointmentofaJustTransitionCommissionertoassisttheGovernmentinitsresponse.TheCommissionerhasbeenveryeffectiveinactingasamediatorintheaffectedregion,facilitatingdialogue,andbringingforwardconcernsfromaffectedcommunities,residents,workersandbusinesses.
However,giventheincrementalandbroad-basednatureofthetransitionchallengeswhichlieahead,apermanentCommissionerroleisnotenvisaged,thoughtheoptionwillremaintoappointaCommissionerifspecificandacutechallengesariseinparticularsectorsorregionswhichrequireatargetedresponse.Affectedregionsandsectorsmayalsorequirespecificstructurestoassistthemineffectivelymanagingthetransition,supportedbyaleaddepartmentwhererequired.
Atanationallevel,thelong-termagendaofajusttransitiontoaclimate-neutraleconomyandsocietywillbemanagedthroughtheestablishmentofanewJustTransitionCommissionandintegratingitsrolewithourexistinggovernanceandengagementstructures,whichwillallowustodeliveramoreintegratedapproachthatfullyembedsourjusttransitionprinciplesintothedeliveryofclimatepolicy.
An Integrated and Structured ApproachWewillfullyintegrateourapproachtothemanagementofajusttransitionintotheannualpolicydevelopmentandreportingcycleprovidedforundertheClimateActionandLowCarbonDevelopment(Amendment)Act2021.Thiswillinclude:
• WewillestablishaJustTransitionCommissionsupportedbyasecretariattoensurepolicyisdevelopedandcloselyalignedwiththeClimateActionPlan.TheJustTransitionCommissionwillmakerecommendationstoGovernment,buildingonresearch,engagementthroughtheNationalDialogueonClimateAction,andtheannualreviewfromtheCCAC,onhowGovernmentpolicycanfurthertheJustTransition
• TheMinisterandtheGovernmenthavingregardtotherequirementforajusttransitiontoaclimateneutraleconomywhichendeavours,insofarasispracticable,tomaximiseemploymentopportunities,andsupportpersonsandcommunitiesthatmaybenegativelyaffectedbythetransitioninthepreparationoftheClimate Action Plan and National Long-term Climate Action Strategy
• Eachdepartmentneedingtoconsidertheirclimatepolicydevelopmentandimplementation againstthefourprinciplesforajusttransitionsetoutaboveandtherecommendationsoftheJustTransitionCommission
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• TheNationalDialogueonClimateActiongatheringinput,onarollingbasis,aboutthekeychallengesfacingindividualsandcommunitiesinthetransition,andthiswillbecomplementedbythedevelopmentofasetofindicatorsforajusttransition.
• TheNationalEconomicandSocialCouncilprovidinganalysisanddialogueofsectoralissues,toincludeinthefirstphaseoftheplanworkonagriculture,climateandjusttransition
• Progressreporting,byeachrelevantMinister,totheOireachtasonhowourprinciplesforajustclimatetransitionarebeingaddressedunderthemostrecentlyapprovedClimateActionPlan,includingthepolicies,mitigationmeasuresandadaptationmeasuresforeachsector
Inaddition,theClimateChangeAdvisoryCouncilisaddressingjusttransitionissuesinitsAnnual Review andtheCouncilwillcontinuetodosoaspartofitsgeneralmandate(underSection12ofthe2015ClimateActionandLowCarbonDevelopmentAct),toreviewandreportandtomakerecommendationsasitconsidersnecessaryorappropriateinordertoenabletheachievementofthenationaltransitionobjective.TheCCACreviewwillbeanintegralpartoftheJustTransitionCommission’sconsiderationsinformingtheirrecommendationstogovernment.
Figure 6.2 – Incorporation of Just Transition into Annual Climate Policy Cycle
ExamplesofwherewearealreadyintegratingjustclimateconsiderationsintoourpolicydevelopmentthroughthisClimateActionPlaninclude:
• IntegrationofcommunityparticipationmechanismsintheRenewableElectricitySupportScheme• Provisionof100%grantfundingforretrofittingtolowerincomehouseholdsundertheWarmerHomesScheme
• CommitmenttoanewConnectingIrelandRuralMobilityPlantoreduceourrelianceonprivatecars• Establishment of a 'Future of Farming in Ireland’DialogueundertheAg-ClimatiseRoadmapfortheagriculturesector
• Integrationofjusttransitionintoournationalruraldevelopmentpolicy,Our Rural Future,asanessentialbuildingblocktoachieveasustainable,resilientandclimateneutraleconomyandsociety
• InclusionofclimatechangeandjusttransitionactionsandassociatedthemesinthenewSocial Inclusion and Community Activation Programme,andsupportfortheprovisionoftrainingandcapacitybuildinginrelationtoclimatechangewithafocusonjusttransition,socialinclusionandanti-povertyforLocalCommunityDevelopmentCommitteesandLocalDevelopmentCompanies
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Figure 6.2 – Incorporation of Just Transition into Annual Climate Policy Cycle
Examples of where we are already integrating just climate considerations into our policy development through this Climate Action Plan include:
• Integration of community participation mechanisms in the Renewable Electricity Support Scheme
• Provision of 100% grant funding for retrofitting to lower income households under the Warmer Homes Scheme
• Commitment to a new Connecting Ireland Rural Mobility Plan to reduce our reliance on private cars
• Establishment of a 'Future of Farming in Ireland’ Dialogue under the Ag-Climatise Roadmap for the agriculture sector
• Integration of just transition into our national rural development policy, Our Rural Future, as an essential building block to achieve a sustainable, resilient and climate neutral economy and society
• Inclusion of climate change and just transition actions and associated themes in the new Social Inclusion and Community Activation Programme, and support for the provision of training and capacity building in relation to climate change with a focus on just transition, social inclusion and anti-poverty for Local Community Development Committees and Local Development Companies
Publication of annual Climate Action Plan
Annual review by Climate Change Advisory Council
Input from National Dialogue and Just
Transition Commission
Ministers report to Oireachtas Commitee
Reivew and update of sectoral climate
measues
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Developing our Evidence BaseOurcapacitytoanticipateandplanforajusttransitionrequiresthedevelopmentofarobustevidencebasetosupportpolicydevelopmentandeffectiveongoingmonitoring.
Asourclimateactionprogresses,thereareincrementalrisksandopportunitiesinthecontextofajusttransition.Thesewilloccurthroughoutthecountry,inparticularregions,sectorsoroccupations.Identifyingtheseshiftsrequiresastructuredapproachinformedbythemostup-to-dateevidencebasewhichprovidestheinformationrequiredtomakeinformeddecisions.
Datawillplayacriticalroleinassistingthelocalauthoritiesinforecastingwherechangeswilloccur(orarealreadyunderway),andwhowillbemostimpacted.
Anumberofmethodologiesarealreadyavailable,orareunderdevelopment,toprovideaquantitativeevidencebaseline,aswellastoinformqualitativeconsiderationsforpolicydesignandimplementation.These include:
• TheNationalEconomicandSocialCouncilreport,‘Addressing Employment Vulnerability as Part of a Just Transition in Ireland’,andrelatedpublicationsfromtheCouncil
• A2020ClimateChangeAdvisoryCouncilworkingpaper,on‘Designing and Implementing Policy for a Just Transition’
• ESRIresearchintothedistributionalimpactsofincreasesincarbontaxthatinformedrecentBudgets
• Teagascanalysis,basedontheannualNationalFarmSurvey,toexaminethemicro-economic,environmentalandothersocio-economicandsociodemographicindicatorsrelatingtotheprincipalIrish economic farm types
• OngoingworktodeveloptheevidencebaseofimpactstoinformtheIreland’s Territorial Just Transition PlanfortheEUJustTransitionFund
• TheforthcomingreportoftheExpertGrouponFutureSkillsNeeds(EGFSN)onSkillstoEnabletheLowCarbonEconomy
TheforthcomingEPAFiveYearClimateResearchAssessment,whichwillincludeavolumeonrealisingthebenefitsoftransitionandtransformation
Developingastrongevidencebasewillbecriticaltodefiningabaselineofrisk,tothedesignandtargetingofactions,andfortheobjectivemeasurementofimpactsthatparticularactionswillhaveinordertomanageafairandequitablejusttransitionovertime.ThiswillprovideMinistersandtheGovernmentwithastrongbasefromwhichtoprogressivelyembedjusttransitionprinciplesintothedeliveryofclimateactionthrougheachannualClimateActionPlan.
WewillestablisharesearchandpolicyworkinggrouptocoordinatetheprovisionofstrategicadviceandresearchtotheproposedJustTransitionCommissionincludingthe,NESC,EPAandotherstakeholders.Thisgroupwillhavefourcorefunctions:
• Commission,reviewandassessworktosupportthedevelopmentofindicatorsandensurethattargetedandtimelydataisavailabletoguidetheoverarchingassessmentofjusttransition
• Commissionanticipatoryresearchanddialoguework,throughNESCorotherwise,oncurrentandfutureanticipatedtransitionstoensureactionstoprovideforajusttransitionareimplemented
• Tosupportaresearchfellowshiptoexaminehowassessmentandreviewofjusttransitioncanbemoresystematicallyembeddedintotheannualclimatepolicycycle.Thiswillincludeconsideration
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ofexistingIrishandinternationalmethodologies,processesofdialogueandengagement,includingwiththesocialpartners,andeffectiveinstitutionalarrangements
• ReviewinputfromCCACannualreviewandmakerecommendationstotheJust TransitionCommission.
• Toreviewtheimpactsof,andmakerecommendationstoimprove,existingjusttransition policyinitiatives
WewilldevelopasuiteofthesuitableindicatorsforadoptionbyGovernment,guidedbymeasurementtoolsthatcurrentlyexist,andbytheprocessesthathavebeenputinplacetodevelopandreportonourprogresstowardstheSustainableDevelopmentGoals,aswellasthedevelopmentofanationalwell-beingframework.SuchindicatorswillalsobeimportanttoinformourpublicengagementprocessesundertheNationalDialogueonClimateActionandtocomplementboththequantitativeandqualitativedatathatwillbegathereddirectlyfromthesepublicengagementprocesses.
Developmentofindicatorswillalsobecomplementedbyongoing,relevantresearchandreportsonajustclimatetransitionfromtheNationalEconomicandSocialCouncil,fromotherpublicbodies,andfromIreland’swiderresearchsystem.
6.3.2 Principle 2: People are equipped with the right skills to be able to participate in and benefit from the future net zero economy
Ireland’s Decarbonisation Opportunity AclimateneutralIrelandwillbringnew,greenemploymentopportunities.TheClimateActionPlansetsoutanumberofkeymeasureswhichwilldrivethecreationofnewjobswithnewskillsrequirementsinanumberofsectors,inparticularbuildingretrofits,renewableenergygeneration,ourmovetosustainablemobility,andnewfarmingpractices.
MeetingIreland’srenewableenergytargetswillincreasedemandforarangeofengineeringandtechnicianroles,including:civil;electrical/electronic;mechanical;marine;productionandprocess;qualitycontrolandplanning;telecommunications;IT;andenergy.
Therewillalsobedemandforarangeofbuiltenvironmentjobs,including:constructionandbuildingtrades;supervisors;constructionoccupations;healthandsafetyofficers;charteredsurveyors;aswellasotherrolessuchas:environmentprofessionals;financeandinvestmentanalysts;advisers;physicalscientists;solicitors;accountants;andtaxexperts.
AccordingtotheExpertGrouponFutureSkillsNeedsestimates,thiscouldraisedemandforrolesintheseactivitiesfroma2020estimateofapproximately5,000topotentially22,000–27,000by2030.
Thereisalsoscopeforadditionaljobcreationasweseektodecarboniseandembedsustainabilitypracticesacrossallsectorsoftheeconomy.
Climateactionpresentsopportunitiesforexistingsupplychainsandnewbusinessesformation.Findingtherightbalancebetweenregulationandincentivestoprogressdecarbonisationwillbecrucialtomaintainingournationalcompetitivenessandabilitytocreatejobs.Asprogressismadeinthetransitiontoacarbonneutraleconomy,changesinregulatoryrequirements(nationallyandinternationally),ahighercarbonprice,supplychainpatterns,andevolvingconsumerpreferences,willdrivegrowthandinnovationinourenterprisebase.Asbusinessestakestepstowardsdecarbonisationandreducingtheirclimateimpact,thereisaneedtoensurethatthenewemploymentopportunitiestheseofferareseized.Climateactionandtheregionalskillsneedswill,therefore,bekeythemesintherefresh of the nine Regional Enterprise Plans for the period to 2024�
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Ireland’s System of Skills Development Developingagreenereconomywillnotbesociallyinclusivebydefaultandcoherentpoliciesareneededtomaximiseopportunitiesandcushionthesocialcostofthetransition.Peopleneedtobeequippedwiththeskillstobeabletoparticipateinandbenefitfromourfutureclimateneutraleconomy.Tomaximisetheseopportunities,continuouspre-emptiveworkforcedevelopmentisrequired.Forindividuals,thismeansreskillingandlifelonglearningtohavethecapacitytobeabletoaccess,andcreate,futureopportunities.
TheIrishhigherandfurthereducationsystemshavebeenrespondingwelltoprovidingin-demandtrainingtorespondtothedecarbonisationoftheeconomybyadaptingprovisionandputtinginplaceadditionaltrainingspaceswhereneeded.Ireland’sfurthereducationmodeliscentredonapprenticeships,transferrableskillsandlifelonglearningtokeeppacewithfuturechanges.Ireland’sskillsarchitecturewillminimiseskillsmismatchesandensureourapproachtoskillsdevelopmentisroutedtowardsthegreentransitionandbroaderareasofopportunityandgrowth.
As set out in the National Economic Recovery Plan,reskillingandupskillingarecentraltoaddressingtheemploymenttransitionandanadditional50,000educationandtrainingplaceswillberolledout.ThisisbeingfurtherenhancedthroughSOLAS’sRecovery Skills Response Programme and further support for the Technological University Transformation Fund.Lifelongpathwaysbetween,andwithin,furthereducationandtraining,andhighereducationwilladvancelifelongleaningratesandthenewActionPlanforApprenticeship2021–2025willgrownewapprenticeregistrationto10,000perannumby2025.
TheProgrammeforGovernmenthascommittedtodevelopingaGreen Further Education and Skills Development Plan,ensuringthatlearnersareequippedwiththeenvironmentalawarenessandgreenskillsthatcandrivefuturechange.Buildingcapacityforgreenapprenticeshipswillbeanimportantelement of this plan�
Forecasting Future Skills NeedsTheEGFSN,whichadvisestheIrishGovernmentoncurrentandfutureskillsneedsoftheIrisheconomy,willshortlyfinaliseitsstudyon‘Skills to Enable the Low Carbon Economy to 2030’� This research willdeterminethedemandfor,andnatureof,theskillsrequiredtodeliveronkeyelementsofIreland’sClimateActionPlanovertheperiodto2030.Itwillidentifythenatureandquantifythescaleoftheskillsneedsofenterprisessupportingthetransitiontoalowcarboneconomy,anddevelopasuiteofrecommendationsthatcanbedrawnupontoensurethatthesefutureskillsneedsarefullyaddressed.
TheRegionalSkillsForawillalsoplayanimportantroleinidentifyingfutureskillsneedsemergingfromthegreenereconomyastheyfeeddirectlyintotheregionalskillsdevelopmentpipelinesthroughEducationandTrainingBoardsatregionallevel.Ongoingregionalengagementfromtheemployment,enterprise,education,andskillssectorsisalsorequired,suchasfromLocalEnterpriseOffices,EnterpriseIreland,theDepartmentofFurtherandHigherEducation,Skillnet,EducationandTrainingBoards,Teagasc,andtheExpertGroupofFutureSkillsNeeds.
Support for Employees at Risk and Labour Market ActivationAnupcomingchallengefortrainingproviderswillbetoidentifywhichjobsareatriskandindemand,andthiswillrequiremonitoringthetypesofnewjobsemerging.Linkedtothisiscontinuallyreviewingtheskillsneedsofthesenewemploymentopportunities.Itwillbeimportanttoassessthetypesofopportunitiesemergingandtheirskillslevels,andtoworkwithemployersindevelopingopportunitiesacrossarangeofskilllevelsandjobtypes.Ongoinghorizonscanningisrequiredtoidentifyemploymentopportunitiesfromthegreentransition,andmappingthesetocurrenttrainingprovision,settingoutwherenewtrainingandeducationcoursesareneeded.
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Existingresearchontheimpactonemployeesindecliningsectorsshowsthatitiscriticallyimportanttoenhancetheskillsandtrainingadviceandsupportstoworkersbeforetheymaybecomeunemployed,deliveringone-to-onecoaching,counsellingandmentoring.Thiscanbesupportedbymakinggreateruseofskillsauditswithat-riskworkerstobetteridentifytransferableskillsandcompetencies,includinginformaloccupationalskills,whichmaylinkworkerstonewopportunitiestheyhadnotconsideredordidnotthinktheyhadthequalificationfor.ThiswillbealsobeinformedbycloseralignmentbetweentheworkoftheRegional Enterprise PlansandRegionalSkillsFora.
Finally,employmentactivationforthoseontheLive Register,andalsocreatingsupportedjobplacements,willplayakeyroleinprovidingopportunitiesforpeopleatthemarginstobepartofIreland’stransitiontoagreenereconomy.Thiscouldincludethelong-termunemployed,peoplekeentoreturntotheworkplaceaftertakingtimeoutforcaringduties,thoserecoveringfromillness,andpeoplewithdisabilitiesorsevereneeds.Developingadditionalcommunity-basedprojectsandsupportedemploymentplacesingreensectorswillprovideopportunitiesforindividualstocontributeanddevelopnewskillsandexperience.
6.3.3 Principle 3: The costs are shared so that the impact is equitable and existing inequalities are not exacerbated
ToensureajusttransitiontoaclimateneutralIreland,thecostsmustbesharedsothattheimpactisequitableandthatexistinginequalitiesarenotexacerbated.
Ifcompensatorymeasuresarenottaken,increasesinthecarbontaxcanhavearegressiveeffectonlow-incomehouseholdsastheyspendagreatershareoftheirincomeoncarbonintensivegoods,suchasheatingfuel.However,theGovernmenthasensuredthatincreasesinthecarbontaxareprogressivethroughtargetedsocialwelfareandotherinitiativestopreventfuelpovertyandensureajusttransition.
TheGovernmenthassoughttoensurethatrevenuefromincreasesinthecarbontaxwillbering-fencedtoprotectthosewhoaremostexposedtohigherfuelandenergycosts,toprovidesupportfordisplacedworkers,andtoinvestinnewclimateactions.Thisincludesexpenditureonasociallyprogressivenationalretrofittingprogrammeandanagri-environmentprogrammetoencourageandincentivisefarmerstofarminagreenerandmoresustainableway.Wehavealsocommittedtouseapproximatelyone-thirdofalladditionalcarbontaxrevenuesoverthenextdecadeontargetedmeasurestoensurethatthecarbontaxincreasesareprogressive.
AnalysisundertakenbytheESRIonthedistributionalimpactsofincreasingcarbontaxhasinformedourdecisionsinBudgets2021and2022toprovideatargetedpackageofsocialprotectionsupportsthatoffsetimpactsonlower-incomehouseholds.AsaresultofBudget2022,forexample,analysishasdemonstratedthathouseholdsinthebottomfourincomedecileswillseeallofthecostofthecarbontaxincreaseoffset,withthebottomthreedecilesbeingbetteroffasaresultofthecompensatorymeasures�
Considerationsaroundcostsandequityarenotlimitedtothecarbontaxandwillalsoapplytootherfiscalmeasures,aswellastotheprovisionofgrantsorothersupportstoassisttheimplementationofclimate policy�
Ajusttransitionisaboutensuringthatpeopleexperiencethebenefitsofagreenerfutureandarenothitwithdisproportionatelyhighcostsiftheywishtoparticipate.Anexampleisthecostofretrofittinga
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hometoupdateitsenergyefficiencylevel.Governmenthasinvestedadditionalfundinginsupportinglowerincomehouseholdstoparticipateintheseschemesbasedontheirabilitytopay,andtheNational Home Retrofit Schemewillcontinuetoprovideadditionalsupporttohomeownersinlowerincomecategorieswhowanttoupgradetheenergyefficiencyoftheirhometoahigh(BERB2)level.
Thisadditionalinvestmentinenergyefficiencybringsarangeofbenefitstotheeconomyandalsototheindividual.Homesalsobecomecheapertorun,leadingtoenergybillsavingsandreducedenergypoverty,andcanimprovehealthandwellbeing,particularlyfortheyoungandelderly,throughbetterinternaldwellingtemperaturesandairquality.
6.3.4 Principle 4: Social dialogue to ensure impacted citizens and communities are empowered and are core to the transition process.
Socialdialogueiscoretodevelopingavisionforhowtoimplementthejusttransitionframework,andimpactedcitizens,businesses(includingtheself-employed)mustbeapartoftheconversationsonclimatepoliciesandclimateimpacts,andtheprocessestomanagethese.
NESC’sresearchonjusttransitionhasfoundthatco-designinganinclusive,focusedandparticipatoryprocesswiththosemostimpactedatanearlystageiskeytoensuringthatatransitionisjust.Therearemanywaysofensuringengagementwiththoseimpacted,includingmeaningfuldialogue,engagementfromlocal,regionalandnationalagencies,bringingincommunityleaders,andclusteringsupportnetworks.
TheNationalDialogueonClimateAction(NDCA)willbethekeymechanismforfacilitatingthesocialdialogueprocessaspartofthejusttransition.TheNDCAwillincludeprocessesofawareness-raising,communicationsandactivation,andensurecommunityengagementandparticipation,usingamodelthathasbeenco-designedwithstakeholderparticipationandinformedbybroadpublicparticipationandsocialandbehaviouralresearch.Citizenengagementsessionswillbeheldthroughouttheyearandwillbesupportedbyongoingresearch.Inparticular,theplannedNational Climate Stakeholder Forumwillbeakeyeventinengagingallrelevantstakeholdersinajusttransition.
ThestrongparticipativeapproachoftheNDCAwillassistallstakeholdersinidentifyingandprioritisingwhatthechallengesoftransitioningare,andhowtorespondtothem.
TheNDCAwillcomplementengagementactivitiesundertakenbydepartmentsandagenciesatsectoral,local,regionalandnationallevels,includingthroughlocalauthorities,PublicParticipationNetworks,SEAISustainableEnergyCommunities,LocalCommunityDevelopmentCommittees,ClimateActionRegionalOffices,theLabourEmployerEconomicForum(LEEF),NESC,andotherkeynationalandsectoraldialogues.
BuildingonthemodeloftheMidlandsRegionalTransitionTeam,establishedbytheMidlandslocalauthoritiestocoordinatealllocalactorsintheirresponsetotheendingofpeat-firedpowergeneration,affectedregionsandsectorsmayalsorequirespecificstructurestoassistthemineffectivelymanagingthetransition,includingtodesignandimplementlocal-led,bottom-upresponses.
Mediationapproachesmayalsobedeployedasatooltofacilitatedialoguebetweenaffectedgroups,andthiscouldinvolveimpactedcommunities,employees,enterprises,andpublicbodies,dependingontheparticularsituation.Considerationofthepotentialroleformediatoryprocesses,inwhichissuescanberaisedanddiscussed,willbetakenforwardaspartofourongoingimplementationoftheNDCA.
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6.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
10 EstablishaJustTransitionCommission
11 IntegratejusttransitionconsiderationsintosectoralpolicydevelopmentthroughtheClimateActionPlan
12 SupporttheprovisionofstrategicadviceandresearchonjusttransitioninIreland,includingfutureprioritiesandspatialandsectoralimpacts
13 DelivertheProgrammeforGovernmentcommitmenttodevelopaGreenFurtherEducationandSkillsDevelopmentPlan
14 Promotetheimplementationofthestudy“SkillsforZeroCarbon-TheDemandforRenewableEnergy,ResidentialRetrofitandElectricVehicleDeploymentSkillsto2030”
15 IncludeclimateactionandjusttransitionasthemesforstakeholderconsultationaspartoftherefreshofthenineRegionalEnterprisePlans
16 Promotetimelyandtailoredactivationandtrainingresponsesforworkerswhosejobsareatriskbythedecarbonisationprocess
17 Createadditionalcommunityworkplacesandsupportedworkplacesingreensectorsforpeoplewhoareeconomicallyinactive,long-termunemployed,and/orwithsevereneeds
18 InlinewiththeProgrammeforGovernment,ensurethattargetedsocialwelfaremeasuresareputinplacetopreventfuelpovertyandsupportajusttransition
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7. A Just Transition Implementation Plan for the Midlands Region
7.1 Peat in the Midlands RegionTheMidlandsregionisthefirstinIrelandtodirectlyexperiencethenegativeimpactsofthetransitionawayfromfossilfuelswiththeendingofpeatextractionforpowergeneration.PeatextractioninIrelandishighlyconcentratedintheMidlands(countiesLaois,Longford,Offaly,Westmeath),andextendsintoadjoiningcounties,includingKildare,Roscommon,EastGalway,andNorthTipperary.
Irelandhasextensivepeatresources,muchofwhichhasbeenmanagedforcommercial-scalepeatextractionoveranumberofdecadesbythesemi-statecompanyBordnaMóna.
ThelandundermanagementbyBordnaMónaextendstoabout80,000hectares,withover130individualbogsorganisedandmanagedbythecompanyasboggroups.Commerciallyextractedpeathasbeenusedasafeedstockforpowergeneration,fortheproductionofpeatbriquettesfordomesticheating,andasaninputforthehorticulturalindustry.
ThepeatindustryandrelatedpowergenerationhavebeenhugelysignificantfortheMidlandsregioneconomically,culturallyandsocially.BordnaMónaandtheESBhavebeenkeysourcesofemploymentwhilecontributingtomaintainingcommunitieswhichhavetraditionallybeeneconomicallydependentonagriculture,peatharvestingandtheenergyindustry.Bothcompanieshavehadastrongeconomicandsocialroleforseveraldecadesthroughtheprovisionofwell-paidemployment,housingforemployees,andsupportforlocalcommunities.
Attheendof2020,anumberofyearsearlierthanhadbeenplanned,twoofthethreepeat-firedpowerstationsoperatingintheMidlandsregion,ESB’sWestOffalyPowerStationinCountyOffalyandLoughReePowerStationinCountyLongford,ceasedoperations.Thesoleremainingpeatpowerstation,BordnaMóna'sEdenderryPowerStation,isscheduledtocontinuetooperateusingbiomassandpeatunderitscurrentconfigurationandplanningpermissionsuntil2023.
Theexitfrompeatfrompowergenerationwillbringclimate,biodiversityandeconomicbenefits.Atleast1.25milliontonnesofcarbonwillbesavedeachyear,andemissionswillreducebyupto9milliontonnesupto2027asaresultofpeatnolongerbeingcombustedinpowerstations.
Notwithstandingthesebenefits,theacceleratedclosureofthetwoESBpowerstationsandthedecisionofBordnaMónatoceaseallpeatharvestinghashadasignificantimpactontheregionaleconomy, aswellastheaffectedemployeesandcommunities,andhasrequiredtheregiontorapidlyrespondtoandputinplaceresourcestomanageatransitionwhichhadpreviouslybeenplannedtotakeanumber of years�
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A Just Transition Implementation Plan for the Midlands Region
7.2 Responding to the Transition Thegovernmenthasalreadycommittedsignificantresources,supportedbycarbontaxrevenues,tosupportingtheregionthroughthistransitionandwillcontinueitsprogrammeofinvestmentintheregionoverthecomingyears.ThisincludesthelargestprogrammeofbogrehabilitationintheState’shistorytoavalueofupto€108million,matchedwithacontributionof€18mfromBordnaMóna,aJustTransitionFundtoassistlocalcommunitiesandbusinessestoadjusttothelowcarbontransition,and€20millioninfundingtodelivertargetedsocialhousingupgradesintheregion.
Ourkeyfocushasbeentosupportthetransitionoftheexistingworkforcesandthecreationofnewenterpriseandemploymentopportunitiessothattheregionremainsvibrantandinnovative,andmakesthemostoftheopportunitiesthatdecarbonisationwillbring.
TheappointmentbythegovernmentofaJustTransitionCommissionerinlate2019,andhisextensiveengagementswithintheregion,hasinformedthegovernment’sapproachtodateandthisimplementationplanrespondsandbuildsontherecommendationsthathavebeenmadebytheCommissioner.OurapproachisalsoinlinewiththeprinciplesforajusttransitionsetoutinChapter6.
Otherregionsorsectorsarelikelybeaffectedbyfuturetransitionchallengesemanatingfromthemovetoacarbonneutraleconomy,andourapproachintheMidlandswillalsohelptoinformfuturejusttransitionresponses.
7.3 Measures to Deliver a Just Transition in the Midlands 7.3.1 The Just Transition Commissioner and Regional Coordination StructuresRecognisingthekeyroleofwidestakeholderengagementandsocialdialogueinthedesignofthetransitionprocess,aJustTransitionCommissionerwasappointedbythegovernmentinNovember2019.HismandatehasbeentoengagewiththoseaffectedbytheacceleratedexitfrompeatforelectricitygenerationintheMidlandsregionandrecommendtothegovernmenttheessentialelementsofajusttransitionforthoseworkersandcommunities.Theworkofthecommissionerwillcontinuetobesupportedbygovernmenttoensurethesuccessfulimplementationofjusttransitionmeasuresforthe remainder of the commissioner’s current mandate to the end of 2021�
AMidlandsRegionalTransitionTeam(MRTT)wasestablishedbytheMidlands’localauthoritiesinlate2018andhasworkedcloselywiththeJustTransitionCommissionertodevelopandcoordinateregionalandlocalstrategicpartnerships.Itsmandateistopursuefundingopportunitiestomitigatetheimpactofjoblossesonindividualsandtheregionaleconomy,developalternativeformsofemployment,attractinvestment,andmaximiseexistingemploymentopportunitiesandresources.TheMRTThasestablishedfourworkinggroupstofocusonspecificstrandsofactivitiescreatingviableenterpriseandemploymentopportunitiesandsustainingimpactedcommunitiesintheregion.
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7.3.2 Peatlands Restoration MeasuresReturningpeatlandstomorenaturalconditionswilldeliverarangeofclimatebenefitsthroughreducedcarbonemissions,long-termcarbonstorage,increasedcarbonsequestration,andenhancedresiliencetothelocked-inimpactsofclimatechange.TheimprovementstopeatlandswillenrichIreland’snaturalcapital,increaseecosystemservices,strengthenbiodiversity,andimprovewaterqualityandstorageattenuation,aswellasdevelopingamenitypotential.
Bord na Móna Peatlands Climate Action SchemeThegovernmenthasapprovedfundingofupto€108millionforBordnaMóna’slarge-scalepeatlandsrestorationproject.Thiswillinvolveawidearrayofengineeringandecologyworksdesignedtoencourageandacceleratenaturalprocessesand,oncerehabilitated,thepeatlandswillincludepeat-formingbogsandamosaicofwetlands,grasslandsandnativewoodlands.Thesemeasureswillprotectthestorageof100milliontonnesofcarbon,enhancebiodiversityandcontributetoIreland’stargetofbeingcarbon-neutralnolaterthan2050,whilesupportinglocalcommunitiesbydevelopingtheircapacitytorespondtochallengesfacedbytransitioningtoalow-carboneconomy.Throughtheimplementationofthescheme,itisalsoestimatedthatovertheperiodto2050,3.3milliontonnesofCO2emissionswillbeavoidedincomparisontostandardrehabilitationprocesses.
National Parks and Wildlife Service Peatlands Restoration Programme €19millionhasbeenallocatedin2020and2021tocommencerestorationmeasuresonalmost4,400hectaresofprotectedraisedbogsintheMidlandsregion,alongwithotherpeatlandmanagementandconservationmeasures.BordnaMónawasengagedtoprojectmanageandundertakerestorationworkswithintheprotectedraisedbognetwork,andlocalcontractorshavealsobeenappointedforsmallerscalerestorationprojects.
EU LIFE Peatlands and People Project Fundingofalmost€10millionisbeingprovidedundertheEULIFEProgrammeforaPeatlandsandPeopleIntegratedProject10,whichwillhighlightthepowerofpeatlandstoeffectsignificantclimatebenefit.Thissevenyearproject,beingcoordinatedbyBordnaMóna,isamajorinitiativewhichwillengagepeoplewiththebenefitsofpeatlandsrestoration.TheprojectwillworkwithpeatlandsinIreland'sMidlands,andthecommunitiesintheregion,todelivercapacityandsupportrelatedtoadecarbonisingeconomy.ItwillestablishaPeatlandsKnowledgeCentreofExcellencethatwillexploreandcarryoutbestpracticesinpeatlandrestorationandrehabilitation,anddesignmethodologiestomonitorandanalysecarbonfluxes.ItwillalsoestablishaJustTransitionAcceleratorProgrammethatwillfocusonlow-carbonandcirculareconomyopportunities,aswellasdevelopingplansforanimmersivePeople'sDiscoveryAttractiontointroducetheimportanceofclimateactionandpeatlandstocitizens.
10 (LIFE19IPC/IE/000007)Furtherdetailsoftheprojectcanbefoundhere:https://peatlandsandpeople.ie/
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7.3.3 Agricultural and Geological Research and Development Projects European Innovation Partnership ProjectsTheDepartmentofAgriculture,FoodandtheMarineisfundingEuropeanInnovationPartnership(EIP)projectsintheMidlands,includingforWetlandsSurveysIreland,GreenRestorationIreland,andtheDanúFarmingGroup.
• TheobjectivesoftheWetlandsSurveysIrelandMidlandsprojectaretodesignanddevelopapilot,results-basedagri-environmentalprogramme,withtheaimofimprovingtheenvironmentalqualityofagriculturallandssurroundingaselectionofraisedbogsinRoscommon,OffalyandWestmeath.Thisprojectincludesacentraleducationalandcommunityoutreachprogrammetoenhanceunderstandingofthetransitionrequiredtowardssustainableuseofthepeatlandresourceforthebenefitoflocalcommunitiesandtheenvironment
• TheGreenRestorationIrelandco-operativeprojectaimstodevelopclear,workableguidelinesforatransitionprogrammetocarbonfarming.Theproject’spracticalimplementationaspectwillengageacohortofpilot‘lighthousefarms’inLaois,OffalyandWestmeathas‘livinglaboratories’usingacitizen/farmer-sciencestrategy,supportedbytherelevantexpertise
• TheDanúFarmingGroupprojectinvolvessettingupcontrolandtrialplotsintheMidlandswiththeaimofdevelopingclear,workableguidelinesforatransitionprogrammetobiologicalfarmingbasedonasoundunderstandingofsoilstructure,chemistry,biology,andplantnutrition
Investigation and Evaluation of Potential Geological Resources in the Midlands GeologicalSurveyIrelandwillcarryoutarangeofinvestigationsandevaluatethegeologicalpotentialoftheMidlands,includingproducingamapandreportoutliningavailableresourcesandpotentialassociatedmanagementconsiderations.Itwillalsoevaluatethepossibilityforcommunitiesandlocaleconomiestouseresources,suchasgroundwaterorgeothermalenergy,aspartofthejusttransition,includingassessingthefeasibilityofsuchuse.
7.3.4 Midlands Retrofit Programme for Local Authority HomesTheMidlandsRetrofitProgrammeisagovernment-fundedprogrammetocompleteretrofittingworkstohomesownedbylocalauthorities.Fundingforthisprogrammehasbeenprovidedthroughcarbontaxrevenuesandwillprovideforenergyefficiencyrenovations,aimingtomakethesehomeswarmer,morecomfortable,andmoreefficienttoheat.HomeswillberetrofittedtoaBuildingEnergyRatingofB2,orthemostappropriatecost-optimallevel,andtheprogrammeintendstobenefitatleast750homesintheMidlands.Retrofittingworkstypicallyincludeinsulationofatticsandwalls;upgradingofwindowsanddoors;replacementofheatingsystems;andtheinstallationofLEDlighting.Retrofittingisparticularlybeneficialforthoseinlow-incomehouseholdswhooftenspendahigherproportionofincomeonfuelthantheaveragehouseholdand,forthisreason,hasbeentargetedatthesehouseholds.TheMidlandsRetrofitProgrammehasalsohelpedtoinformthedevelopmentofournewretrofitdeliveryframeworksetoutChapter14.
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7.3.5 Tailored Just Transition Fund Measures National Just Transition Fund ThegovernmentestablishedaJustTransitionFundin2020toprovidecompetitivefundingforproposalsfromtheMidlandsregiontosupportthetransitionawayfromemploymentinpeatharvestingintheaffectedcommunities,tonewareasofopportunity.Thefundwillsupportprojectsthatcontributetotheeconomic,socialandenvironmentalsustainabilityoftheregion,andwhichhaveemploymentandenterprisepotential.Projectshavebeenapprovedunderthefollowingcategories:
• Business development• Education,trainingandupskilling• Developmentofco-Workingandenterprisehubs• Renewableenergiesandretrofitting• Tourism,heritageandrestoration• Communitydevelopmentandcapacitybuilding• Greenwaysandwalking
Case Study: National Just Transition Fund ProjectsDeveloping a Green HQ in Offaly OffalyLocalDevelopmentCompanyhasbeenawardedagrantof€960,349tosetupaClimateActionandGreenEnterpriseCentreinCountyOffaly.Itinvolvestheconversionofanolddancehall–FiestaHall,Kilcormac–intoacentralisedheadquartersforclimateactionresearch,greenbusinessenterprisesandsustainabilitytrainingprogrammesforCountyOffaly.
Expanding a Green Energy Park in Offaly OffalyCountyCouncilwillcarryoutinfrastructureworkstocompletetheRhodeGreenEnergyParkatthesiteoftheformerRhodePowerStation,andwillalsocommissionafeasibilitystudytoexploretheintegrationofrenewableenergyandgreenhydrogenintheregionwithdatacentres,supportedbyagrantof€738,820.
A Midlands Retrofit One-Stop-Shop Not-for-profitSuperhomesIreland,willleadthisprojectacrossalleightcountiesofthewiderMidlandsregiontoprovideaone-stop-shopservicefordeepretrofits.Theprojectwillworkwith30contractorstoprovidearetrofittingservicetohomeownersintheregion,andwilldeliveraminimumof175deepretrofitsby2023,employingengineering,customerserviceandsalesstaffforanewMidlandsregionaloffice.Theyreceivedgrantfundingof€407,576.
New Digital Learning Hub in Longford Town LongfordWestmeathEducationandTrainingBoard(ETB)hasbeenawardedagrantof€1milliontodevelopafurthereducationandtrainingdigitallearninghubtobenefitindividualsandcommunitiesinLongford,WestmeathandRoscommon.AnoldmilitarybarracksontheETBcampuswillberestoredtohostanonlinetestcentre,andaudio-visualfacilitiesforupskillingandre-skillingprogrammes;andtodeliverpracticalworkshopson,forexample,energyconservation, construction,andhorticulture.
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EU Just Transition FundTheEUJustTransitionFundhasbeenestablishedaspartoftheEUGreenDeal,tosupportthemostaffectedregionsinEUmemberstatestomeetthechallengesassociatedwithachievingtheEU’sclimatetargetsfor2030andclimateneutralityby2050.Itwillinvestinareasthatwillcontributetoalleviatingtheimpactofthetransition,byfinancingthediversificationandmodernisationofthelocaleconomy,andbymitigatingthenegativerepercussionsonemploymentintheterritoriesmostimpactedbythetransitionawayfromfossilfueluse.Irelandhassecured€84.5million(incurrentprices)undertheEUJustTransitionFundforinvestmentsovertheperiod2021to2027.ThegovernmentwillshortlyfinaliseaTerritorialJustTransitionPlanwhichwillsetouttheproposedinvestmentsandtargetedsectorsandregionsunderthisFund.
7.3.6 Training, Education and Enterprise Supports
Regional Enterprise Plans 2021 - 2024ThepreparationofRegionalEnterprisePlansforthe2021-2024periodiscurrentlyunderway,ledbytheeightregionalenterprisecommittees,inabottom-up,collaborativeapproachinvolvingdevelopmentagencies,EnterpriseIrelandandIDAIreland,localenterpriseoffices,localauthorities,higherandfurthereducationbodies,andbusinesses.TheMidlandsRegionalEnterprisePlanwillhaveakeyfocusonsupportingajusttransitionintheMidlandsregion.
Reskilling and Training Opportunities Therehasbeensignificantinvestmentintheregiontoensurethataffectedworkersandthoselivingintheregioncanaccesstrainingcourseswhichopenupfutureemploymentopportunities,particularlyingreensectors.EducationandTrainingBoardshavebeencoordinatingeventsacrosstheimpactedcountiestoconnectwithaffectedemployeesthroughapprenticeships,traineeships,andprovidinginformationonfundedopportunities.Retrofittingcentresofexcellence,suchastheSOLASNZEBTrainingFacilityatMountLucas,providehighstandardsoftrainingandqualificationstopeopleattendingthem.
LaoisOffalyEducationandTrainingBoard(ETB)haspartneredwithBordnaMónatoprovideemployedtraineeshipsthatfocusonenhancedpeatlandrehabilitation.SkillnetIrelandhasinvestedtodeliveranumberofcoursestoupskillBordnaMónaworkers,includingprogrammessuchas:logisticalandtransportationoperators;micro-solarphotovoltaicsystems–QQILevel6;andmicro-generatorelectricalinstallations-QQILevel6.TheETBisalsorollingoutfurthertrainingprovisionforformerBordnaMónaemployeesduring2021,andisworkingwithlocalcommunitiestodevelopcommunity-basedinitiativestosupportformeremployeestocontributetotheircommunities,retainsocialsupports,andtransfertheirskillsetstofuturegenerations.
ThegovernmenthasgrantedtechnologicaluniversitystatustoAthloneandLimerickinstitutesoftechnology,andtheresultingnewTechnologicalUniversityoftheShannon:MidlandsMidwestwasformallyestablishedon1October2021.Thiswillincreasehighereducationaccess,driveenhancedregionaldevelopment,andincreaseopportunitiesforstudents,staff,businessandenterprise,andlocalcommunities.Thisnewunified,multi-campus,highereducationinstitutionwillserveanumber ofcountiesintheMidlandsandadjoiningregions,andwillactasanimportantcatalystforbalancedregionaldevelopment.
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Enterprise Hubs and Co-Working SpacesThemovetogreaterlevelsofremoteworkisaccelerating,andhaspotentialfortheMidlandsregionwhichexperiencedhighlevelsofoutwardcommutingtothegreaterDublinareapriortoCOVID-19.Increasingprovisionforpeopletoworkonapart/full-orflexi-timebasis,fromalocallybasedco-working/remoteworkinghub,andtraveltotheofficeifandwhenneeded,willretainvibrancyandeconomicactivitywithintheregionandmakeitmoreattractivetoenterprisesandemployers.PuttinginplacetheframeworkforremoteworkingsetoutinMaking Remote Work: National Remote Working Strategy,isakeyactionofOur Rural Future: Rural Development Policy 2021 – 2025,andisbeingfacilitated,interalia,throughtheprovisionofbroadbandconnectionpointsundertheNational Broadband Plan�
Tourism and Recreational OfferingsTourismand‘slowtourism’havebeenidentifiedaskeyareasofopportunityfortheMidlands.Localauthorities,FáilteIreland,WaterwaysIreland,Coillte,theESBandBordnaMónaareworkingtogethertoprogressthedevelopmentofanumberofimportanttourisminfrastructureopportunitiesincluding:theGalway-DublinCycleway;theMidlandsCyclingDestination;theSlieveBloomMountainBikeTrail;andtheShannonMasterPlan.Scopingworkwillalsobecarriedouttoexploretheeco-tourismpotentialforthepeatlands,includingforanetworkofpeatlandtrailsandalignedindustrialheritagestory�
Renewable Energy Infrastructure and Community Participation TherenewableenergypotentialoftheMidlandscouldbefurtherdevelopedusingexistinggrid-connectedinfrastructure,aswellasgreenfieldinvestmentopportunities.BothBordnaMónaand theESBhaveannouncedmajorinvestmentplansfortheregionduring2021,whichwillsupportcontinuedemploymentgrowthoverthecomingyears.Anumberofprivateenergycompaniesare alsoplanninginvestments.
Therewillalsobesupportforthedevelopmentofcommunity-basedenergymasterplanning,ledbytheSustainableEnergyAuthorityofIreland(SEAI).ThiswillprovideastrongplatformforcommunityparticipationinfuturecallsundertheRenewableElectricitySupportScheme.
TheSEAISustainableEnergyCommunitiesProgrammewillprovidesupporttoMidlands’communities,throughlocalmentorsandco-ordinators,toassistontheirdecarbonisationjourney.Thementorsprovidefreeguidanceonhowtoformasustainableenergycommunityanddevelopanenergymasterplan,includingestablishingabaselineforenergyusedinthecommunityandaregisterofopportunitiesforprojects.Bytheendof2024,itisestimatedthatinvestmentof€450,000willhavesupportedthedevelopmentof30energymasterplansintheMidlandsregion.
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7.4 Actions
Thedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
19 SupporttheworkoftheJustTransitionCommissionerintheMidlandsregionforthesuccessfulimplementationofjusttransitionmeasures
20 DevelopandcoordinateregionalandlocalstrategicpartnershipsintheMidlandsregiontoaddressthespecificchallengesposedbythetransitiontoalow-carboneconomy
21 DelivertheNPWSPeatlandsRestorationProgrammefortheraisedboghabitatwithintheSpecialAreaofConservationandNaturalHeritageAreanetworks
22 DelivertheEULIFEPeatlandsandPeopleProject
23 DelivertheEuropeanInnovationPartnershipprojectsintheMidlands
24 SupportfeasibilitystudiesonbiomassandanaerobicdigestionintheMidlandsthroughtheJustTransitionFund
25 InvestigateandevaluatepotentialgeologicalresourcesintheMidlandstoprovidesupportinginformationforjusttransitionandclimatemitigationplanning
26 SupportdeliveryofprojectsundertheJustTransitionFund
27 DeveloptheEUJustTransitionFundwithafocusonthemostimpactedterritoriesintheMidlandsregion
28 SupportenterprisedevelopmentintheMidlandsregion,centredontheroleofthenewRegionalEnterprisePlansto2024
29 EnhancedeliveryoffurtherandhighereducationintheMidlandsregiontoequippeopleforfutureemploymentopportunitiesingreengrowthsectors
30 Developandexpandenterprisehubsandremoteworkinghubinfrastructureintheregion
31 Examineopportunitiestofurtherdeveloptourism,outdoorandrecreationamenities/facilitiesfortheMidlandsregion
32 DevelopthepotentialforrenewableenergyhubsintheMidlandsthroughexistingandplannedinvestmentsbyStateOwnedEntitiesandsupportfromJustTransitionFund
33 DelivertheEnhancedDecommissioning,RehabilitationandRestorationSchemeforBordnaMónapeatlands
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8. Citizen Engagement
8.1 State of PlayScientificresearchisunequivocalinitsviewthatclimatechangeistheresultofhumanactivity;thattheimpactsofclimatechangewillbeprofound;buttheseimpactswillnotbefeltequallybyeveryoneinsociety.Tominimisetheimpactsofclimatechangeweneedtolimitglobalwarmingto1.5°to2°Cabovepre-industriallevelsasreflectedintheParisAgreement.Toachievethisrequiresasignificantandimmediatereductioninourcarbonemissions.
InDecember2019,theEuropeanGreenDeal11waspublishedwhichaimstotransformtheEUintoamodern,resource-efficient,andcompetitiveeconomywithnetzeroemissionsofgreenhousegasesby2050.InApril2021,theEuropeanClimateLaw12turnedthispoliticalcommitmentintoalegalobligation.Thisistobesupported,inpart,throughtheEuropeanClimatePact13,whichisanEU-wideinitiativeinvitingpeople,communitiesandorganisationstoparticipateinclimateactionbysharingknowledgeandimplementingsolutions.
TheProgrammeforGovernmentcommitstoa51%reductionincarbonemissionsby2030withanobjectivetoachieveaclimate-neutraleconomynolaterthan2050.ThesecommitmentsarenowreflectedintheClimateActionandLowCarbonDevelopment(Amendment)Act2021.
Thetransitiontoclimate-neutralitywillrequirechangesacrossoursocietyandeconomy,includinginthebuiltenvironment,energy,transport,waste,andagriculture.Thiswillrequireacollaborativeeffortbygovernment,business,communities,andindividualstoimplementnewandambitiouspolicies,technologicalinnovations,systemsandinfrastructures.Thiswillalsorequirechangesinindividualbehaviours,includinghowwework,heatourhomes,travel,consumegoodsandservices,andmanageourwaste.Deliveringonthisambitionistheresponsibilityofeveryoneinsociety.
In2021,aspartoftheNationalDialogueforClimateAction(NDCA),aseriesofin-depthclimateconversationstookplacewhichcapturedtheviewsofover3,800people,includinginputsfromover200individuals,16publicparticipationnetworks(PPNs),100youngpeoplefrom12ComhairlenanÓggroups,and70peoplefrom12yearsofageandupwards.Theseconversationsgavevoicetoapublicwhoareresponsivetothiscrisisandfeelasenseofurgencyaroundclimateaction.Itdemonstratedanenthusiasmtoworkwiththegovernment,agencies,andorganisationsacrosssocietytodeliveronmoreambitioustargets.Itidentifiedareaswherepeoplearealreadymakingchangesandwhereindividualsandcommunitiesfeeltheylackinformation,knowledgeandresources,orthecapacitytopursuethesechanges.Inparticular,manyexpressedtheviewthatthereisaneedforinnovationinfinance(e.g.removingbureaucracy,providinglow-costfinanceoptions),andaneedtoenhancethecapacityoflocalauthoritiesandthecommunitysector,inordertomeetourambitions.
Ourexperiencetodateshowsthat,aswemoveforward,weneedsystematicandactiveengagementwithstakeholdersandthepublicacrossIrelandatlocalandnationallevel.TheNDCAwillbetheprimaryvehiclethroughwhichthiswillbedelivered.
11 https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal_en12 https://ec.europa.eu/clima/policies/eu-climate-action/law_en13 https://ec.europa.eu/clima/policies/eu-climate-action/pact_en
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8.2 TargetsFollowingonfromthesuccessfulpilotingoftheNDCAbetween2017and2019,andinformedbytheoutputsfromthepublicconsultationfortheClimateActionPlan,anewstructurefortheNDCAhas been devised�
TheNDCAwillbeledbytheDepartmentoftheEnvironment,ClimateandCommunications(DECC)withasecretariatprovidedbytheEnvironmentalProtectionAgency(EPA).TheNDCAwillbecoordinatedthroughanInterdepartmentalWorkingGrouponCitizenEngagementandDialoguewhichwillincludegovernmentaldepartmentsandagencieswhoareactivelyinvolvedindeliveringonclimateactiongoalsacrosskeysectors.
ThevisionoftheNDCAistoempowereveryoneinsocietytohelpdeliveronourgoalofreducingIreland’scarbonemissionsandtoactivelyparticipateinthetransitiontowardsaclimateneutraleconomy by 2050�
ThepurposeoftheNDCAistocreateacomprehensivestructuretosupportwidespreadpublicandstakeholderengagementonclimatechange,empowerpeopleacrossallofsocietytoadoptmoresustainablebehaviours,andbeavehicletofacilitatepublicparticipationintheClimateActionPlan.
ThevisionandpurposeoftheNDCAwillberealisedthroughthreekeyobjectives:
1� Improvingclimateliteracybycreatingawarenessabout,andpromotingunderstandingof, climatechange.
2� Funding,supporting,andenablingactiveengagementinclimateactionatalocalandnationallevel,conductingpublicconsultations,andpromotingself-efficacybyempoweringthepublictoadoptmore sustainable behaviours�
3� CapturinginsightsfromengagementactivitiesandconductingsocialandbehaviouralresearchtomeasurebehaviouralchangeandprovideanevidencebasetoinformtheClimateActionPlanandsectoral climate policies�
Thevision,purposeandobjectivesabovewillbedeliveredthroughasystematicandcyclicalprocessthatwillrun,onanannualbasis,inparallelwiththeannualreviewoftheClimateActionPlanasillustratedbelow(Figure8.1).Thisapproachwillensurethatactivitiesfrominputstooutputsarelinked,andtheimpactsoftheseactivitiesaremeasuredasoutcomes.
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Figure 8.1: NDCA Work Programme Annual Cycle
Inadoptingthisapproach,theNDCAwillhaveastrongfocusonmeasuresthatleadtopublic,sectoralandregionalinvolvementindeliveringactionswhichenablelong-termbehaviouralchange.Thiswillsupportthosewhoarealreadyactive,empowerthosenotengagedtogetinvolved,andsupportthosewhoarelikelytobemostaffectedbyclimatechange.
Aspartoftheannualimplementationofitsworkprogramme,theNDCAwillalsomonitorprogressonthedeliveryofoutputsandwillcarryoutanannualevaluationoftheprogrammetoensurethatbestpracticeisbeingappliedandobjectivesarebeingmet.
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Figure 8.1: NDCA Work Programme Annual Cycle
In adopting this approach, the NDCA will have a strong focus on measures that lead to public, sectoral and regional involvement in delivering actions which enable long-term behavioural change. This will support those who are already active, empower those not engaged to get involved, and support those who are likely to be most affected by climate change.
As part of the annual implementation of its work programme, the NDCA will also monitor progress on the delivery of outputs and will carry out an annual evaluation of the programme to ensure that best practice is being applied and objectives are being met.
8.3 Measures to Deliver Targets
8.3.1 Climate Literacy Climate literacy involves empowering people to understand sometimes complex information about the climate. Improvements in climate literacy can best be achieved through the promotion of evidence-based communications and through the national education system. Improving climate literacy will enhance our capacity to make small changes in our daily lives, to engage with climate action at a local level, and to participate at national level in the co-design of policy.
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8.3 Measures to Deliver Targets
8.3.1 Climate Literacy Climateliteracyinvolvesempoweringpeopletounderstandsometimescomplexinformationabouttheclimate.Improvementsinclimateliteracycanbestbeachievedthroughthepromotionofevidence-basedcommunicationsandthroughthenationaleducationsystem.Improvingclimateliteracywillenhanceourcapacitytomakesmallchangesinourdailylives,toengagewithclimateactionatalocallevel,andtoparticipateatnationallevelintheco-designofpolicy.
Evidence-based Communications TheNDCAwillsupportthedeliveryofanevidence-basewhichwillunderpincommunicationson climateaction,buildingoninsightsgainedfromourengagementwithpeopleandfromsocialandbehaviouralresearch.Ouraimwillbetocommunicateandengageinactivitiesinaclear,consistent and accessible manner�
EducationTheNDCAwillworktosupportthedevelopmentanddeliveryofeducationmoduleswhichbuildclimateliteracyintothenationaleducationsystematprimaryandsecondarylevels,andinadulteducationprogrammeswithourpartnersintheDepartmentofEducationandSkills,DepartmentofFurtherandHigherEducation,Research,InnovationandScienceandtheDepartmentofChildren,Equality,Disability,IntegrationandYouth(DCEDIY).
8.3.2 Engagement and EmpowermentThemajorityoftheNDCAworkprogrammewillinvolvethedesignanddeliveryofactivitiestohelppeopleandstakeholderstakeanactiveroleindeliveringonclimateaction.Thisincludesprovidingfundingforinnovativeprojectsandideas,organisingandhostingevents,promotingnetworkingandcapacitybuilding,andempoweringpeopletomakechangesintheirdailylives.Theseactivitieswillberuninparallelatnationalandlocallevel.
National Activities AtnationalleveltheNDCAwillfacilitate,support,andcoordinateaseriesofclimateconversations,anationalstakeholderforum,ayouthclimateassembly,anopenpublicconsultation,andwillhostaseriesofconferencesandlectures.Thepurposeofthesenationalleveldialoguesistoallowabroadrangeofstakeholdersandthepublictocommunicatewitheachotherandwithpolicymakers.EachoftheseactionswillrunatleastonceayearaspartofourprogrammetoprovideinputintotheannualClimateActionPlan.
• National Climate Stakeholder Forum ANationalClimateStakeholderForum(NCSF)willbeestablishedbyDECCtofunctionasaconsultativeforumonclimateissues,withadministrativesupportbeingprovidedbytheEPA.Theparticipantswillincludeabroadrangeofstakeholdersfromacrosssocietyincludingelectedpoliticians;governmentdepartmentsandlocalauthorities;stateagenciesandnationalorganisations;academics;representativebodies;community,localandvoluntarygroups;andrepresentativesofstakeholdersandcommunitiesmostatriskfromtheimpactsofclimatechangeorthetransitiontoacarbonneutralsociety.TheNCSFwillbeestablishedandruninamannersimilartotheNationalEconomicDialogueandwillmeetatleasttwiceayear.ItwillinformstakeholdersofthelatestscientificandpolicydevelopmentsandwillactasacoremechanismtofacilitateinputsintotheClimateActionPlanandsectoralpoliciesrelatingtoclimatechange.
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• Youth Climate Assembly AYouthClimateAssembly(YCA)willbeestablishedbyDCEDIYtofunctionasaconsultativeforumonclimateissues.Theassemblywillincludechildrenandyoungpeoplebetweentheagesof12and24andwillfacilitateinputsfromyoungpeopletotheClimateActionPlan.DECCwillbethepolicyleadformattersbroughtbeforetheYCA.ThiswillincludedeterminingpolicyprioritiesemergingfromtheClimateActionPlan,fromresearch,fromyoungpeople,andissuesofimportancetootherdepartmentsandagencieswishingtoconsulttheAssembly.TheYCAwillalsoberepresented ontheNCSF.
• Climate Conversations: Public Consultation on Climate Action TheNDCAwillco-designandrunanannualpublicconsultationontheClimateActionPlan.ThiswillbuildonthesuccessoftheClimateConversationsheldin2021andwillbeinlinewiththeprovisionsoftheClimateActionandLowCarbonDevelopment(Amendment)Act2021.Itwillallowfortheexplorationofnewpolicypriorities,emergentsectoralchallenges,andexamineinsightsfromengagementactivities,fundedprojects,andresearch.
• EPA National Dialogue – Climate Conference, Climate Lecture Series and Support Workshops TheEPAwillhostaseriesofannualengagementevents,includinganannualclimateconference,climatelectureseriesandworkshopsonengagementandparticipationwithpractitioners,academicsandtheClimateActionRegionalOffices(CAROs).Thiswillprovideanopportunityfortheresearchandacademiccommunity,andforlocalorganisationstosharefindingsfrominnovationsandresearch,todebatetheapproachestaken,andtoexaminetheirscalability.ItwillalsofacilitatecommunicationanddebateonthefindingsoftheEPA’sbehaviouralresearchprogramme.
Local and Community ActivitiesCentraltothedeliveryoftheClimateActionPlanisempoweringlocalcommunitiestoaddressthechallengestheyfaceintransitioningtoacarbonneutrality.TheNDCAwillprovidefinancialsupportforlocalinnovations,hostclimateconversationsallowinglocalactorstoshareideas,supportnetworkingandcapacitybuilding,andhostanannuallocalclimateactionconference.
• Financial Supports TheCommunityClimateActionProgrammeundertheClimateActionFund(CAF)willuseoutputsfromthepublicconsultations,research,andotherengagementactivitiestoensurethatthereisalignmentbetweenlocalactivationmeasuresandavailablefunding.TheaimofthecommunitycallundertheCAFistoengageandempowercommunitiestoshapeandbuildlowcarbon,sustainablecommunities. Twostrandsareproposedtoprogressthis:
• Strand1–BuildingLowCarbonCommunities• Strand2–Education,CapacityBuildingandLearningbyDoing
UnderStrand2,theCreativeIrelandProgramme,incollaborationwithDECC,isprovidingaCreativeFundthatwilldeliver,throughculturalandcreativeprojects,individualandcommunityawarenessoftheneedforclimate-relatedbehaviouralchange.TheprojectsfundedundertheCAFwillprovideinsight,innovativeideas,andscalablesolutionstothechallengesofclimatechange.TheNDCAwillensurethatinnovationsemergingintheseprojectswillberecordedandtheirscalabilityinotherareasexamined.
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• Climate Conversations: Local Climate Conversations TheNDCAwillorganiseaseriesofClimateConversationsonanannualbasisdesignedtoinformpeopleaboutwhatactionsarebeingundertakenbygovernmentandlocalactorsinrelationtoclimatechange,andtheactionsandsolutionstheycanundertaketoovercomeclimate-relatedchallenges.TheseconversationswilltaketheformofdiscussionandworkshopsledbytheNDCAatthenationallevel,andsupportedbythelocalauthorities,CAROs,DCEDIYandtheDepartmentofRuralandCommunityDevelopment.TheywillalsoengageexistingstructuresandnetworkssuchasthePPNsandComhairlenanÓg.
• Network and Capacity Building between OrganisationsTheNDCAwillsupportexistingnetworksandorganisationstohelpempowercommunitiestoexplorenewinitiatives,expandexistingactivities,andencouragewiderparticipationinexistingactions.Theseinclude:
• CAROsandlocalauthoritieswhoseclimateworkprogrammesalreadyincludecommunicationsandoutreachonclimateawarenessandengagement
• AnTaiscethroughtheirGreenSchools,GreenFlagscampaigns,YoungReporterfortheEnvironment,andClimateAmbassadorsProgramme
• TidyTowns• CommunitynetworksincludinglocalgroupssuchastheGaelicAthleticAssociation,IrishCountrywomen’sAssociation,religiousgroups,aswellasindustryspecificinitiativessuchasSmartFarmingandsmallandmedium-sizedenterprisesupports
• Voluntaryorganisations,non-governmentalorganisations,otherlocalorganisations, and individuals�
Areviewofdigitalassetsthatsupportstakeholderandpublicengagementwillalsobepartofourengagementactivities.
• National Climate Conversation on Local ActionsTheoutputsoflocalengagementactivitiesandtheclimateconversationswillbeanalysedandinformtheprogrammefortheNationalClimateConversationonLocalActions(NCCLA).TheNCCLAwillbeaforumtoallowcommunitiesandorganisationstoshowcaseprojects,engageinpracticaldiscussions,sharebestpractice,andexplorethescalabilityoflocalactivityorindividualinnovations.Thiseventwillbeheldannuallyandtaketheformofworkshopshostedinvariouslocationsaroundthecountry.Thiswillservetocriticallyreflectonactivities,buildcapacity,examinebestpracticeanditsscalability,informpolicy,andprovideinsightswhichwillfeedintotheannualClimateActionPlanandtheNDCAworkprogrammecycle.
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8.3.3 Research and Evidence ThedeliveryoftheobjectivesoftheNDCAwillbemeasuredthroughqualitativeandquantitativeresearch.TheNDCAworkprogrammeannualcyclewillbeimplementedinamannerthatfacilitatestheanalysisofinsightsgainedfromresearchandfromengagementactivity.TheseinsightswillconstituteanevidencebasetoinformtheNDCA,sectoralplans,andtheClimateActionPlan.Tofacilitatethis,abehaviouralstudywillbecarriedeverytwoyears,togetherwithad-hocqualitativeresearch.AnationalclimatechangebehaviouralinsightsandimplementationunitwillbeestablishedintheEPA,andanationalsocialandbehaviouraladvisorygrouponclimateactionwillalsobeestablished.
Behavioural Survey Thisstudy,tobeundertakenbytheNationalClimateChangeBehaviouralInsightsandImplementationUnit,willproducenationallyrepresentativedataandallowfortheexaminationofchallengestorealisingbehaviouralchangeacrossdifferentdemographicsinsocietyandindifferentsectoralareas.Itwill bebasedontheYaleUniversitySixAmericasstudy,tailoredforanIrishcontext.Itisenvisagedthat thestudywillactasabenchmarkandruneverytwoyearstoallowmeasurementofbehavioural changeovertime.
Ad-hoc Qualitative and Behavioural Studies Aseriesofad-hocresearchstudies,undertakenbyDECCandtheEPAwillexaminespecificissuesandaugmentthefindingsofthebehaviouralsurvey.Thiswillincludeaseriesofqualitativestudies,includingin-depthinterviewsorfocusgroupswithabroadrangeofstakeholdersandthepublic.Thesestudieswillfurtherhelpidentifychallengesspecifictoindividualsectorsstakeholdersandsuggestpracticalsolutionsinawaythatsupportsajusttransition.
Synthesising Outputs, Measuring Outcomes, Informing Policy, and Providing Sectoral Support. TheNDCAwillworkwiththeNationalClimateChangeBehaviouralInsightsandImplementationUnittoestablishthenationalsocialandbehaviouraladvisorygrouponclimateaction,madeupofleadingnationalandinternationalsocialandbehaviouralscientistsactiveinclimateresearch,tooverseethesynthesis of the outputs of these research studies and broader research in the area� The outputs of thesestudiesandsynthesisreportswillbepresentedtorelevantgovernmentdepartments,agencies,andstakeholders,andpublishedinanannualreport.
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8.4 ActionsTheNDCAwillbethekeymechanismthroughwhichclimateactionsrelatedtopublicengagement,participation,communityaction,networkingandcapacitybuildingisdeliveredinIreland.Itwillfunctionasthecoordinatingstructurefacilitatingbroadpublicandstakeholderdialogueacrosssociety.Itwillgiveeveryoneinsocietytheopportunitytofullyengageindeliveringonclimateactioninafair,just,andequitablemanner.TheNDCAwillalsoactasanationalvehicletocoordinatesocialandbehaviouralresearchonclimateaction.Insightsgainedfromengagement,consultationsandtheresearchprogrammewillbeconsolidatedandsharedwithgovernment,statebodiesandthepublic.
Thedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
34 AdvancecoordinatedclimateactioncommunicationsfromthecentreofGovernment
35 Providesupportforthedevelopmentofrelevantmediacontent,includingintheindependentproductionsector
36 BuildClimateLiteracythroughprimary,secondarycurriculum,andadulteducation
37 Support,throughtheeducationsystem,therequiredinitiativestosupportthedevelopment of a climate neutral economy
38 Undertakestakeholderengagementonafollow-onNationalStrategyonEducationforSustainableDevelopment(ESD)to2030
39 DelivertheNationalClimateChangeActionandAwarenessProgrammetosupporttheinternationalFoundationforEnvironmentalEducationprogrammesthroughGreen-Schools,Green-CampusandYoungReportersfortheEnvironment
40 Supportinitiativesandactivitiesthatdeliverpracticalandinnovativesolutionstoaddressclimatechangeatthelocallevel
41 BuildanewnationalandlocalcitizenengagementmodelthroughtheNationalDialogueonClimateAction
42 DesignandconductannualClimateConversationsandPublicConsultationontheClimateActionPlan
43 ContinuetosupportthedeliveryofprojectsapprovedforfundingaspartofthefirstroundofsupportfromtheClimateActionFund
44 Supporttheprovisionoftrainingandcapacitybuildinginrelationtoclimatechangetocommunitydevelopmentandlocaldevelopmentorganisations
45 Implementanenhancedapproachtoenergyperformanceandrenewableenergycapabilityinschoolbuildings
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Action Number Action
46 EmploythelatestresearchtoprovideanevidencebasetosupportworkoftheNDCA,communicationsandtheInterdepartmentalWorkingGroup,drivesectoraldemandshiftsandbehaviouralchange,andprovideinputintopolicy
47 Establishanevidencebasedandtimeboundroadmapforembeddinginnovative,effectiveandsustainablemodelsoflocalengagementwithnationalpolicy-makingprocessesacrossthepublicservicetofacilitatetheco-creationofsustainablesolutions
48 DesignandimplementarobustprojectmanagementsystemtomonitorNDCAprogress
49 ProvidefundingtotheBroadcastingAuthorityofIrelandforaroundoftheSoundandVisionSchemeinQ22022withthecorethemeofClimateChangeandClimateAction
50 Promotesustainabledestinationmanagement
51 Furtherdevelopandembedacomprehensivewell-beingframeworkforIreland,withastrongfocusonsustainability
52 ProgresstheestablishmentofaCitizens’AssemblyonBiodiversity
53 SupportingClimateandBiodiversityprogressthroughrelevantstrategicadvicetoenhanceevidence-baseddecision-making
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Public Sector Leading by Example 9
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The Climate Action and Low Carbon Development (Amendment) Act 2021 now gives legal underpinning to climate action by the public sector. It requires all public bodies to perform their functions in a manner consistent with our climate ambition.
Local authorities, in particular, have a pivotal role to play in the decarbonisation transition, including through spatial planning, the provision of public housing and transport infrastructure, and the maintenance of biodiversity. Under the act, each must now prepare their own Climate Action Plan. These plans are to cover both mitigation and adaptation, and must be updated at least once every five years.
Table 9.2 – Trends in Public Sector Buildings GHG Emissions
Timeframe Percentage Change Absolute Change, CO2 eq.
2005-11 -12.4% -0.1 Mt
2011-18 12.9% 0.1 Mt
While emissions by public sector buildings showed modest improvement in the period to 2011, that pattern has not continued and emissions have risen over the period to 2018.
9.2 Targets
To meet the required level of emissions reduction, by 2030 we will:
• Reduce CO2eq. from the sector by 51% • Increase the improvement in energy efficiency in the public sector from the 33% target
in 2020 to 50% by 2030
Public Sector Leading by Example 9
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9. Public Sector Leading by Example
9.1 State of PlayThepublicsectorwillleadbyexample,inspiringthenecessaryclimateactioninwidersocietytoreduceIreland’sgreenhousegas(GHG)emissionsby51%by2030,andtobecomeclimateneutralnolaterthan2050.Itcandothisinmanyways.Forinstance,asalargepurchaserofgoodsandservices,thepublicsectorcaninfluencesuppliersintoofferinggreenerproductsthroughitsprocurementpractices.
Publicsectorbuildingsaccountedfor1.4%ofIreland’sGHGemissionsin2018.Addinginthesector’selectricityandtransportuse,aswellasemissionsfromcommercialsemi-statebodies,emissionsin2018amountedto3.3%ofIreland’sGHGs.Althoughthesector’sshareofemissionsisrelativelysmall,itwillplayabroaderleadershiproleasacatalystforambitiousclimateaction.
Table 9.1 – Public Sector Buildings GHG Emissions, 201814
Public Sector Buildings Emissions CO2eq.
Share of Total GHG Emissions Public Services Emissions CO2eq. per person
0.9Mt 1.4% 0�2 t Thegovernment-fundedPublicSectorEnergyEfficiencyProgramme,administeredbytheSustainableEnergyAuthorityofIreland(SEAI),supportedpublicbodiesachievinga29%improvementinenergyefficiencyperformancebytheendof2019(againsta2020targetof33%).Underthisprogramme,allpublicsectorbodiesarerequiredtosubmittheirannualenergyconsumptiondatasoastotracktheprogressofthesector.
Figure 9.1
TheClimateActionandLowCarbonDevelopment(Amendment)Act2021nowgiveslegalunderpinningtoclimateactionbythepublicsector.Itrequiresallpublicbodiestoperformtheirfunctionsinamannerconsistentwithourclimateambition.
Localauthorities,inparticular,haveapivotalroletoplayinthedecarbonisationtransition,includingthroughspatialplanning,theprovisionofpublichousingandtransportinfrastructure,andthemaintenanceofbiodiversity.Undertheact,eachmustnowpreparetheirownClimateActionPlan.Theseplansaretocoverbothmitigationandadaptation,andmustbeupdatedatleastonceeveryfiveyears�
14 SEAIPublicSectorAnnualReport–2017,2018,2019
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Table 9.2 – Trends in Public Sector Buildings GHG Emissions
Timeframe Percentage Change Absolute Change, CO2 eq.2005-11 -12.4% -0.1Mt2011-18 12.9% 0.1Mt
Whileemissionsbypublicsectorbuildingsshowedmodestimprovementintheperiodto2011,thatpatternhasnotcontinuedandemissionshaverisenovertheperiodto2018.
9.2 Targets
To meet the required level of emissions reduction, by 2030 we will:• ReduceCO2eq.fromthesectorby51%
• Increasetheimprovementinenergyefficiencyinthepublicsectorfromthe33%targetin 2020to50%by2030
• Mandatepublicsectoremployers,colleges,andotherpublicsectorbodiestomoveto20% homeandremoteworking
• IntroduceaSustainableMobilityPolicyinthepublicsector
• Replaceallbuseswithelectricvehiclesnationallyby2035
• Triplethelengthofelectrifiedrailonthenetworkby2030
9.3 Measures to Deliver Targets
9.3.1 Public Sector Target SettingInordertoachievea51%reductioninGHGsfromthepublicsectorby2030:
• Anoverallsectoraltargetforschoolsof51%willapply• Eachotherpublicsectorbodywillbeassignedanindividualtargettomeetinaccordancewiththemethodologyformeasuring,accounting,reportingandrecordingsetoutbelow.
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Box 9.1 – Setting Public Sector Decarbonisation Targets
Nature of Target EmissionreductiontargetswillbebasedonanabsolutetonnageofGHGemissions.Thetotaltonnagetargetwillbea51%reductionofdirectenergy-relatedemissions(thermalandtransportconsumption),plusprojectedsupplysidereductionsinindirectenergy-relatedemissions(i.e.electricity–asaresultoftheachievementoftheupto80%renewableelectricitytarget). Thebaselineforthemethodologyistheperiod2016-18,withascalingfactorappliedtoensure theindividualtargetsequalthetotalambition.
Application Thedefinitionofpublicsectorbodyforthepurposeoftrackingemissionsisbasedonthatusedin S.I. No. 426/2014 – European Union (Energy Efficiency) Regulations 2014. This means that all public bodiesthatreportundertheEnergyEfficiencyMonitoringandReporting(M&R)Systemwillbeassignedanemissionsreductiontarget.
Scope of Emissions Thetablebelowsetsoutstheemissionswithinthescopeofthetarget,andthesemustbereportedannuallyviatheM&Rsystem.
Allowed Savings Thetargetwillbeachievedthroughenergyefficiencymeasures,electrification,andtheuseofon-siterenewables(e.g.rooftopsolarpanels,andgeothermalheatsources).Emissionsreductionsfrompurchasingenergyfroma“green”energysupplier,orthroughtheuseofoffsets,cannotbeusedtomeetapublicsectorbody’starget.
Growth If an increase in a public sector body’s emissions can be demonstrated to lead to an overall net economy-wideemissionsreduction,andis‘additional’(e.g.expandingthepublictransportfleetremovesprivatevehicles),an‘emissionscredit’canapply.Tocountthiscredittowardsemissionsreductions,approvalfortheassociatedemissionsimpactshouldbesoughtandgranted,inadvanceoftheworkscommencingorinvestmentbeingmade.
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Governance TheSEAIwillsupportthecaptureofdatausingitsM&Rsystem,andprovideguidanceandsupporttopublicsectorbodiesinreducingtheiremissionsfromenergyuse.Eachpublicsectorbodywillberequired to:
• Individuallyreportontheirprogresstowardsanabsolutetonnagetarget
• Bepartofasectoralgroup,whichincludesagivengovernmentdepartmentandallpublicbodiesundertheiraegis.Eachpublicsectorbodywillbeassignedtothesamesectoralgroupastheyareinforenergyefficiencytargetmeasurement.Thekeyprogressindicatorforthepublicsectortomeetitstargetwillbethesectoralgroups
Reporting ThecurrentAnnualReportonPublicSectorEnergyPerformancewillbewidenedtoincludethepublicsectordecarbonisationtarget.TheSEAIandtheEnvironmentalProtectionAgency(EPA)willcollaborateontheelementsofthisreportrelatedtothepublicsectordecarbonisationtarget,whichwillbecombinedwithenergyefficiencyperformanceinasingle‘AnnualPublicSectorEnergyPerformanceandGreenhouseGasEmissionsReport’.
• TheSEAIandtheEPAwillcollaborateinsupportingpublicsectorbodiesinrelationtotargets,includingpublishingguidelinesandestablishinganewPublicSectorMonitoringandReportingSystem
• Areviewwillbeundertakentoassessthepotentialtowidenthescopeoftheemissionscapturedinthepublicsectortarget,toincludeScope3emissions15
9.3.2 Climate Action Mandate Tosupportpublicsectorbodiesleadingbyexample,aClimateActionMandatewillapplytoallbodiescoveredbythedecarbonisationtargets,withtheexceptionoflocalauthoritiesandcommercialsemi-statebodies(wheresector-specificmandateshavealreadybeendeveloped),andtheschoolsector(forwhichaclimateactionmandatespecifictotheparticularcircumstancesinschoolswillbepublishedin2022).BoththeClimateActionMandate,andtheSchoolSectorClimateActionMandate,willbereviewedannually.
15 Scope1coversdirectemissionsfromownedorcontrolledsources.Scope2coversindirectemissionsfromthegenerationofpurchasedelectricity,steam,heatingandcoolingconsumedbythereportingbody.Scope3includesallotherindirectemissionsthat occur in a body’s value chain
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Box 9.2 – Climate Action Mandate
Our Targets• ReduceGHGemissionsby51%in2030
• Increasetheimprovementinenergyefficiencyinthepublicsectorfromthe33%target in2020to50%by2030
• PutinplaceaClimateActionRoadmapbytheendof2022
Our People• EstablishandresourceGreenTeams,reportingtoseniormanagement,tobecomeintegrated
drivers of sustainability in every public sector body
• NominateamemberoftheManagementBoardastheClimateandSustainabilityChampionwithresponsibilityforimplementingandreportingonthemandate
• Incorporateappropriateclimateactionandsustainabilitytraining(technicalandbehavioural)intolearninganddevelopmentstrategiesforstaff
• Organisestaffworkshops(atleastannually)toengageonclimateissues,includingafocusondecreasingtheorganisation’scarbonfootprint
Our Way of Working • ReportGHGemissionsandsustainabilityactivitiesintheannualreport
• Reviewanypaper-basedprocesses,andevaluatethepossibilitiesfordigitisationsoitbecomesthe default approach
• Achieveformalenvironmentalaccreditationforlargepublicsectorbodies,suchasISO50001(EnergyManagementStandard)orISO14001(EnvironmentalManagementSystem),withaviewtoachievingEMASISO14001(EcoManagementandAuditScheme)
Our Buildings and Vehicles • Createbicyclefriendlybuildingsforemployeesandvisitors,byputtingbicycleparkinginplaceby2022–whichissecure,accessible,andsimpleforcycliststorecogniseanduse
• Displayanup-to-dateDisplayEnergyCertificateineverypublicbuildingthatisopentothepublictoclearlyshowenergyuse
• Thepublicsectorwillnotinstallheatingsystemsthatusefossilfuelsafter2023,unlessatleastoneofthefollowingexceptionsapplies:
• thefossil-fueluseisonlythroughtheuseofelectricityfromthegrid
• thereisnotechnicallyviablenon-fossilalternative(generallyonlyrelatedtoapplications forapurposeotherthanspaceheating)
• theinstallationofarenewablespaceheatingsystemwouldincreasefinalCO2 emissions
• thefossil-fueluseisprovidedforbackup,peaking,oroperationalpurposes(andmakesuplessthan10%ofannualheatingenergy)
• wherethedirectreplacementofexistingfossilfuelheatingisrequiredforanemergencymaintenance purpose
• Purchaseonlyzero-emissionvehicleswhereavailableandoperationallyfeasiblefromendof2022,enablingIrelandtogobeyondtherequirementsoftheCleanVehicleDirectiveandactasaninternationalleaderinthisarea
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• TheleaddepartmentofeachsectoralgroupwilladvisetherelevantpublicsectorbodiesoftherequirementsoftheClimateActionMandate
• ThenewPublicSectorMonitoringandReportingSystem,forenergyefficiencyanddecarbonisationtargets,willalsobedevelopedtotrackimplementationoftheClimateActionMandate
9.3.3 Public Sector Bodies Climate Action Roadmaps Publicsectorbodiesvarybysize,role,activitylocation,andmanyotherfactors.EachbodywilldevelopaClimateActionRoadmapsettingouthowitwilldeliveronitsenergyefficiencyandGHGemissionsreductiontargets.Whilelargepublicbodieswillrequirebespokeplans,smallerpublicbodiescanuseamoregenerictemplate.Largepublicbodiesinclude:governmentdepartments(smallerdepartmentsmaybeaggregatedasstrategicallyappropriate);organisationsthatconsumeover50GWhofenergyperannum;andhomogenoussectorssuchaseducationandhealth.Theselargepublicbodies,togetherwiththe31localauthorities,coverapproximately90%ofpublicsectoremissions.
• WewillprepareanewPublicSectorEnergyEfficiencyandDecarbonisationStrategy• PublicsectorbodieswillcompleteClimateActionRoadmapsbytheendof2022,andthesewillbemonitoredatsectoralgrouplevel.TheleadbodyofthesectoralgroupwillberesponsibleforensuringthattheroadmapsareinlinewiththeClimateActionMandate
• TheSEAIandtheEPAwillcollaboratetopublishguidanceforpreparingClimateActionRoadmaps,includingprovidingforbespokeroadmapsforlargepublicbodies,andstandardisedplansforsmallerones.UseoftheSEAI‘GaptoTarget’toolwillalloworganisationstounderstandthestepsandinvestmentsrequiredtomeettheirtargets
9.3.4 Local Authorities TheClimateActionRegionalOfficeswillcontinuetoplayacentralroleinsupportingandcoordinatingclimateactionbylocalauthoritiesincluding:developingcapacitythroughtraining;supportingbehaviouralchangeinitiatives;identifyingandsourcingfundingopportunities;andmeasuringandrecordingperformance.
• EachlocalauthoritywillprepareaClimateActionPlanatleastonceeveryfiveyears,containingbothmitigationandadaptationmeasures
• Eachlocalauthoritywilldevelopadecarbonisationzonewithinitsadministrativeareathatwillbecomethefocusforarangeofclimatemitigation,adaptationandbiodiversitymeasures.Thisprocesswillincludetheidentificationofprojectsandtheirassociatedoutcomesthatwillcontributetoachievingournationalclimatetargets
9.3.5 Commercial Semi-state CompaniesTheNewEconomyandRecoveryAuthority(NewERA)hasdesignedaClimateActionFrameworkforcommercialsemi-statebodies,reflectingtheexemplarroletheyaretoplayindecarbonisation,whilealsorecognisingtheneedforcommercialindependenceintheirrespectiveoperatingenvironments.Ministerswillcommunicatetheirexpectationsonclimateactiontothesebodiesthroughtheshareholderexpectationletter.
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Box 9.3 - Climate Action Framework for Commercial Semi-state Bodies
Thisframeworkcontainsaseriesoffivecommitmentsbycompaniesinrelationtotheirclimate actionobjectives.Byadopting,theframeworkeachcompanywillbeenteringintoeachofthesecommitmentsasfollows:
Governance of Climate Action Objectives • Thecompany’sclimateactionobjectiveswillbeintegratedintostrategicbusinessplanningandtherewillbeoversightatBoardlevel,includingreportingtotherelevantminister
Reduction Target and Emissions Measurement• Thecompanywillformallyadoptthegovernment’semissionreductiontargetforthepublicsectorandtheSEAImeasurementmethodology
Measuring and Valuing Emissions in Investment Appraisals • Thevalueofemissionswillbeconsideredbythecompanyaspartofitsinvestmentdecision-makingprocess
Circular Economy and Green Procurement• Thecompanywillpromotecirculareconomymeasuresandgreenprocurement
Climate-Related Disclosures in Financial • Thecompanywillidentifyaclimate-relatedfinancialdisclosuresframeworkthatisrelevantandappropriatetothecompany’sactivitiesandsector(s)
Thisframeworkwillbesubjecttoperiodicreview.
9.3.6 Retrofitting and Improving the Energy Efficiency of Public Sector BuildingsThereareabout12,500(ofwhich20%areleased)publicsectorbuildings,accountingforapproximatelyhalfofthesector’soverallGHGemissions.Inordertoachievethe51%emissionsreductionand50%energyefficiencytargets,buildingswillneedtoundergodeepretrofit.Publicbodies’ClimateActionRoadmapswilltargetanatleasta50%overallcontributionfromrenewablespaceheating(heatpumps,biomass,anddistrictheating)by2030.ThetargetcontributionfortheschoolsectorwillbeconfirmedaspartoftheSchoolSectorClimateActionRoadmap.
• AnewPublicSectorEnergyEfficiencyandDecarbonisationProgrammewilladdressallmajorbuildingportfoliosinthesector
• InitialscalingsupportfundingforpublicsectorenergyefficiencyanddecarbonisationwillbeprovidedunderthePublicSectorPathfinderProgramme,withmajorinvestmentstobefundedfromwithinbodies’owncapitalallocationsundertheNationalDevelopmentPlancombinedwithinnovativeprojectdeliverymechanisms,suchasEnergyPerformanceContracts(EPCs),whichwillbedevelopedwithamoreflexibleapproachtotheiruse
• WewillpublishupdatedguidanceforbodiesontheuseofEPCsforenergyefficiencyanddecarbonisationprojects,includinginrelationtovalueformoneyassessmentandoffbalance sheet treatment
• WewilldevelopanEPCdeliveryvehicleforupto€1billionofprivately-fundedEPCsin publicbuildings
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• AtargetedreviewofPublicPrivatePartnerships(PPPs)willbeundertaken.ThisworkwillbeprogressedwiththeexistingPPPsteeringgroupwithaseriesofrecommendationstobe finalisedshortly
• Wewillacceleratetheremovalofobstaclestothewideradoptionofrenewablespaceheating,anddistrictheating,innewandretrofittedpublicbuildings,proactivelyaddressingtechnicalandregulatorybarriers.ThiswillincludeconsiderationoftheoutcomeoftheOfficeofPublicWorksstudyexaminingwhenandhowfossil-fuelheatingsystemscouldbephased-outofpublicbuildings,andelectricitysectorenablerstosupportwiderscaledeployment
• TheSEAIwillassistinsupportingpublicsectorretrofittingthroughthedisseminationofbestpracticeguidance/lessonslearned,andthetrackingofprogress
9.3.7 Decarbonisation of Public Sector Transport Emissionsfromtransportaccountforabout30%ofthepublicsector’soverallGHGemissions,thesecondlargestportionafterbuildings.Increaseduseofelectricvehicles(EVs)bythepublicsectorwillhelptodemonstratetheirvaluetowidersociety,improveurbanairquality,andreducenoisepollution,supportingsustainableurbancommunitiesinlinewiththeNationalPlanningFramework.
• WewillensurethatpublicsectorfleetsusethePublicProcurementFrameworkforEVs,whereappropriate
• Wewilltransitionpublicbusfleetstozeroemissionsmodelsthoughtherenewalandexpansionofthefleet,allowingforthefullelectrificationofdouble-deckerbusesinDublin,Cork,Waterford,LimerickandGalwayby2035
• Wewilltransitiontherailfleettowardsanelectricmodel,increasingthelengthofelectrifiedrailnetworkfrom50kilometresto150kilometresby2030,includingtheDART+projectwhichwillextendDARTservicestoDroghedainthenorth;Maynoothinthewest;Hazelhatchinthesouthwest;andGreystonesinthesoutheast
• Wewillacceleratetheremovalofobstaclestodecarbonisationofourtransportfleet,proactivelyaddressingtechnicalandregulatorybarriers
9.3.8 The Capacity of the Public Sector to Deliver Climate ActionItisessentialthatthepublicservicehasthecapacitytodeliverambitiousclimateaction.WehavealreadyestablishedaClimateActionDeliveryBoardatsecretary-generallevel,aswellasClimateActionUnitswithineverygovernmentdepartment.
• Wewillreviewthecapacity,skillsandstructureswithinthepublicsectortotacklethechallengesemergingduetoclimatechange
• TheSEAIandEPAwillcollaboratetodeviseasingleprogrammetosupportdecarbonisation,andenergyandresourceefficiency,withinthepublicsector
• Wewillreviewtheskillsrequirementsforcivilservantsandprovidenewtrainingopportunitiestocloseanyemergingskillsgaps
• Wewillputinplaceacommunicationsframeworkonclimateactionacrossallgovernmentdepartments
9.3.9 Greener Public ProcurementTheProgrammeforGovernmentcommitstodevelopingandimplementingasustainablepublicprocurementpolicy,toensurethatwhatarewebuyingandbuildingisconsistentwithourclimateambition.
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• TheOfficeofGovernmentProcurementwillupdateallprocurementframeworks,inlinewithgreenprocurementpracticeby2023
• Wewillreviewfoodprocurementpoliciesforthepublicsector,withtheaimofintroducingprocurementofnutritious,locally-sourcedfood
• Wewillmandatethepurchaseofzero-emissionelectricvehicleswhereavailableandoperationallyfeasible by end of 2022
9.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
54 Developastrategytoachieveatleasta51%reductioninGHGemissionsanda50%improvementinpublicsectorenergyefficiencyby2030
55 ExpandthesuccessfulpublicsectorenergyefficiencymonitoringandreportingprogrammetoincorporateGHGemissionsreduction
56 IntroduceaClimateActionMandateforeverypublicbody
57 StrengthensupportstoenableClimateandSustainabilityChampionstodeliveronpublicsectortargets
58 Supporttheretrofitofpublicsectorbuildings
59 Mandatetheinclusionofgreencriteriainallprocurementsusingpublicfunds,introducingrequirementsonaphasedbasisandprovidingappropriatesupportto procurers
60 DevisearevisedmileageratestructurethatreflectschangingdrivingpatternsincludingincreaseduseofEVsandhybrids
61 EnhancecommunicationsonClimateAgendainschoolssectorwithaparticularfocusonpilotdeepenergyretrofitprojectsdeliveredunderPathfinderProgrammeinpartnershipwithSEAI
62 Setatrajectoryforcommencingandimplementingadeepenergyretrofitprogrammeforeducationsectors
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Carbon Pricing and Cross-cutting Policies 10
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10. Carbon Pricing and Cross-cutting Policies
10.1 IntroductionWhiletheevaluationofadoptingdifferenttechnologieshasdeliveredapathwaytoachievinga51%reductioningreenhousegas(GHG)emissionsby2030,thesuccessfuldeploymentofthesetechnologieswillrequirespecificpoliciestoremovebarriersatsectorallevelandabroadnationalpolicyframeworkdesignedtopromotethetransition.Governmentpoliciesontaxation,expenditure,sustainablefinance,spatialplanning,andresearchanddevelopmentprovideanimportantenablingframeworkforindividual,household,community,andcompany-levelclimateaction.Thesepoliciesalsoactasenablersforawiderangeofothergovernmentpoliciesandactivitieswithinindividualsectors.
10.2 Targets
To meet the required level of emissions reduction, by 2030 we will:• Implementsuccessivecarbontaxincreasesaslegislatedforinthe2020FinanceAct
• Continuetoexamineenvironmentaltaxationmeasuresacrossthetaxationsystem
• Mobilisepublicandprivateinvestmentforclimateaction
• Promotethedevelopmentofasustainableandclimateresilientfinancialsystem
• FullyimplementtheNationalPlanningFramework
• Implementdecarbonisingzonesineachlocalauthority
• IncreasethenumberofSustainableEnergyCommunitiesto1,500by2030
• Supportresearch,developmentandinnovationinclimateaction
• Promotethedigitaltransformation,sustainableremoteworkingpracticesandtheroll-outoftheNationalBroadbandPlan
10.3 Measures to Deliver Targets
10.3.1 Environmental Taxation and Carbon Pricing TaxationpolicycanplayacentralroleinincentivisingthebehaviouralchangenecessarytoreduceourGHGemissionsandtosupportadditionalenvironmentalbenefits.Wearecommittedtohavinginplaceataxationframework,whichplaysitsfullpartinincentivising,alongwithotheravailablepolicylevers,thenecessaryactionstoreduceouremissions.TherearealreadyanumberofenvironmentallyprogressiveelementstoIreland’staxationregime:
• Acarbontax,inplacesince2010,isabroadly-basedsystem,applyingtocarbondioxideemissions intheheatandtransportsectors,withlegislationinplacetoincreasetheannualrateuntilatleast2030aswellasoffsettheimpactonthemostvulnerablethroughring-fencedfundingforsocialwelfaremeasures
• AgenerousregimeoftaxationincentivestopromotetheuptakeofElectricVehicles(EVs),includingsubstantialVehicleRegistrationTax(VRT)reliefandBenefit-in-Kind(BIK)exemptions
• ACO2emissions-basedVRTandmotortaxregimeforprivatemotorcarsthatimposesahighertaxliabilityonvehicleswithhigheremissions
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Wearecommittedtoannuallyreviewingandreformingkeyenvironmentaltaxmeasuresincluding:
• Examiningtheintroductionofanemissions-basedtaxregimeforlightgoodsvehicles• ExamininggraduallyphasingoutVATrebatesoncommercialfuelusewhereelectricalternatives
exist• Examiningthegradualequalisationofthedieselandpetrolexciserates• IntroducingenvironmentalcriteriaintothevehicleBIKregime,withitscommencementsensitivetotypicalfleetrenewaltimescales
• Supportingtheuseoftheacceleratedcapitalallowanceregimetopromotebusinessinvestmentinenergyefficientequipmentandgas-poweredcommercialvehicles.Theseregimeswillbereviewedinadvanceoftheirrespectivesunsetclauses
• Assessingtherolefortaxationmeasuresinmeetingbuildingretrofittargetssetoutinthisplan
AllEUmemberstatesimplementcarbonpricingthroughtheEUEmissionsTradingSystem(ETS)andIrelandisalsooneofelevenmemberstatestohaveeconomy-widepricingthroughtheETSandaseparatedomesticcarbontaxappliedtosectorsnotincludedintheETS.AspartoftheEU’s‘Fitfor55’legislativepackage,theEuropeanCommissionhasproposedfurtherrevisionstotheEUETS;changestotheEnergyTaxationDirectivetoalignthetaxationofenergyproductswithEUenergyandclimatepoliciesandtopromotecleantechnologies;andanewcarbonborderadjustmentmechanismthatwouldplaceacarbonpriceonimportsofcertaingoodsfromoutsidetheEU,inordertoencourageEUpartnerstoraisetheirclimateambitionandreducetheriskofcarbonleakage.
Our Commitment on Carbon Taxation WehavelegislatedforincreasingtherateofcarbontaxthatappliesinIrelandonaphasedbasisto€100pertonneby2030andtoring-fencingalladditionalrevenuesformeasuresthatsupporttheachievementofourclimateactionobjectives.Theplannedcarbontaxincreasesareexpectedtoraiseanadditional€9.5billioninrevenueoverthatperiod.Thisrevenuewillbeallocatedtoprogrammessuchasenergyefficientretrofits(€5billion);addressingfuelpovertyandprovidingforajusttransition(€3billion);andthepromotionofsustainableagriculturepractices(€1.5billion).
Carbontaxrevenueof€412millionhasbeenallocatedtotheprogrammesbelowfor2022:
• €174millionontargetedsocialwelfareandotherinitiativestopreventfuelpovertyandensure ajusttransition
• €202milliontopartfundanationalretrofittingprogrammetargetingallhomes,butwithaparticularemphasisonhouseholdsinoratriskofenergypoverty
• €36milliontoothersectorstosupportprogrammessuchaspeatlandsrehabilitationandtheMidlandsJustTransitionFund
Shadow Price of Carbon ThePublicSpendingCodeisthetoolthatthegovernmentusestoevaluatetheconsequencesofthecapitalinvestmentdecisionsitfaces.Everypublicinvestmentprojectwithavalueabove€20millionmustconductafullanalysisonallthepotentialcostsandbenefitsassociatedwiththatproject,usingrulessetbytheDepartmentofPublicExpenditureandReform(DPER).
In2019,thegovernmenttripledthepriceofcarbonthatisappliedinthecode.Thisupdatewasbasedontheestimatedcostsassociatedwithachievinga30%reductioningreenhousegasemissionsby2030.Sincethen,thegovernment’sclimateambitionshavebeenconsiderablystrengthened.NowIrelandintendstocutGHGemissionsby51%by2030andtoreachaclimateneutraleconomyno
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laterthan2050,withanyremainingemissionsbalancedbytheremovalofGHGemissionsfromtheatmosphere.ThismeansthatthePublicSpendingCodemustbeupdatedtoreflectthisenhancedambition.
ThegovernmentwillimplementaprogrammeofrevisionsthePublicSpendingCodetoensurethatitiscompatiblewithIreland’senhancedclimateambition,includingincreasingthecostassociatedwithanyreleaseofadditionalGHGsintotheatmosphere.
ThiswillincludeworkwiththeOrganisationforEconomicCo-operationandDevelopment(OECD),fundedbytheEUCommissionthroughDGREFORM’sTechnicalSupportInstrument,onprogressinganewmodelforassessingtheemissionsimpactofinfrastructureinvestment.Thisistoensurethatthefullrangeofpotentialconsequencesforthistypeofinvestmentarecapturedandvaluedappropriately.Secondly,ourworkwiththeOECDwillexaminehowgovernmentshouldconsiderandappraiseinvestmentsthatmaybevulnerabletotheimpactsofclimatechange.
OverthelongertermwewillalsoexaminetherolethatthePublicSpendingCodecanplayintheachievementofbroaderenvironmentalobjectives.
10.3.2 Mobilisation Investment for Climate Action National Development Plan 2021-2030TherevisedNationalDevelopmentPlan(NDP),publishedinOctober2021,setsoutaten-yearcapitalexpenditureframeworkthatwillsupportourtransitiontoalow-carbonsocietyovertheperiodto2030.TherevisedNDPincorporatesaninvestmentpackageof€165billionacrossallsectorsoftheeconomy.Theinvestmentitwillsupportisnecessarytomeetourclimateambition,inareassuchasrenewableelectricitygeneration,retrofitandpublictransport.TherevisedNDPwasalsoinformed,forthefirsttime,byaclimateandenvironmentalassessmentoftheimpactthateachproposedmeasurewaslikelytohaveonsevenspecificclimateandenvironmentaloutcomes:
• Climatemitigation• Climateadaptation• Water quality• Air quality• Waste and the circular economy• Nature and biodiversity• Justtransition
Theapproachtothisassessmentwillberefinedfurther,basedoninternationalbestpractice,andsupplementsappraisalandevaluationunderthePublicSpendingCode.
Project Ireland 2040 Funds ThefourProjectIreland2040funds,comprisingtheClimateActionFund;DisruptiveTechnologiesInnovationFund;theUrbanRegenerationandDevelopmentFund;andtheRuralRegenerationandDevelopmentFund,willhaveacollectivebudgetamountingtoanestimated€4billionto2027.Eachofthefourfundswillcontinuetopromoteinvestmentsforclimateactionwithinthescopeof their mandates�
TheClimateActionFundwillcontinuetofundinitiativesthatcontributetotheachievementofIreland’sclimateandenergytargetsinacost-effectivemanner.Itoffersthepotentialforinnovativeinterventions
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inthesesectorswhich,intheabsenceofsupportfromthefund,wouldnototherwisebedeveloped.Sevenprojectsspanningtheelectricity,heat,transport,andagriculturesectors,withbothanurbanandruralfocus,havebeenapprovedforfundingofupto€77millionunderthefirstcallfromthisfund.Byrequiringaminimumcontributionfromeachproject,thefund’scommitmentwillleverageatotalinvestmentofover€300million.Thegovernmentwillshortlylaunchanewcallforproposalsunder theClimateActionFund.
Green Budgeting Greenbudgetingistheuseofthebudgetarysystemitselftopromoteandachieveimprovedenvironmentaloutcomes.Itisanexplicitrecognitionthatthebudgetaryprocessisnotaneutralprocessbutreflectslongstandingsocietalchoicesabouthowresourcesaredeployed.Thisprocessbuildsontheimplementationofgenderandequalitybudgeting,whichisalreadyatanadvancedstageinIrelandandthedevelopmentofwellbeingbudgeting,ascommittedtointheProgrammeforGovernment.Irelandcommittedtotheimplantationofaseriesofprogressivegreenbudgetingreformsin2018andjoinedtheParisCollaborativeongreenbudgetingshortlythereafter.
WhilespecificreformswouldbeguidedbytheinternationalbestpracticeemergingfromgroupssuchastheOECD-ledParisCollaborativeonGreenBudgetingandtheCoalitionofFinanceMinistersforClimateAction,wewillalsobeguidedinthedevelopmentofourmethodologicalapproach,bytwokeyprinciples:
Transparency • Reportingongreenexpenditureshasbeenprogressedthroughtheinclusionofmaterialinbudgetarydocumentation.Inparticular,theannualRevisedEstimatesforthePublicServicesprovidesdetailedprogramme-by-programmeallocationsonexpenditurethatthegovernmenthasdeemedtobe“green”.Wewillcontinuetorefineourmethodology,informedbyinternationalexperience,fordefiningclimaterelatedexpenditures.
• Wewillalsodevelopandapplydefinitionstoidentifyandtrackgovernmentspendingthatmaybehavinganegativeimpactonclimateandenvironmentaloutcomes.Assessingspendingthatmaybehavinganegativeimpactonclimateandenvironmentaloutcomeswillbeinformedbytheex-postassessmentoffossilfuelandsimilarsubsidesconductedbytheCentralStatisticsOfficeandinternationalbestpractice.Wewillalsopublishsupportinginformationonmethodologiesused to arrive at our assessments�
Effectiveness • Wewillcontinueourin-depthex-postexaminationsofindividualprogrammesthroughtheIrishGovernmentEconomicEvaluationService’sspendingreviewprogramme.Reportsalreadypublishedincludeexaminationsoftheeffectivenessofgovernmentincentivesforelectricvehicletake-up,grantschemesforenergyefficiencyandthebeefdatagenomicsprogramme.
• Wewillalsodevelopcomplementaryhigh-levelmetricsontheperformanceofindividualclimateandenvironmentalprogrammes,includingthosefundedbythecarbontax,infuturePerformanceBudgetReports.Thismeansthatspendinglevelswillbetrackedviabudgetarydocumentationandtherevisedestimatesvolumebuttheperformanceinformation,whichcaninformconclusionsontheeffectivenessofgovernmentclimateandenvironmentalexpenditure,willbecontainedinadedicatedsectioninfutureiterationsofthisreport.DPERisworkingwithalldepartments responsible for climate and environmental related expenditures to develop impact metricsthataremeaningfulandrelevanttogaugingtheperformanceoftheseprogrammes.Wewillbeguidedinthisareabyemerginginternationalbestpracticeongreenbudgetingandworktodateongeneralperformancebudgeting.
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Green BondsIn2018,theNationalTreasuryManagementAgency(NTMA)issuedIreland’sfirstSovereignGreenBondof€3billiontoprovideanewfundingchannelforgreenprojectsaimedatmitigatingclimatechange.ThesewereissuedusingGreenBondPrinciplesdevelopedbytheInternationalCapitalMarketAssociation,andtheNTMAreportsstrongdemandfortheissuancessincethisinitialbond,withadditionalauctionsbringingthetotalraisedtoover€6billion.TheNTMAwillcontinuetosupportthegovernment’sclimateagendathroughengagementwiththesovereigngreenbondmarket.
Mobilising Private Sector Investment Thelow-carbontransitionwillrequiresignificantprivateinvestmentalongsideExchequerexpenditureonasustainedbasisoveranumberofdecades.Thisinvestmentwillcoverarangeofactivities:
• Developingdisruptiveinnovations• Expandingnewtypesofinfrastructure,includingforcleansourcesofenergy• Adaptingexistinginfrastructures,suchasretrofittingexistinghomesandofficestomakethemmoreenergyefficient
InordertomeetIreland’sclimateandenergytargetsfor2030,itisnecessarytodirectprivatesectorinvestmentstowardsmeetingthetargetsandobjectivesofthisClimateActionPlan.Thisinvestmentwillneedtobefinanced.Wearetakingtheleadindevelopinginnovativeapproachestofinancingourdecarbonisationobjectivesandarecommitted,forexample,torollingoutaresidentialloanguaranteescheme.Tomeetthescaleofthischallenge,thefinancialsectorwillalsoneedtobringinnovativesolutionstothemarket.
Throughthecommercialstatesectorandotherpublicbodies,wewillseektoleveragethesignificantvolumesofprivatesectorcapitalthatisavailableforwell-structuredprojects,includingwindandsolarelectricitygeneration,interconnectionandmajortransportinfrastructure.
TheNewEconomyandRecoveryAuthoritywillcontinuetoworkwiththecommercialstatecompanies,theIrelandStrategicInvestmentFund,theStrategicBankingCorporationofIreland,andotherpublicbodies,toidentifypriorityopportunitiesinkeysectorstomobiliseprivateinvestmenttowardsassistinginmeetingourclimateobjectives.
Promoting a Sustainable Financial System Financialinstitutions,whentheyarefundingtheacquisitionofassets,mustpayfargreaterattentiontotheclimateresilienceofassetswheretheyrisklockingintohigh-carbontechnologies,orotherclimatevulnerabilities,andinturn,showagreaterwillingnesstofundinvestmentinchangeswhichcanmakethose assets more climate resilient�
Forlargefirms,theproposednewCorporateSustainabilityReportingDirectiveandtheSustainableFinanceDisclosuresRegulation,whichisinforceasof2021,willimposenewdisclosureobligationsonfinancialproductsellers/advisors,andrequirethatinformationonfinancialproducts’sustainabilityrisksand adverse impacts on sustainability is made available to investors�
Tosupportthefinancialsystemindirectingessentialinvestmentsintoclimateaction,theEUhasdevelopedanewtaxonomytoscaleupsustainableinvestment,tobothunderpintheambitions
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oftheEuropeanGreenDealandtosupporttheachievementofthememberstates’ownclimateactionobjectives.Byprovidingaconsistentclassificationframeworktocompanies,investorsandpolicymakers,throughwhicheconomicactivitiescanbeconsideredenvironmentallysustainable,theEUtaxonomywillprovidegreatercertaintyforinvestors,protectprivateinvestorsfromgreenwashing,helpcompaniestoplanforthedecarbonisationtransition,reducemarketfragmentation,andeventuallyhelpshiftinvestmentswheretheyaremostneeded.Thetaxonomywillcomeintoforceduring2022and2023�
WewillmaintainandgrowourexistingInternationalFinancialServices(IFS)sectorbyexploitingopportunitiesandmeetinganyemergingchallengesinthissector.WehavepublishedanewIFSstrategy,IrelandforFinance,whichincludesthedevelopmentofIreland’ssustainablefinancesectorasakeyhorizontalpriority.SustainableFinanceIreland,apublic-privateinitiative,haspublishedIreland’sSustainableFinanceRoadmap.TheroadmapsetsouttargetedmeasuresthatwillresultinIrelandbeingaleadingsustainablefinancecentreby2025.
TheCentralBankofIrelandworkscloselywithEuropeanSupervisoryAuthoritiesandasamemberoftheNetworkforGreeningtheFinancialSystem,todevelopsupervisionofclimaterisksandtomobilisecapitalforgreenandlow-carboninvestments.TheCentralBankisalsodirectlyengagingwithfinancialserviceproviders,withclimateandenvironmentalrisksbeingassessedforbanksandinsurers,aswellasinvestmentfirmsandintermediaries.
AtEU-level,theEuropeanCommissionhaspublishedarenewedEUStrategyforSustainableFinancetobuildonprogresstodateintermsofboostinginvestments,managingrisks,andembeddingalong-termperspective.Itisalsotargetingtheinclusionofsocialandgovernanceobjectivesinthetaxonomy.
10.3.3 Spatial and Planning Policy UndertheNationalPlanningFramework,Ireland’sfivecitiesaretargetedfor50%ofoverallgrowthby2040,withthefourcitiesofCork,Limerick,GalwayandWaterfordeachtargetedtogrowbyatleast50%withinthatperiod.Thiswillmeanensuringmorecompactformsofgrowthinthedevelopmentofsettlementsofallsizes,withafocusonurbaninfillandthere-useofbrownfieldlands.‘Brownfield’sitesaretodeliveratleast40%ofallnewhomesnationallywithinthebuilt-upfootprintofexistingsettlements,comprisedofatleast50%ofallnewhomesinthefivecities,andatleast30%ofallnewhomesinsettlementselsewhere.
Betterspatialplanningwillreducethecarbonemissionsofnewdevelopments,anddeliverabetterqualityoflife,includingshortercommutetimes,betterconnectionsbetweenourplacesofworkandhomes,andmorevibrant,people-focusedenvironments.Changingthepatternofdevelopmentwillbebuttressedbynewpolicytoolsintheplanningsystem,includingthoseplannedaspartofthegovernment’sHousingforAllstrategy.Implementationoftheapproachsetoutinourplanningandhousingpolicieswillsupportourclimateambitionthrough:
• Reducedtraveldistancesbetweenhome,workandservices,whichwillenableagreaterproportion ofjourneysbybicycleoronfoot(zeroemissions)
• Greaterurbandensitywillensuremoreviablepublictransportleadingtoreducedtransportemissions• Higherdensityresidentialdevelopment,whichtendstocomprisesmallerunitsand,therefore,requirelessenergytoheat–NPFtargetsrequiretheproportionofapartmentstotreble,from13%in2019,to39%by2030
• Closerproximityofmulti-storeyandterracedbuildings,whichwillrequirelessenergyandmakerenewables-basedsystemsofenergydistribution,suchasdistrictheating,orarea-widetechnologyupgrades,morefeasible
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ThenextCensusofPopulation,duetotakeplacein2022,willprovideimportantinsightsinrespectofthecurrentspatialdistributionofthepopulation,includinginformationoncommutingpatternsandtransportmodeshare.Integratedmeasurestoinfluencethespatialpatternofdevelopment,urbanstructureandmobilitywillhaveapositiveimpactoncommutingandsustainablemodeshare.
TheestablishmentoftheLandDevelopmentAgencyandtheOfficeofthePlanningRegulatorhasprovidedadditionalstructurestodelivercompact,lowcarbonandsustainabledevelopment.
TheLandDevelopmentAgency,establishedin2020,hasaparticularfocusonco-ordinatingtheprovisionoflandwithinstatecontrolforhousinganditsfunctionsinclude:
• Enablingthesustainabledevelopmentofnewandregeneratedcommunities,wellservedby essentialservices
• Developingsustainablecommunitieswithaparticularfocusonenhancingthestockofclimateresistant,lowcarbonandaffordablehousing
TheOfficeofthePlanningRegulatorhasarangeoffunctions,includingindependentassessmentofalllocalauthorityandregionalassemblyforwardplanning,includingzoningdecisions.
10.3.4 Action at Community LevelLocalcommunitiesneedtobeempoweredtoaddressthechallengesthattheyfaceintransitioningtoacarbonneutraleconomyandsociety.TheNationalDialogueonClimateAction(NDCA)willbethekeymechanismforpublicengagement,participation,communityaction,networking,andcapacitybuilding,givingeveryonetheopportunitytofullyengageconstructivelyinclimateaction.TheNDCAwillhostClimateConversationsallowinglocalactorsshareideasforconcreteclimateaction,culminatinginanannualLocalClimateActionconference.
FollowingonfromtherecentClimateConversations,anewCommunityClimateActionProgrammewillbefundedfromtheClimateActionFundtosupportactionbycommunities.Theprogrammeisdesignedtosupportandempowercommunitiestoshapeandbuildlow-carbon,sustainablecommunities,includingusingnature-basedsolutions,inacoherentwaytocontributetoournationalclimateandenergytargets.Inadditiontoprovidingfundingopportunitiesforrelevantcommunityprojectsandinitiatives,thisprogrammealsoaimstobuildcapacitytoactwithincommunities,aimedatfacilitatingandencouragingenduringbehaviouralchangeandvoluntaryaction.Localauthoritieswillplayakeyroleindevelopingpartnershipswithlocalcommunitiesandcommunitydevelopmentorganisationstoprogresscommunityactivationandclimateaction.
InitiativessuchasSustainableEnergyCommunities;RenewableEnergyCommunities;EnergyCooperatives;andtheRenewableElectricitySupportSchemewillprovideenablingframeworksforcommunityparticipationinrenewableandlowcarbonenergyprojects.ThenationwidenetworkofSustainableEnergyCommunities,underpinnedbygovernmentgrantassistanceandSEAImentors,hasbeenamajordriverofengaginglocalactorstoworktogethertopromotedecarbonisation.Thesecommunitieshavebeenabletoundertakeambitiouschangesacrossmultiplelocations,oftenincooperationwithenergyproviders.
Wewillcontinuetoscale-upandimprovetheSustainableEnergyCommunitiesprogrammeandseektoenlistawiderrangeoforganisations,includingworkingwithlocalauthorities,toanchorthecollectiveapproachoftheprogrammewithinlocalcommunities.Thiswillbedonethroughdevelopingnewpartners,creatingmorevisibilitywithincommunities,andintroducingnewsupportmechanisms.SustainableEnergyCommunitieswillbesupportedas‘activators’intheircommunityandbringtogetherhomesforretrofittingunderanewCommunityLocalEnergyActionFund.
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TheLocalAuthorityClimateActionTrainingProgramme,fundedbygovernment,supportsbuildingclimateactionleadershipcapacitywithinlocalauthorities.Thetrainingprogrammeiscurrentlyunderwayandwillbecompletedby2023.
WewillintroducespecificsupportsforGaeltachtareas,includingenhancingtheenergyefficiencyofcommunityinfrastructureintheGaeltacht,supportsforclientcompaniesofÚdarásnaGaeltachta,andensuringthatclimate-relatedassessmentsareintegratedintocapitalfundingprovidedundertheActionPlanfortheIrishLangauage.
10.3.5 Research, Development and Innovation
National Research Policy Supporting Climate Action Wearecommittedtointroducingatransformationalprogrammeofresearchanddevelopment,toensurethatIrelandisatthecuttingedgeofscientificandtechnologicalinnovationinordertomeetourclimatechangeandinter-relatedenvironmenttargets,spanningGHGemissionmitigation;climateadaptation;waterandairquality;thecirculareconomyandwaste;andnatureandbiodiversity.Thiswillincludedevelopmentsinareassuchasclimatescience;biodiversityscience;geoscience;energy-systemdecarbonisation;thebioeconomy;carbonsequestrationandutilisation(includingnature-basedsolutions);naturalcapitalandecosystemservices;greenhydrogen;marineresearch(includingmarinerenewableenergy,floatingoffshorewindturbines);andinagriculture,toimprovebreedingprogrammes;feedadditivestoreducebiogenicmethane;agroforestry;paludiculture;nutrientmanagement;andsmartanddata-drivenagriculture.
Irelandhasstrategicallyprogrammedandbuiltastrongclimateresearchandinnovationinfrastructureinrecentyears,withfundingprovidedtoIreland’sresearchproducingorganisationstocarryoutscienceandpolicy-relevantresearch,aswellasestablishingdedicatedEnterpriseIreland(EI)technologycentresandScienceFoundationIreland(SFI)researchcentres.
ThegovernmentispreparinganewNationalStrategyforResearchandInnovation.Thisstrategywillunderpintheroleofresearchandinnovationinaddressingkeyeconomicandsocietalchallenges,includingpositioningresearchandinnovationattheheartofdeliveringonIreland’sclimateaction.Itwillensurethatthebestscientificevidenceandadviceisavailabletounderpingovernmentpolicyandsupporttheimplementationofclimateaction,andtoensurethatIreland’sresearchandinnovationinfrastructureprogressivelybuildscapacityandcapabilitytosupportthefundamentaltransitionthatIreland’seconomywillundergooverthenextthreedecades.
Furthermore,initsstrategy,ShapingourFuture,SFIhighlightsclimatechangeasakeyresearchpriority–asacriticalglobalissue,butalsoasanopportunityforIrelandtobecomealeaderindevelopingclimateactionsolutions.Climatechangeresearchiscriticalifwearetodevelopthetechnologicalandothersolutionstoreduceemissions,andcreatejustandsustainablejobsandopportunitiesforIrishpeople�
WehaveintroducedaNationalGrandChallengesProgrammeofmission-orientatedfundingwhichisbeingrolledoutbySFI.Throughthisprogramme,SFIwillseektosupportthedevelopmentofinnovativesolutionsthatwilldirectlycontributetoaddressingIreland’sclimatetargets.SFIwillfurthersupportfundamentalandappliedresearch,recruitresearchtalent,supportskillsdevelopment,andinvestinresearchinfrastructurerelevanttoclimateactionacrossitsstrategicthemes,rangingfromindividualresearchgrants,toresearchcentres,tocommunityandpublicengagement.
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TheEnvironmentalProtectionAgency(EPA)hasrecentlypublisheditsEPAResearch2030,aten-yearhigh-levelframeworkfortheEPA'sresearchprogrammingfortheperiod2021to2030,whichwillprovidepublicfundingthroughannualcompetitiveresearchcallsforfocusonfourkeythemes:
• Addressingclimatechangeevidenceneeds• Facilitatingagreenandcirculareconomy• Deliveringahealthyenvironment• Protectingandrestoringournaturalenvironment
Inlinewithitsstatutoryrole,theEPAhasestablishedanationalcoordinationgrouptofacilitatethespecificationofknowledgeneedswhichinvolves11governmentdepartmentsand34nationalagenciesandbodies.Membershipalsoincludesnon-governmentalorganisationsandNorthernIrelandExecutiverepresentation.TheEPAalsoleadstheNationalClimateResearchCoordinationGroupandtheproductionofitsannualreportonclimateresearchactivity.
Thegovernmentalsoprovidespublicfunding,throughtheSEAI’sNationalEnergyResearchDevelopmentandDemonstration(RDD)FundingProgramme,toinvestininnovativeenergyresearchprojects,whichcontributetoIreland'stransitiontoacleanandsecureenergyfuture.Itaimsto:
• AcceleratethedevelopmentanddeploymentintheIrishmarketplaceofcompetitiveenergy-relatedproducts,processesandsystems
• Supportsolutionsthatenabletechnicalandotherbarrierstomarketuptaketobeovercome• GrowIreland'snationalcapacitytoaccess,developandapplyinternationalclassRDD• Provideguidanceandsupporttopolicymakersandpublicbodiesthroughresults,outcomesandlearningfromsupportedenergyprojects
Theprogrammerunsanannualcompetitivecall,withapplicationsacceptedfrom:privateenterprises;universities,institutesoftechnology,andstate-fundedresearchorganisations;andpublicsectorbodiesandsemi-statebodies,basedinIreland.Theprogrammeinvitesco-funderstocontributetoresearchthemesand,todate,anumberoffundingcollaborationshavebeenestablishedtohelpdirectandfundresearch topics�
Thegovernment’snewagri-foodstrategyto2030,‘Food Vision 2030 – A World Leader in Sustainable Food Systems’,setsouttoembedtheroleofresearchandinnovationinthedevelopmentofaninnovative,competitiveandresilientagri-foodsectoroverthecomingdecade.Thiswillbeachievedthroughanumberofinter-linkedresearch-relatedgoals,including:movingtoachallenge-focusedinnovationsystem,withafocusonsustainablefoodsystems;providingastrategicfundingapproachforresearch,developmentandinnovation;anddevelopingadynamicknowledgeexchangeenvironment.
ThestrategicapproachoftheDepartmentofAgriculture,FoodandtheMarine’s(DAFM)ResearchandInnovationProgrammesupportsthedevelopmentandapplicationofcutting-edgeandemergingscientificandtechnologicalinnovationstoprovidethebasisforclimateactionandpolicyimplementation.Thedepartment’smission-orientatedresearchcallssupportthedevelopmentofasustainable,climateresilientandneutral,agri-food,forestandbio-basedsystemandpromotesanopenknowledgeeconomythatfosterstheoutputsofresearchfortheclimatechallengesfacedbyindustry,policy,theenvironment,andsociety.Theresearchprogrammealsoembedsresearchcollaborationandinnovationwithotherfundingandresearchpartnersbothnationallyandinternationallyinareasofstrategicrelevanceandsharedauspicestocombatoursharedchallengesandprioritiesto climatechange.
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Significantpublicinvestmenthasalreadybeenmade(€157millionin2018),andfurtherinvestmentisplanned,throughDAFM,Teagasc,BordIascaighMhara,SFI,andEIinthedevelopmentofscience-ledresearchcentres,industryled-technologycentres,regionalclusters,innovationforpilotinganddemonstration,tosupporttheIrishagri-foodindustryintheimplementationofitsinnovationagenda,includingtorespondtotheclimatechangeandbiodiversitychallengesfacedbythesector.
10.3.6 Building the Supply and Use of Renewable GasesScenariosfornetzeroemissionsby2050includeapotentiallysignificantrolefortheuseofzero-emissionsgases(inparticularbiomethaneandgreenhydrogen)and,inplanningforthelonger-term,wemustensurethattheycanmeettheirfullpotential.Itiscriticalhoweverthattheuseofzero-emissionsgasesaredirectedtowardssectorsthatmaximiseemissionsabatementinhardtoabatesectors.Thatinvolvesdecidingoncleartargetsandsupportingmeasures–with2030asakeymilestone–butwiththeclearunderstandingthatthegroundworkfordeploymentneedstobeginnow.
Givenlongertermdecarbonisationscenarios,itisimportantnowtoconsiderthepotentialfuturerolefortheexistinggasnetworktofacilitatethedeploymentofbiomethane,aswellastoexplorethepotentialofsustainablefeedstocksfromwaste,agricultureandothersourcesfortheproductionofrenewablegasforuseinhardtoabatesectorssuchashightemperatureindustrialheat.
Greenhydrogenhasbeenidentifiedashavingthepotentialtosupportdecarbonisationacrossseveralsectors,andinparticular,inhigh-temperatureheatforindustryandinelectricitygeneration.Hydrogenisaversatileenergycarrierthatmaystoreexcessrenewableenergyfromthegrid.Greenhydrogen,producedfromrenewableenergy,hasasignificantroletoplayinsectorcoupling(theincreasedintegrationofenergyend-useandsupplysectorswithoneanother),andminimisingtheoverallcostofdecarbonisationacrossallsectors.Sectorcouplingisalreadyhappening,withtheincreasedelectrificationoftheheatandtransportsectors.Someofthechallengesthatthispresentsfortheelectricitysectorcanbesolvedbyrenewablegreenhydrogen,includingasback-upforintermittentrenewables;seasonalstorageofrenewableenergytoreplacetoday'sfossilfuelstoragesystems(usedinelectricity,industry,heatinginbuildings,andtransport);andtoensuresecurityandresilienceinenergysupplies.
InorderforarenewablegasessupplychaintobedevelopedinIreland,therewillneedtobemeasurestakentoensureaneconomic,steady,resilient,andreliablesupply.Keymeasurestodeveloparenewablegasindustryarecapturedacrossvarioussectoralchaptersofthisplan.
10.3.7 Digital Transformation and Remote working
Digital TransformationThepandemichasacceleratedthepaceofdigitaltransformationofoureconomyandsociety,includingthemovetoonlineanddigitalservices,remoteworking,andautomation.Asthesetrendscontinue,newopportunitieswillopenuptoaccelerateourclimateaction.Wearecommittedtodevelopinganewcross-governmentNationalDigitalStrategytoensurewefullyharnesstheseopportunities.ThroughinitiativessuchaseHealth,thedigitaltransformationofenterprise,andtheuseof5Gtechnologies,wewilldriveagreener,moreinnovativeIreland,fullyalignedwithourclimateobjectives.
Remote Working Thesuddenandlarge-scaleadoptionofremoteworkingformanymembersoftheworkforcehasledtoamajortransformationinhowandwherewework.Wehaveadaptedtonewtechnologies,suchasvideoconferencingplatforms,inaveryshortspaceoftime.InJanuary2021,thegovernmentpublishedMakingRemoteWork:NationalRemoteWorkingStrategythataimstosupporttheadoptionofremote
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workingasalong-termpolicy.Thestrategywillbuildonthebenefitsofremoteworkingthatcametolightin2020,butalsoaddresssomeofthechallengesthatitpresentsincludingaccesstoconnectivity.Thestrategyisbuiltonthreepillars:
• Creatingaconduciveenvironment• Developingandleveragingremoteworkinfrastructure• Buildingaremoteworkpolicyandguidanceframework
MakingRemoteWorkwillfacilitateremoteworkinginawaythatmaximisestheeconomic,socialandenvironmentalbenefits,includingincreasingparticipationinthelabourmarket;enablingbalancedregionaldevelopment;improvingwork/lifebalance;reducingcommutingtimes;andreducingtransport-related carbon emissions�
National Broadband Plan TheNationalBroadbandPlan(NBP)willdeliverhigh-speedbroadbandservicestoover1.1millionpeopleinareaswherethereisnoexistingorplannedcommercialnetwork.Theinterventionareaincludes544,000premises,including56,000farms,44,000businesses,and695schools.TheNBPnetworkwillofferthosepremisesahigh-speedbroadbandservicewithaminimumdownloadspeedof500Mbpsfromtheoutset.TheNBPwillensurethathouseholdsandbusinessesinruralpartsofIrelandwillhaveasimilarlevelofconnectivityashouseholdsandbusinessesinurbanareas.
OverthelifetimeoftheNDP,everyhome,schoolandbusinessinIreland,regardlessofhowremoteorrural,willbeprovidedwithhigh-speedbroadband.ThiswillbeachievedthroughacombinationofExchequerinvestmentof€2.7billionundertheNBP,complementedbymulti-billioneuroinvestmentprogrammesbycommercialoperatorsprimarilyincities,townsandvillages.Duringdeploymentofthenetwork,reuseofexistinginfrastructureandmaterials(i.e.existingpolesandundergroundducts)willbemaximised;thiswillincreaseresource-efficiencyandreduceemissionsassociatedwithfabrication,transportandinstallationofnewphysicalnetworkmaterials.
Thehigh-speedbroadbandnetworkwilldeliverarangeofenvironmentalbenefits.Foreachnewremoteworker,anestimatedaveragenetsavingofupto10kWhperdaywillbeachieved,reducingcommutertransportenergyuseandcarbonemissions.Availabilityofbetteronlineconferencingandcollaborationtoolswillreducetheneedforbusinesstravelandtheassociatedcarbonemissions.
High-speedbroadbandalsoincreasesthecreationoflocalemploymentopportunities,whichallowsmorepeopletoworkclosertotheirhomes,reducingtheemissionsassociatedwithlongercommuterjourneys.Astandardpetrolcarwillemit0.876tCO2overthecourseofayear,whiletheaveragedieselcaremits0.742tCO2overthesameperiod(accordingto2016EUaverages).Theprovisionofhigh-speedbroadbandwillincreaseopportunitiesforremoteworking,resultinginapotentialmitigationof0.7-0.9tCO2perannumormore,peremployee,fromournationalGHGemissions.Thisreductionwillhavealongtermpositiveclimateimpact.‘SmartHomes’technologieswillallowtheremotemanagementofdomesticenergyconsumptionthroughsmartmetering,heatingandlightingsystems;andenableconsumerautonomyovertheirdomesticenergyconsumption.Thiswillplayanimportantcontributoryroleindecarbonisingtheresidentialsector.
Asopportunitiesfor‘Smart Agriculture’areleveraged,lowercarbonemissionsfromnationalagriculturaloutputwillresult,asprecisionfarminggeneratesahigher-yieldperanimalandhectarethroughdata-drivenherdandcropmanagement.
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10.3.8 Tourism and Media Sectors
Thequalityofournaturalandphysicalenvironmentsiscriticaltoournationaltourismproductandthestatehasakeyroletoplayinsupportingthetourismsectortocreateuniquevisitorexperienceswhichcelebrateandpreserveournaturalheritageandenvironment.InDecember2019,thegovernmentadoptedtheeightGuidingPrinciplesforSustainableTourismDevelopment,andthedevelopmentofanewnationaltourismpolicybasedontheseprincipleswillbeginbeforetheendof2021.Thenewpolicywillmainstreamsustainability,fromanenvironmentalbutalsosocialandeconomicperspective,andwillacttohelptourismcontributetotheachievementofIreland’sclimatetargets.
Intheaudio-visualsector,thegovernmentwillimplementgreensustainablecertificationcriteriaasarequirementforproductionssupportedthroughfuturefundingschemes.AllproductionscurrentlyinreceiptofSection481fundinghavetoreportontheproduction’seffortstoreducetheircarbonfootprintand,whensubmittingskillsdevelopmentplans,outlinedetailsofanyenvironmentallysustainableinitiativesundertakenontheirproductiontoScreenIreland.
In2019theBroadcastingAuthorityofIrelandestablishedtheBroadcastingSustainabilityNetwork,followingconsultationwiththesector,inthecontextofitsstrategiccommitmenttodemonstrateandshowleadershipinenvironmental,socialandeconomicbestpractice.Thenetworkisavoluntarysector-widesustainabilitygroupofIrishbroadcastersandrepresentativesoftheirsupplychainsthataimstofosterbestpracticeandtoprovidethesupporttomaketheIrishbroadcastingsectorasustainabilityleaderthatusesitscollectivevoicetocreateagreener,moreinclusive,moreresilientfutureforall.Aroadmaphasbeendevelopedtosupportindividualorganisationsinthebroadcastingindustrytodeveloptheirownsustainabilityplan,andtocreateacollectiveapproachtotheimplementationoftheUNSustainableDevelopmentGoals.
10.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
Expenditure and Taxation Policies
63 ContinuetoworkwithallDepartmentstoensurethatthecentralpoliciesadoptedinrelationtoexpenditureandtaxationareconducivetotheachievementoftheGovernment’sclimateobjectives
64 Monitorandreviewsuccessivecarbontaxincreasesaslegislatedinthe2020FinanceAct
65 Ongoingexaminationofenvironmentaltaxationmeasuresacrossallrelevanttaxheadsaspartoftheannualbudgetaryprocess
66 ContinuetoimplementgreenreformstoprovidetransparencyontheGovernment’sfinancialcommitmentstotheclimatechangeagenda
67 KeepthePublicSpendingCodeunderongoingreviewinlinewithinternationalbestpracticetoensurethatitincludestoolstoevaluatetheclimateandenvironmental consequences of investments
68 EngagetoensurebestenvironmentaloutcomesinEUnegotiationsonrevisionstoEnergyTaxDirectiveandonnewCarbonBorderAdjustmentMechanismproposalaspartofFitfor55package
69 Examinegreenbudgetingpracticesfromataxperspective
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Action Number Action
Mobilisation of Investment and Sustainable Finance
70 SupportsustainableStateinfrastructureprojectsthroughtheNationalDevelopmentFinanceAgency
71 UsethemandateoftheNewEconomyandRecoveryAuthority(NewERA)tosupportthemobilisationofprivatefinanceforclimate-relatedinvestment
72 ExploreopportunitiesforfinancingmitigationinagricultureandfoodsectorsthroughtheIrelandStrategicInvestmentFund
73 Promotethefurtherdevelopmentofthesustainablefinancesectortofacilitateincreasedinvestmentinzero-emissionsectorsinIreland
74 ConsideropportunitiesforissuanceofnewIrishSovereignGreenBonds,andmonitorallocationandimpactoffundsraisedthroughexistingIrishSovereignGreen Bonds
75 PromoteopportunitiesforEIBinvestmentinrelevantclimateprojectsinIrelandthroughEIBFinancingIreland
Spatial and Planning Policy and Action at Community Level
76 ImplementtheNationalPlanningFramework
77 DevelopandincludeamoduleonclimatechangeintotheGuidelinesforthedevelopmentofnewLocalEconomicandCommunityPlans(LECPs)
78 Support,monitorandassessLocalAuthorityClimateAction
79 EnhancetheenergyefficiencyofcommunityinfrastructureintheGaeltacht
Research, Development, and Innovation and Digital Transformation
80 Strengthendeliveryofpublicfundingforbasicandappliedresearchtomeetclimateactionobjectives
81 Supportclimateandbiodiversityprogressthroughrelevantstrategicadvicetoenhanceevidence-baseddecision-making
82 Continuetoprovideflexibleandeffectiveresearchfundingmechanismstoenablethedeliveryandcontinuousimprovementofnationalpredictivecapabilityandcapacityintheareasofweather,climateandhydrology
83 ImplementandmonitortheNationalRemoteWorkStrategytoensureoptimalalignmentwithclimateactionobjectives
Irish Language, Media, Sport and Tourism
84 Applysector-specificclimateappraisalmethodologytoprogrammes,schemesandprojectsfundedbyDTCAGSM
85 CreateanationalSustainableTourismPolicy
86 Improve evidence base for sustainable tourism
87 Minimisenegativeenvironmentalimpactoftourism
88 Growawarenessandunderstandingofsustainabilityintourism
89 DevelopaMajorSportsEventsPolicyandStrategythatincludessustainabilityasakeypartoftheassessmentofpotentialevents
90 Supportthemodificationofsportsfacilitiesinordertoreduceenergyconsumption
91 SupportenvironmentallyfriendlyinitiativesthroughtheActionPlanfortheIrishLanguage
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Action Number Action
92 Enhance the sustainability of Screen Ireland
93 Facilitatethedevelopmentofsustainablepracticesinthewidermediasectorandtheincreasedproductionofclimateandsustainabilityrelatedprogramming
94 ImproveenvironmentalperformanceofIreland'screativeandculturalsector
95 Investindevelopingouroutdoortourismoffering,includingoutdooractivities,thatenhancesIreland’sinternationalreputationofbeingagreen,cleanandsustainabledestination
96 Increase nature connectedness and promote pro-environmental behaviours by developingoutdoorrecreation
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Enterprise
91
Enterprise
91
Electricity 11
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Electricity
11. Electricity
11.1 State of PlayElectricityaccountedfor16.2%ofIreland’sgreenhousegas(GHG)emissionsin2018.Wewillcontinuetodecarbonisetheelectricitysectorbytakingadvantageofoursignificantrenewableenergyresources,inacompetitivecost-effectiveway,whilealsoensuringthesecurityofourelectricitysupply.Bydoingthis,wewillalsodecreaseourdependenceonimportedfossilfuels.
Table 11.1 – Electricity GHG Emissions, 2018
Electricity Emissions CO2eq. Share of Total GHG Emissions Electricity Emissions CO2eq. per person
10.6 Mt 17.0% 2.2 t
Overall,electricityemissionsreducedbyone-thirdbetween2005and2018,underpinnedbythegrowthofgenerationfromrenewablesandhigherefficiencyconventionalgeneration.Emissionsfromthesectorwereonadownwardtrendbetween2005and2011,andthistrendcontinuedbetween2011and2018,whentherewasa11.8%decreaseinGHGemissions.Thisequatestoanabsolutechangeof1.4MtCO2eq�
Table 11.2 – Trends in Electricity GHG Emissions
Timeframe Percentage Change Absolute Change, CO2 eq.2005-11 -24.2% -3.7Mt2011-18 11.8% -1.4Mt
Theshareofelectricityfromrenewableenergyincreasedalmostfive-foldbetween2005and2018–from7.2%to33.7%–anincreaseofover26percentagepointsin13years.Thisincreaseintheshareofrenewablescamedespiteariseinthetotaldemandforelectricity.Inabsoluteterms,therehasbeenamorethansix-foldincreaseinthevolumeofrenewableelectricitygenerated,from1,873GWhin2005to11,780GWhin2019.
Table 11.3 – Electricity GHG Emissions International Comparisons, 2018
Ireland Denmark Austria Finland EU 27Share of Total GHG 17.0% 19.3% 8.9% 29.7% 23.4%Emissions, CO2eq. per person 2�2 1�6 0�8 3�0 2�0Change Since 2005 -33.1% -54.8% -45.3% -12.5% -26.5%
Ireland’sshareofemissionsfromelectricityasapercentageofouroverallGHGemissionsislessthantheEU27overall.Aslateas2016,Irishelectricityemissionsperpersonwere13%abovetheEUaverage,duetoouruseofhigh-carbonfuels,suchascoalandpeat.By2018,ourelectricityemissionsperpersonhadreducedclosetoEU27level.
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Electricity
Additionalelectricitygenerationandtransmissioninfrastructurewillbeacriticalenablertoachieveourrenewableenergyandemissionstargets.Publicacceptanceofthatadditionalgenerationandtransmissioninfrastructurewillbecrucialtothistransition,whichwillhaveimpactsrightacrossthestate.Communityinvestmentandparticipationinrenewableenergyprojects,aswellascommunitybenefitschemes,willhelpensurefairnessinthetransitiontoazero-carbonpowersystem.Achievingdecarbonisationoftheelectricitysectorwillnotbepossiblewithoutthesociallicencegivenbylocalcommunities,makingitvitalthatwebringthemwithusontheenergytransition.Electricitypriceimpactsonconsumers,particularlythoseexperiencingenergypoverty,aswellasimpactsonIreland’sinternationalbusinesscompetitiveness,willneedtobemonitoredandmitigated.Therewillbecostsassociatedwithmeetingahigherdemandforelectricity.Someofthesecostswillbeoffsetbyreductionsinexpenditureonfossilfuels,particularlyintheheatandtransportsector.
Table 11.4 – Required Level of Decarbonisation in Electricity
2018 Emissions 2030 Required Emissions Based on CAP 2021 10�6Mt ~2-4Mt
In2018,emissionsfromelectricitywere10.1MtCO2eq.Implementationofexistingpoliciesandmeasureswouldreduceelectricityemissionsto4-5MtCO2eq.by2030.Asignificantstep-upinambitionnowrequired,notonlytomeetourmoreambitious2030target,butalsotosetusoncoursetodeliversubstantivedecarbonisationofoureconomyandsocietynolaterthan2050.Theelectricitysectorwillalsoenablefurtheremissionsreductionsintheregionof6MtCO2eqinthebusiness,residentialandtransportsectors,throughsignificantlyexpandingelectricityoutputtomeetadditionaldemandfromtheelectrificationofheatinbusinessandbuildings,andoftransportvehicles.
InIreland,totalelectricitydemandoverthenexttenyearsisforecasttogrowbybetween19%and50%,largelydrivenbynewlargeenergyusers,manyofwhicharedatacentres,basedonexistingpoliciesandstrategies.InthehighdemandscenariooutlinedintheProgrammeforGovernment,electricitydemandwillalmostdoubleby2030,whileelectricityemissionsaretobereducedby60-80%atthesametime.Underlyingdriversofchangesinelectricitydemandinclude:
• Datacentresareforecasttocontinuetogrowbyupto~9TWhin2030(~2316%oftotaldemand)• Transportelectricitydemandisforecasttogrow(~23%p.a.)asaresultoffastuptakeofEVcharging• Electricalheatinginindustrywillincreasebymorethan2.5timesin2030from2017levels• Buildingenergyefficiencyimprovementsfromanextensiveretrofitprogrammewillmoderatethegrowthinelectricitydemandfromnewheatpumpsinbuildings
Thesechangesindemandforelectricitywillalsoaltertheprofileofdemand.Forexample,increaseduseofelectricityforheatingwillpresentsupplychallenges,particularlyinwinter.
TheforecastgrowthofdatacentresclearlyrepresentsachallengetoIreland’semissionstargets.Todealwiththis,thegovernmentwillreviewitsstrategyondatacentrestoensurethatgrowthofsuchuserscanonlyhappeninalignmentwithoursectoralemissionsceilingsandrenewableenergytargets.Theimpactofdatacentregrowthonsecurityofsupplywillalsobeconsidered.Furtherregulatorymeasureswillbeconsideredtomanagedemandfromlargeusers,suchasdatacentres,inthecontextofclimatetargetsandfuturenetworkneeds.
16 PerMedianscenariofromGenerationCapacityStatement2021-2030,EirGrid
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Table 11.5 – Potential Metrics to Deliver Further Abatement in Electricity
Key Metrics KPI 2030 Additional Abatement Impact, MtCO2eq.
Core MeasuresShareofRenewableElectricity,% Upto80
6-8
IndicativeOnshoreWindCapacity,GW Upto~8*
IndicativeOffshoreWindCapacity,GW Atleast~5*
IndicativeSolarPVCapacity,GW ~1.5-2.5*
Further MeasuresZero-emissionGasGeneration,TWh 1-3 0�2-0�4
*Electricitytechnologieswillcompetewitheachotheroncostthroughcompetitiveauctions
11.2 Targets
To meet the required level of emissions reduction, by 2030 we will: • ReduceCO2eq.emissionsfromthesectortoarangeof2to4MtCO2eq� by 2030
• Carryoutaworkprogrammetoidentifyaroutetodeliver1-3TWhofzeroemissionsgas(includinggreenhydrogen)by2030,potentiallyequivalentto0.2-0.4MtCO2eq.abatement
Ourclimatetargetswillbedeliveredthroughasetofenablingtargetsby2030:
• Increasingtheshareofelectricitydemandgeneratedfromrenewablesourcestoupto80%whereachievableandcosteffective,withoutcompromisingsecurityofelectricitysupply17
• Atleast500MWoftheserenewableswillbedeliveredthroughlocalcommunity-basedprojects,subjecttocompetitionasappropriate
• Delivercirca2GWofnewflexiblegas-firedpowerstationsinsupportofahighvariablerenewableelectricitysystem
• DeliveryofthreenewtransmissiongridconnectionsorinterconnectorstoNorthernIreland,GreatBritain,andtheEU
• Explorefurtherinterconnection,includinghybridinterconnectors(combinedcrossbordertransmissionnetworkwithoffshorerenewablegeneration),toothercountries
• Expandandreinforcethegrid–throughtheadditionoflines,substations,andnewtechnologies
• Completethephase-outofcoalandpeat-firedelectricitygeneration
• Ensurethat20-30%ofsystemdemandisflexibleby2030
17 Electricitytechnologieswillcompetewitheachotheroncostthroughcompetitiveauctionstoreachtheabovetarget.
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Thegridinfrastructureprojectsneededareatbothtransmissionanddistributionlevel,includingthe1,500MWNorth-SouthInterconnectorandothernetworkreinforcementsidentifiedbyEirGridandESBNetworks.Itwillbeessentialtodeliveratleast2GWofadditionalgasgenerationcapacityby2030toensuresecurityofsupply,underpinourincreasedrenewabletargets,andgiveinvestmentcertainty.Ingeneral,increaseduseofvariablerenewableelectricitygenerationwillrequirecontinuedimprovementsinareassuchaspowersystemstability,networkloading,andconstraints.
Theseprojectswillincorporateadvancedtechnologiesthatprovideincreasedflexibilityofoperation,andimplementarrangementsforenhancedsystemservicesfromgenerators,interconnectors,andelectricitydemand,facilitatedbyflexibleelectricalnetworks.
Allofthesechallengeswillhavetobemetwhileensuringoursecurityofelectricitysupply,andacost-effectivedeliveryofnewelectricitygenerationonthesystem.
Unlockingtheflexibilityoflargeelectricitydemanduserswillbeakeychallengeastheelectricitysystemisdecarbonised.Energydemand,includingdatacentres,willbeexpectedtooperatewithinsectoralemissionsceilingsandfurthersignalswillberequiredtolocatedemandwhereexistingorfutureelectricitygridisavailableandclosetorenewableenergygeneration.Researchanddevelopment(suchasciencechallengetoindustry),toputIrelandonapathwaytonet-zero-carbondatacentres,willberequired�
UndertheNationalSmartMeteringProgramme18,newelectricitymeters,systemsandprocessesarebeingimplementedbyESBNetworkstoprovideenergyuserswithimprovedandmoreaccessibleinformationthatwillhelpthemtobetterunderstandandmanagetheirenergyconsumption,andtoenablehigherrenewableelectricitybyencouragingflexibledemand.Smartmeterswillgiveaccesstonewtariffsandservices,andsupportparticipationinthetransitiontoacarbonneutraleconomyandsociety�
Ourabilitytouseandstorerenewableenergywhenitisavailablewillbecriticaltohowquickly,securelyandefficientlywecanachievethetargetssetoutinthisClimateActionPlan.ESBNetworkshasestablishedtheNationalNetworks,LocalConnectionsProgrammewhichisaddressingtherangeofissuesneededtomakethispossible.
11.3 Measures to Deliver Targets 11.3.1 Electricity Demand ManagementThemanagementofelectricitydemandwillbeacentralpartofourapproachtoachievingemissionsreductions.Thesignificantincreaseinelectricitydemandexpectedfromdatacentres,aswellasfromtheelectrificationofindustry,heatandtransportmeanthatIrelandneedsanewapproachtoelectricitydemandmanagement:
• The‘GovernmentStatementontheRoleofDataCentresinIreland’sEnterpriseStrategy2018’willbereviewedtoensurealignmentwith:sectoralemissionsceilingsandourrenewableenergytargets;ongoingsecurityofsupplyconcerns;andthedemandflexibilitymeasuresthatarenowneeded.Furtherregulatoryleverswillalsobeconsideredtomanagedemandfromlargeenergyusersinthecontextofemissionsandfuturenetworkneeds
• TheCommissionfortheRegulationofUtilities(CRU)willdeliveranewDemandSideStrategywhichwillaimtohaveindustrial,commercialandresidentialdemandfullyparticipatinginsupporting
18 TheNSMPisaplanfortransforminghowelectricityandgasretailmarketsoperateandsupportthetransitiontoalowcarbonenergynetwork
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systemneedswithhighlevelsofrenewablegeneration,andseektofacilitateactiveparticipationbyconsumersandcommunitiesintheenergymarket
• TheSustainableEnergyAuthorityofIreland(SEAI),theCRUandthesystemoperators,willworkwithlargeenergyusersandenterprisedevelopmentagencies,todevelopapproachestoenhancereportingandusageoflowercarbonenergysources,includingincreasedtransparencyofelectricityemissionsdatatoenablelargeenergyuserstoaddresstheirelectricityemissionsacrosstime(hourly)andgeographiclocations
• EirGridandESBNetworkswillundertakeanin-depthanalysisoflocal,regionalandsystemlevelflexibilityrequirements,andmodifytheirownapproachesandprocedurestofacilitatedemandflexibility,todrivedowncoststotheconsumerandprovidethenecessaryflexibilitytomeettheneedsoftheenergytransitionto2030
11.3.2 Large Scale Renewable Generation• Achievingtherenewableelectricitytargetofupto80%willentailinvestmentoftensofbillionsofeuro,includingintheinstallationandmaintenanceofgenerationassets,andassociatedinfrastructureandservices,aswellasinthedevelopmentofsupplychainsandportinfrastructure
• TheSEAI’sMethodologyforLocalAuthorityRenewableEnergyStrategies(LARES)willberevised,withinputfromrelevantbodies,toprovideabestpracticeapproachtoidentifyingandassessingrenewableenergyresourcesinspatialplanningatlocalauthoritylevel.Basedontheindicativetargetsforonshorewindenergyandgrid-scalesolardeployment,theDepartmentoftheEnvironment,ClimateandCommunications(DECC)willsetoutatargetforthetotalonshorecapacitythatshouldbeplannedforonanationalandregionallevel.Theregionalassemblieswillberequiredtodevelopandimplementregionalrenewableelectricitystrategiesbasedontheoverallnationaltargets,renewableenergyobjectivescontainedineachoftheRegionalSpatialandEconomicStrategies,andthesupportofrelevantguidance,includingtheSEAILARES.Nationalrenewableenergyobjectives,andthosesetoutintheregionalstrategies,shouldbereflectedinCountyDevelopmentPlans,whichareevaluatedandassessedbytheOfficeofthePlanningRegulator
• InlinewiththerequirementsoftheRenewableEnergyDirective,asinglecontactpointwillbedesignatedtoguideapplicantsthroughtheadministrativepermitapplicationandgrantingprocessforrenewableelectricityinstallations
• AnewOffshoreRenewableEnergyDevelopmentPlan(OREDPII)willbecompletedtoquantifytheoffshorerenewableenergypotentialinIreland’smaritimearea.TheOREDPIIwillalsoprovideanevidencebasefortheassessmentofareassuitablefordeploymentofoffshorerenewableenergy.TheOREDPIIwillbeanimportantplanningtoolasIrelandtransitionstoaplan-ledregulatory regimeforfuturedevelopmentofoffshorerenewableenergyunderpinnedbytheNationalMarinePlanningFramework
• TheMaritimeAreaPlanning(MAP)Bill,whenenacted,willputinplaceacomprehensiveandcoherentmarineplanningregimeforthedevelopmentofoffshorerenewableenergyinthe maritimearea
• BasedontheMAPBill,anewconsentingregimewillreplaceexistingstateanddevelopmentconsentregimes.Thenewconsentingregimeisdesignedtoprovideclarityandconsistencyforapplicants,streamlinetheconsentingprocess,andensureoffshorerenewableenergyprojectsareinlinewithStateenvironmentalandmarinespatialplanningpolicy
• WewillcontinuetorolloutregularcompetitiveauctionsundertheRenewableElectricitySupportScheme(RESS)todeliverourtargetsandensureasteadysupplypipelineofprojectsandefficientuseofthenetwork.WewillpublishanindicativeRESSauctiontimetableeverythreeyearstoprovide clarity for investors
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• EirGridwillcarryoutfurthergrid,operationalandmarketstudiestounderstandanyadditionalmeasures,beyondcurrentplans,tofacilitatereducedsectoralemissionsceilingsand,therefore,supportannualrenewableelectricityshareofupto80%
11.3.3 Microgeneration and Community Based ProjectsMicrogenerationandsmallscalegenerationhasanimportantroletoplayinempoweringanddrivingengagementandparticipation.Itcreatesopportunitiesfordomestic,community,farming,andsmallcommercialcustomerstotakethefirststepstowardsinvestmentinrenewabletechnologies,whichcanplayaroleinshapingelectricitydemandanddecarbonisinghomesandbusinesses:
• Communitieswillplayanimportantroleinplanningnewrenewableelectricityprojects.Wewillfurtherstrengthenthecommunityenergyframework,includingconsiderationofcommunity-benefitfundsandcommunityownershipprovisionsintheRESS
• WewillintroduceaMicrogenerationSupportScheme(MSS)whichsupportsdeploymentofanexpected260MWofnewmicro(<50kW)renewablegenerationby2030,includinganexportpaymentforallmicro-andsmall-scalegeneratorsthatreflectsthemarketvalueoftheirelectricitytothegrid,societyandtheenvironment
• WewillamendthePlanningandDevelopmentRegulations2001toextendexemptionsforsolarinstallations,reducingbarrierstorooftopandground-mountedmicro-andsmall-scalegeneration
• WewilldevelopaSmall-scaleGenerationScheme(>50kW)tosupportthedeploymentofrooftopandground-mountedsolarPVincohortsthatarenotassuitedtoothersupportmeasures,suchastheMSSandtheRESS;andalsodeveloptherulesfortheEnduringConnectionPolicy2.0,toprovideamorestreamlinedandefficientgridconnectionprocessforinstallationsizesupto200kW.Thiswillenablefarmers,auto-generatorsandcommunitiestomaximisetheirparticipationintheenergytransition.Wewillidentifyappropriatetargetsforsmallscalegenerationin2022
11.3.4 Supporting MeasuresArangeofsupportingmeasureswillalsobeneededtoenablethistransformationoftheelectricitygenerationsector.Thesewillincludeprovidingtheconventionalcapacitythatwillbeessentialtoensurethesecurityofthesystem,gridinvestments,interconnectors,andstoragefacilities.Everyaspectofthemanagementofthenetworkwillbeimproved:
• WewillcompletethereviewoftheSecurityofSupplyofIreland’sElectricityandNaturalGasSystems
• Significantamountsofnewcapacityaregoingtoberequiredoverthenearandlongertermtoensurethatwehavesufficientcapacitytomeetdemand.Inthecontextofgrowingdemandduringthetransitiontoanetzerocarbonelectricitysystem,allaspectsofpolicyandregulationbeexamined.Therewillbeaneedforcirca5,000MWofconventionalgenerationcapacityin2030,ofwhich2,000MWislikelytobenewcapacityconstructedinthecomingyears
• TheCRUandEirGridwillensureanadequatelevelofconventionaldispatchablegenerationcapacity,toguaranteesecurityofelectricitysupply,bypublishingannuallythelevelsofconventionaldispatchablegenerationcapacityrequiredineachofthefollowing10years.TheCRUwillensurethroughmarketmechanisms,orothermeans,sufficientexistingandnewconventionaldispatchablegenerationcapacityisavailabletomeetthelevelstheyset
• Theelectricitysystemwillbestrengthenedthroughadvancedbuilding/upgradingofthegridandsupportinginfrastructureatkeystrategiclocations,addressingregionsthatarelikelytoseeanincreasedrequirementbasedonprojectedincreasesinrenewablegenerationconnectingtothesystem.Thebuildingofnewsubstations,associatedinfrastructureandnewtechnologieswillalsobeincorporated,alongwithstrategicupgradingofexistingsubstations,toensureefficientlong-termandtimelydevelopmentofthesystem
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• Across-DepartmentalOffshoreRenewableEnergyTeam,chairedbyDECC,isbeingestablishedtocapturewidereconomicandbusinessopportunitiesassociatedwiththedevelopmentofoffshorerenewablesinIreland.ThiswillincludetheidentificationofsupportinginfrastructuredevelopmentandsupplychainopportunitiesasIreland’soffshorewindindustryisdeveloped
• WewillupdatetheNationalPolicyStatementonElectricityInterconnectiontoreflecttheamendmenttotheEUTEN-ERegulation,Brexitchallenges,andtheincreasedsignificanceof hybrid interconnectors
• TheCRUwillreviewtheregulatorytreatmentofstorage,includinglicensing,chargingandmarketincentives.Incombination,DECCwilldevelopastoragepolicythatsupportsthe2030targetsandalignswithourrenewablegasambition,securityofsupply,andflexibilitypolicydrivers19
• EirGridwilldevelopaPowerSystemOperationalPolicyChangeRoadmap,settingouthowpowersystemoperationalpolicywillneedtoevolvetofacilitatetheintegrationofhigh-levelsofintermittent,non-synchronousrenewablegeneration,includingthereductionorremovalofminimumgenerationconstraintsandincreasingSystemNon-SynchronousPenetration(SNSP)
• EirGridwillevolvetheoperationaltoolsandpoliciestofacilitatetheintegrationofnewinterconnection,bothindevelopmentandnewinterconnectorsyettobeidentified
• EirGridandESBNetworkswillundertakeanalysisandimplementthenecessarymeasurestofacilitatetheintegrationofnewpowergenerationtechnologies,includinghybridpowerplants.Anewframeworktofacilitatezero-carbonsystemserviceswillbeputinplaceassoonaspossibletoenabledeliveryofthe2030targets
• EirGridwillcommenceimplementationoftheControlCentreoftheFutureRoadmap• Gridcodesconnectionandmarketarrangementswillbereviewedtofacilitategreaterdeploymentofhybridpowerplants.Thiswillenable,forexample,theco-location,ofnewsolarcapacityalongsideexistingwindfarms
• TheCRUwillmonitorelectricityprices,andensurethatregulatorycoststoconsumersareminimisedthroughwell-regulatedmarketsandnetworkstodelivertheleastcostpathway(inthelong-term)tomeetingtheelectricitysectortargetssetoutinSection11.2above
11.3.5 Further MeasuresAdditionalemissionssavingswillneedtobeidentifiedtoreachthelower-endofthe2030targetrangefor electricity emissions:
• ThedevelopmentofCarbonCaptureandStorage(CCS)by2030ischallengingbutcouldremovefurtheremissionsfromthesystem.WewilldevelopapolicyframeworkandroadmapfortheprovisionofCCS
• Oncetherenewableelectricityshareofgenerationincreasesabove80%thesystemabatementcostbecomesveryexpensivewithcurrenttechnologies.Reducingemissionsbeyond2-4Mtwillrequirethedevelopmentofavarietyoflongdurationstoragetechnologiesandrenewablegases.Theadditionofamoderateamountofrelativelyhighcost,cleandispatchablepower(~€100-200/MWh)wouldlowerthecarboncostsubstantially.Wewillinvestigate:
• Methodstoincentiviseelectrolyserproductionandgridconnectionofhydrogenfromrenewableenergytofuelzeroemissiondispatchablegeneration
• Developingstoragecapacitytodemonstratelongdurationandseasonalstorageofrenewableenergy
• Co-locationofelectrolysiswithrenewableenergyproductioninfrastructure
19 ElectricitystorageandinterconnectionprojectsdesignatedaspriorityEUelectricityinfrastructure,includingelectricityEUProjectsofCommonInterest(PCI),willcontinuetoreceivepreferentialtreatmentasprovidedforbytheEUTEN-ERegulation,subjecttocostbenefitanalyses.However,theabsenceofpriorityEUinfrastructurestatusshouldnotprecludeprojectdevelopment
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11.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
97 ReviewthepolicycontextforLargeEnergyUsers(includingDataCentres),ensuringalignmentofenterprisepolicyandwiderregulatoryenvironmentwithelectricityemissiontargetsandsecurityofsupply
98 PublishandimplementanewDemandSideStrategy
99 Enableandincentivisedemandsideflexibility
100 Ensuresupportivespatialplanningframeworkforonshorerenewableelectricitygenerationdevelopment
101 TransposeInternalMarketforElectricityDirective(EU)2019/944
102 DeliverregularOnshoreRenewableElectricitySupportSchemeauctionsthatalignswithspatialandplanningpolicyandefficientuseofthenetwork
103 DeliveraMicrogenerationPolicyFramework
104 EnsurecommunitiesbenefitfromrenewableenergyprojectsinRESS–benefitfundsandownership
105 Concludethereviewofthecurrentplanningexemptionsrelatingtosolarpanels,toensurethathouseholds,schools,andcommunitiescanbestrongchampionsofclimateaction
106 DeliveraSolarandSmall-ScaleGenerationPolicyFramework
107 Ensure security of electricity supply
108 UpdatetheInterconnectionPolicytoreflecttheamendmenttotheEUTEN-ERegulation,Brexitchallengesandtheincreasedsignificanceofhybridinterconnectors
109 Reviewtheexistingelectricitytransmissionanddistributionnetworktariffstructurestoassesswhatchangesmaybenecessarytodeliverequitable,costreflectiveandtransparentchargesthatfacilitateinvestmentinourlowcarbontransitionandthenewwaysinwhichthenetworkwillbeusedinthefuture
110 AssessthenetworkdevelopmentrequiredtointegratehigherlevelsofRES-Eanddevelopahigh-levelnetworkdevelopmentplanto(andbeyond)2030
111 Facilitateveryhighpenetrationofvariablerenewableelectricitythroughsystemservicesandmarketarrangements
112 Developtheonshoreelectricitygridtosupportrenewableenergytargets
113 Reviewthepolicypositiononthedevelopmentofprivatenetworks/directlines
114 DevelopanewOffshoreRenewableEnergyDevelopmentPlan(OREDPII)
115 Facilitatethedevelopmentofoffshorewind,includingtheconnectionofatleast5GWofoffshorewind,basedoncompetitiveauctions,tothegridby2030
116 DevelopaclearOffshoreRenewableEnergyGridConnectionPolicy
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Action Number Action
117 CompletethemappingofallIrishoffshorewatersthroughtheINFOMARProgrammetosupportallmarineactivitiesincludingcliamteeffectmonitoringandsiteselectionforoffshoreenergy
118 EnsureoffshorerenewableenergyrequirementsaredeliveredintheMaritimeAreaPlanningBill
119 DevelopanewconsentingsystemforoffshorerenewableenergypostMaritimeAreaPlanningBillenactment
120 FinalisedesignandrolloutofdedicatedoffshoreRESSauction
121 Supporttheoffshoreandoceanenergyresearch,developmentanddemonstrationpathwayfortechnologiesandassociatedtestinfrastructure
122 Developastoragepolicyframeworkthatsupportstheachievementofelectricityemissionstargets
123 Facilitatetheconnectionofhybridtechnologiesthatminimisegridreinforcement
124 ExamineandoverseethefeasibilityoftheutilisationofCarbonCaptureandStorageinIreland
125 CarryoutpowersystemmodellingrequiredtomeetrenewableenergyandelectricityemissionstargetsandanalysistounderpinaNetZeroRoadmap
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Enterprise 12
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12. Enterprise
12.1 State of PlayAsIrelandandtheworldaimforaclimateneutraleconomyby2050,thetransitiontolowcarbonhasbecomeadefiningforceforbusiness.Buildingsustainable,low-carbon,businessesisbecomingincreasinglyimperative,notonlyfromasocialandenvironmentalperspective,butalsofromamarket-competitiveandfinancialone.Businessmodelswhicharesustainableandfocusedondecarbonisationarecrucialtolong-termresilience.Equally,companiesandsectorsthatfailtodecarbonisewillbecomeincreasinglyuncompetitive.Thishasthepotentialtohavefarreachingnegativeimpactsfortheeconomy,includinglockingusintoaredundantfossil-fuelbasedeconomicmodel.Asasmallopeneconomy,weneedtheenterprisesectortoberesilientandcompetitiveininternationalmarkets.
Enterprisewillplayapivotalroleinreducingouremissionsby51%by2030,andinIrelandbecomingaclimateneutralandresilienteconomybynolaterthan2050.Itinfluencesthewayscarceresourcesaremanagedalongsupplychains,fromrawmaterialstotheconsumptionoffinalproductsandthedisposalofwaste.Itconstructsandusesalargeshareofourbuildingstockandmanagessignificanttransportflows.However,emissionsfromenterpriseinthegreenhousegasinventoryincludeonlythoseassociatedwithproductionprocesses,i.e.manufacturingcombustion,industrialprocessesandF-gases.In2018,thesewere7.9MtCO2eq.,or12.7%ofIreland’stotalemissions,whichislessthantheEUaverageof21.1%.Ofthistotal,5.6MtCO2eq.,or71%fallwithintheEUEmissionsTradingSystem(ETS)(emissionsfrombuildings,transportandwastearenotincluded).
Thebiggestshareofenterpriseemissionscomesfromasmallnumberoflargecompaniesinthemanufacturingsector,mostlyinalumina,foodprocessing,beveragesandcement.Thesemanufacturers(comprising64separateinstallations)arecoveredbytheEUETS.EmissionsfromenterprisethatfalloutsidetheEUETSarehighlydiverse,withalargeproportionarisingfromSmallandMediumEnterprises(SMEs),includingthoseworkingwithindustrialgases(alsoknownasfluorinatedorF-Gases).Thesearegaseswithhighglobalwarmingpotential,whichareusedinrefrigeration,airconditioningandsemiconductormanufacturing.AccordingtotheCentralStatisticsOffice,thepopulationofenterprisesinIrelandwasover270,000in2018,withSMEsaccountingfor99.8%ofthetotal.
Table 12.1 – Enterprise GHG Emissions, 2018
ETS/Non-ETS Enterprise Emissions CO2eq.
Share of Total GHG Emissions
Enterprise Emissions CO2eq. per person
ETS 5.6Mt 9.0% 1�1 tNon-ETS 2.3Mt 3.7% 0�5 tTotal 7.9 Mt 12.7% 1.6 t
Emissionsintheenterprisesectorfelldramatically(byonethird)between2005and2011asaresultoftheeconomicrecession,buthavesincereboundedbyoveraquarter,demonstratinghowstronglycorrelatedindustryemissionsstillarewitheconomicactivity.
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Table 12.2 – Trends in Enterprise GHG Emissions
Timeframe ETS/Non-ETS Percentage Change Absolute Change, CO2 eq.
2005-11
ETS -41.1% -2.7Mt
Non-ETS -19% 0.6Mt
Total -34.6% -3.3 Mt
2011-18
ETS 44.7% 1.7Mt
Non-ETS -0.4% -0.01Mt
Total 28.4% 1.8 Mt
ComparedtootherEUMemberStates,Ireland’scarbonintensityinthesector,at1.6MtCO2eq� per person,isonlyslightlybelowtheEUaverage,despitethesectoraccountingforasmallershareoftotalemissionsrelativetootherEUcountries.
Table 12.3 – Enterprise GHG Emissions International Comparisons, 2018
Ireland Denmark Austria Finland EU 27
ShareofTotalGHG 12.7% 12.5% 33.4% 22.5% 21.2%
Emissions,CO2eq./person 1�6 t 1�0 t 3�0 t 2�3 t 1�8 t
ChangeSince2005 -16.0% -26.7% -2.7% -30.2% -20.0%
AsectoralbreakdownofindustryemissionsisshowninFigure12.1,indicatingthatmanufacturingcombustionandprocessemissionsfromthemineralindustry(primarilycementmanufacturing)accountforthemostsignificantshareofemissionsinthissector.
Figure 12.1 – Sectoral Disaggregation of Enterprise Emissions
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Figure 12.1 – Sectoral Disaggregation of Enterprise Emissions
While the recovery in enterprise activity since 2011 has seen some switching of the sector’s energy requirements from fossil fuels to renewable energy, the link between economic growth and emissions has still not been broken. The EU “Fit for 55” package proposes that emissions from the current EU ETS sectors (including the extension to maritime transport) be reduced by 61% by 2030, relative to 2005 levels. This represents an increase of 18 percentage points compared to the current -43% contribution from the ETS to the EU's climate target. If enterprise is to contribute to our climate objectives, and particularly for the Irish ETS sector to meet the proposed new EU ETS target, a dramatic turnaround is required from the sector’s recent trend of a 44.7% increase in emissions between 2011 and 2018. In addition, reducing the sector’s buildings and transport emissions will take leadership at enterprise level. A large proportion of buildings within the sector have a poor Building Energy Rating (BER), with a low level of renewables penetration, while transport is currently 97% dependent on fossil fuels.19 Specific actions to target emissions from space and water heating in commercial buildings, and from transport, are included in the built environment and transport chapters respectively. The electrification of manufacturing and industrial processes, and enterprise policy related to high-demand sectors, such as data centres, will be aligned and consistent with the renewable energy and carbon abatement targets in the electricity sector.
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Whiletherecoveryinenterpriseactivitysince2011hasseensomeswitchingofthesector’senergyrequirementsfromfossilfuelstorenewableenergy,thelinkbetweeneconomicgrowthandemissionshasstillnotbeenbroken.
TheEU“Fitfor55”packageproposesthatemissionsfromthecurrentEUETSsectors(includingtheextensiontomaritimetransport)bereducedby61%by2030,relativeto2005levels.Thisrepresentsanincreaseof18percentagepointscomparedtothecurrent-43%contributionfromtheETStotheEU’sclimatetarget.Ifenterpriseistocontributetoourclimateobjectives,andparticularlyfortheIrishETSsectortomeettheproposednewEUETStarget,adramaticturnaroundisrequiredfromthesector’srecenttrendofa44.7%increaseinemissionsbetween2011and2018.
Inaddition,reducingthesector’sbuildingsandtransportemissionswilltakeleadershipatenterpriselevel.AlargeproportionofbuildingswithinthesectorhaveapoorBuildingEnergyRating(BER),withalowlevelofrenewablespenetration,whiletransportiscurrently97%dependentonfossilfuels.20
Specificactionstotargetemissionsfromspaceandwaterheatingincommercialbuildings,andfromtransport,areincludedinthebuiltenvironmentandtransportchaptersrespectively.Theelectrificationofmanufacturingandindustrialprocesses,andenterprisepolicyrelatedtohigh-demandsectors,suchasdatacentres,willbealignedandconsistentwiththerenewableenergyandcarbonabatementtargetsin the electricity sector�
Whileitisencouragingtoseemajorcompaniescommittingtosignificantemissionsreduction21 by 2030 andbeyond,thislevelofambitionmustbecomethenormacrosstheenterprisesector.Companiesandsectorsthatfailtodecarbonisetheiractivityacrosstheirentirebusinessmodelwillbecomeincreasinglyuncompetitive,withpotentialfar-reachingnegativeimpactsfortheeconomy–includingunderminingourlong-termsustainablecompetitivenessandlockingusintoaredundantfossil-fuelbasedeconomicmodel.However,embracingthetransitionwillsupportfurtherjobcreationthroughthedevelopmentofnewandemergingsectors.Thegreeneconomy,includingtheretrofittingandrenewableenergysector,thecirculareconomy,cleanmobility,greenandblueinfrastructure,sustainableagricultureandthebioeconomywillcreatehighqualityemploymentopportunitiesthatwillbeasourceofsignificantemploymentgrowthoverthecomingdecades.Foritspart,theIDAwillseektoattractmultinationalcorporationsbasedoverseastoinvestinthegreeneconomyinIreland,targetingthoseactiveindevelopingdecarbonisationinfrastructureandtechnologies.BothEIandtheIDAwillalsosupportclientstoexpandtheirsustainabilitycapabilityandcreatenewrolesinsustainablesupplychainmanagement,procurement,environmentalandenergymanagement,analytics,greenfinance,andcircular economy enablement�
Itisclearthatpolicymeasurestodatewillnotachievethelevelofdecarbonisationnowrequiredintheindustrysector,whichisareductionfrom7.9MtCO2eq.in2018toapproximately5MtCO2eq� in 2030�
Table 12.4 – Required Level of Decarbonisation in Enterprise
2018 Emissions 2030 Required Emissions Based on CAP 20217.9Mt ~5Mt
AnalysisofapotentialemissionsreductionpathwaythatwouldenableIrelandtoreducetotalemissionsfromenterpriseto5MtCO2eq.indicatestherearesixadditionalmeasuresthatcouldfurtherreduceemissions in the sector�
20 Page22-https://www.seai.ie/publications/Energy-in-Ireland-2019-.pdf21 https://sciencebasedtargets.org/companies-taking-action
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Table 12.5 – Potential Metrics to Deliver Further Abatement in Enterprise
Key Metrics KPI 2030 Additional Abatement Impact, MtCO2eq.
Core MeasuresAccelerateuptakeofcarbon-neutralheatinginindustry
~50-60%shareofcarbonneutralheatingintotalfueldemand22 ~0.4
Phase-outhigh-GWPF-gases -80%emissionsversus2014 ~0.5
Decrease embodied carbon in constructionmaterials
10%decreaseinembodiedcarboninconstructionmaterials
~0.3
Enableelectrificationofhigh-temperatureheatgeneration
100%ofsteamproductionfromgas-electrichybridheating
~0.5
Further MeasuresFurtherdecreaseembodiedcarboninconstructionmaterials
~10-60%decreaseinembodiedcarboninconstructionmaterials
0�5 -1�9
DeployCarbonCaptureandStorage(CCS)
2outof4cement/limeplantsretrofitCCS
~1.5
12.2 Targets
To meet the required level of emissions reduction, by 2030 we will: • ReduceIreland’senterpriseemissionsbyapproximately40%,from7.9MtCO2eq.in2018to~5MtCO2eq� in 2030
• Committocoremeasuresdeliveringemissionsreductionsof~1.7MtCO2eq� in 2030
• Undertakeaprogrammeofworktorefinethepotentialandsettargets/pathwaysforfurthermeasurestodeliver~2-3.4MtCO2eq� in 2030
Irishenterprisewillberequiredtoimplementadetailedagendaoftransitionandchangeifitistoensurethatoursectorsareclimateresilientandcanremaincompetitiveinadecarbonisingworld.Thisagendawillinclude:
• Improvingtheenergyefficiencyofprocesses,buildingsandtransport• Replacingfossilfuelswithrenewablesintheirprocesses,buildingsandtransport• Improvingthewayinwhichresourcesareusedintheirsupplychaintoreduceemissionsand
conform to circular economy principles• Beinginnovativeacrossproduction,distribution,andmarketingtorealisetheopportunitiesarising• Developingnewskillsandtechniquesasnecessary• Developingmetricsontheclimateandenvironmentalimpactofactivities,whichwillbecomemorewidelyexpectedinthemarketplace
22 Excludingmeasurestodecreaseembodiedcarboninconstructionmaterials;andenableelectrificationofhigh-temperatureheatgeneration
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Whilesomeoftherequiredmeasurescurrentlyhavemixedornegativebusinesscases,itiscriticaltobearinmindthatchangeisinevitable.Giventhestrongglobalcommitmenttonet-zeroandthe“racetothetop”,maintainingthestatusquoisnotanoption.Failuretoactcarriesarealriskofbeingleftbehind,producingoutdatedproductsforchangingmarketsandconsumerdemands.
Leadershipfromwithinenterprisemustbesupportedbynational-levelclimateactiontodrivechangeinkeysectorsatpace,inordertoprotectandexpandourindustrialcompetitivenessandprosperity.Thisincludesappropriatepolicysupport,includingensuringalevelplayingfieldandbridgingcostgaps;incentivisingtherequiredsystem-levelchanges,suchasmakingsuregreenpowerisavailableformanufacturing;andsupportingcollaborativemulti-stakeholderapproaches,forinstanceinpoolingdemandtogetcriticalmassforCarbonCaptureandStorage(CCS).
Actionbycentralgovernmentmustbereinforcedbythewiderpublicservice.Theenterpriseagencies,havingregardtotheirstatutorymandates,mustprioritisedecarbonisationaspartoftheirstrategies.Itisalsoimportantthatallenterprisesectorassociationsandlocalchambersrecogniseandsupporttheirmemberssothatnetworksquicklyformtoemulatecompaniesandsectorspioneeringindecarbonising.Publicbodiesshouldformpartnershipswithsuchstakeholderssothatsharedendeavourcandelivermorequickly.Weneedtoseetheemergenceofclusterswithinwhichsectors’effortscanbeaggregatedand scaled�
12.3 Measures to Deliver TargetsTheglobaltradingenvironmentishighlycompetitive.Tosucceed,companiesneedtothinkabouthowtheirsectorwilldevelopinthenextfivetotenyears.Environmentalsustainabilityandresponsibleproductionwillbekeydriversofbusinesssuccessintothefuture.NowisthetimeforallIrishbusinessestoprepareforthatfuture.Businessesthattakeactiontomitigateagainsttherisksofclimatechangeandthosewithenvironmentalcredentialrequirementscanpotentiallybenefitfromincreasedaccesstoenvironmentallyconsciouscustomers,marketsandworkers,greenequityandloanfunding,andsupportfromlocalcommunities.Climateactionpresentsopportunitiesforexistingsupplychainsandnewbusinessformations.Butitalsocreatestheneedtocomplywithenhancedregulations,aswellasthedemandsofinvestorsandcustomersforcrediblesustainabilityimpactandreporting.
WewilllaunchanonlineClimate Toolkit 4 Businesstoassistallbusinesses,andsmallandmicro-enterprises,inparticular,tomakeagoodstartinunderstandingandadaptingtheiractivitiestoassistinclimatemitigation.Thekitwillincludeasimplecarboncalculatorandwillgenerateatailoredcompanyclimateactionplanforeachbusiness.
Largerbusinessesandhighemitterswillcontinuetorequireenergyaudits,andundertheproposedEUCorporateSustainabilityReportingDirectivewillbemandatedtoprovidepublicreportingoftheirenvironmental impact�
12.3.1 Emissions Trading System• ThekeyindustrymeasureaddressinggreenhousegasesistheEUETS,whichcovers71%ofemissionsfromthissector,includingbothcombustionandprocess-relatedemissions.Astrongpricesignal,aspartofareformedEUETS,includingprogressivelymorerestrictiverulesonhowmanyallowanceswillbeavailablewithintheEUETS,isexpectedtodrivedecarbonisationoverthecomingdecadebyincreasingthecosttofirmsintheEUETSofdoingnothingtoreducetheiremissions.WearecommittedtocontinuingtoworkproactivelywithourEUpartners,includingconsideringthefurtherreformsproposedunderthe“Fitfor55”packageorsupplementarymeasures,toensurethattheEUETScaneffectivelydeliverreductionsingreenhousegasemissions,whileaddressingthechallengesfacedbysectorsmostexposedtointernationalcompetition.
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12.3.2 Carbon Pricing• EnterprisesectorsoutsidetheEUETSwillbeincentivisedbythegeneralcarbonpricetrajectorysetbyGovernmentinsuccessivebudgetswhichisnowsetat€41pertCO2andislegallyrequiredtoreach€100pertCO2 by2030,butwillalsobeexposedtocarbonpricemovementswithintheEUETSincircumstanceswheresuchpricescanbepassedonbyETSsectors.Asweprogressivelydecarboniseoureconomy,policymustpreventalargegapemergingbetweencarbonpricingintheEUETSandnon-ETSsectorstoensureanongoingstrongsignalingeffectfordecarbonisation.
12.3.3 SEAI Initiatives• TheLargeIndustryEnergyNetwork(LIEN),anetworkof199ofIreland’slargestenergyusers(someofwhichareintheEUETS),togetherconsume21%oftheentireenergydemandinIreland.LIENmembersarecompanieswithanannualenergyspendof€1millionormore.ThesearesupportedbySEAIthroughmentoring,energymanagementsystems,trainingandnetworking,andcompliancewithlegalrequirements.ThroughSEAI,wewillcontinuetosupportandpromotedecarbonisationbythemembersofthisnetwork.
• Investmentsbyenterprisesinenergyefficiencyincreasetheircompetitiveness,protecttheenvironment,boosttheirreputationandelevatetheirbranding.ThroughSEAI,wewillcontinuetosupportenergyaudits,providefreetrainingforbusinessesandprovidefinancialsupportstothosewhowanttoinvestinenergyefficiency,particularlySMEs.
• SEAIwillcontinuetoexpandtheExcellenceinEnergyEfficientDesign(EXEED)Programmetodelivernewbestpracticesindesign,construction,andcommissioningprocessesfornewinvestmentsandupgradestoexistingassets,withthefocusnowongreenhousegasemissionsreductions.
• ThroughtheGovernment-fundedSupportSchemeforRenewableHeat,SEAIwillcontinuetosupporttheadoptionofrenewableheatingsystemsbycommercialandindustrialheatusersnotcoveredbytheEUETS.
12.3.4 Regulation• EmissionsfromindustrialgasesandrefrigerantsarecontrolledbyEURegulation(No.51/2014)
on Fluorinated Greenhouse Gases, whichtargetsa67%reductioninemissionsfromthesesourcesby2030comparedwith2014levels.FollowingtheexampleofotherEUMemberStates,wewillcommittobringingforwardadditionalmeasurestoreduceF-gasemissionsby80%by2030relativeto2014.
12.3.5 Ireland’s National Recovery and Resilience Plan• OurNationalRecoveryandResiliencePlanprioritisesadvancingthegreentransition.Wewill:
• Acceleratedecarbonisationoftheenterprisesector,throughprovidingsupportsforIrishSMEsandexporterstoaddresstheiremissions,andbyinvestingincarbonmeasurementandabatementtechnologiesformanufacturingcompanies
• Rollout,throughScienceFoundationIreland,aNationalGrandChallengesProgrammeofmission-orientatedfunding
12.3.6 Enterprise Agency Leadership• Existingenterpriseagencyprogrammes,suchasEI’sGreen Offer and IDA’s Go Green Offer,already encourageclientcompaniestoincorporatesustainablepracticesintotherunningoftheirbusiness,leadingtobetterenvironmentalperformance;improvedresourceefficiency;directcostsavings;andimprovedaccesstocustomerswhoareincreasinglydemandingmoreenvironmentallyfriendlyproducts and services�
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• EIandtheIDAwilluseothertransformationalsupportssuchastraining,andResearch,DevelopmentandInnovation(RDI)grantprogrammestoenableclientcompaniesimprovetheirsustainabilitycapability.Innovationwillplayanevengreaterroleintheevolutionoffirm-levelproductivityovertime.Throughspecificandtargetedactions,investmentwillbeleveragedinRDI,suchasintechnologycentresandappliedresearchprogrammes,toassistinthelowcarbontransition.
• Decarbonisationofenterpriseisaboutfarmorethansupportingtheintroductionofenergyefficiencymeasures.Itisfundamentallyaboutdecarbonisingprocesseswhichareadoptedbyindustrytoproducegoodsandservices.EIandtheIDAwillworktofurtherintegrateclimatechangeconsiderationsintotheiroverallstrategiesandthespecificsupportsprovidedtoclientfirmsoverthecomingperiodofradicaltransitionby:
• Aligninggrantfundingandsupportswithprogresstowardsachievingouremissionsreductionstargetsforenterprise,includingamendingprojectappraisalmethods
• Enablingthepreparationofdetaileddecarbonisationimplementationstrategiesbyclientcompaniesinthehighestemittingenterprisesectors
• WorkingcloselywiththeSEAIandthird-partyenergyproviderstoencourageclientcompaniestoplantodecarbonisenotonlytheirScope1(fuelcombustion;companyvehicles;andfugitiveemissions)andScope2(purchasedelectricity,heatandsteam),butalsoallotherScope3indirectemissionsthatoccurinacompany’svaluechain(purchasedgoodsandservices;businesstravel;employeecommuting;wastedisposal;useofsoldproducts;transportationanddistribution–up-anddownstream;investments;andleasedassetsandfranchises)
• EIadministeringtheClimateEnterpriseActionFundtohelpcompaniesreduceemissionsandembedsustainabilityinhowtheywork
• EIimplementingthe€100millionCapitalInvestmentFundfortheAgri-FoodSectorfortheProcessingandMarketingofAgriculturalProducts
• EIpromotingafocusonemissionsreductionandsustainabilityundertheSeedandVentureCapitalScheme
• AllrelevantStateagencies(suchasEI,theIDA,LEOs,BordBia,Teagasc,andBordFáilte),inpartnershipwithSEAI,developingdecarbonisationprogrammesandsectoralnetworkstodrivethisagendainkeysectors
12.3.7 Decarbonising Heating in Industry• Alargeamountoftheemissionsfromtheenterprisesectorarisefromsatisfyingthedemandforheat.Toreducetheseemissions,wemustbothreducethisdemandandreplacefossilfuelswithrenewableenergysources.Wewillbringforwardmeasurestosupporttheentiresector,aswellasspecificallyfocusingonhigh-emittingindustries.Wewill:
• Introducearenewableheatobligationtoensureacertainproportionofenergyforheatcomesfromrenewablesources
• Assessthefeasibilityofusingthegasgridforrenewablegases• Acceleratetheuptakeofcarbon-neutrallow-temperatureheatinginthefoodandbeverages
sector• Enabletheelectrificationofhigh-temperatureheatgenerationbydeployinghybridgas-electricheatinginalumina
• Undertakeaprogrammeofworktorefinethepotentialtodecreaseembodiedcarboninconstructionmaterials,bydisplacingbetween10%and60%oftheirembodiedcarbon,withaviewtosettingtargetsandpathways–e.g.theuseoflow-carboncementblends,orcross-laminatedtimberasalternativeconstructionmaterials
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12.3.8 Carbon Capture and Storage• Somesectors,suchascementandlime,canonlyfullydecarbonisewithCCS.However,pre-2030adoptionofCCSisachallengingandhigh-costsolutionasitrequiresdeployingextensiveinfrastructureinlessthantenyears.WewillundertakeaprogrammeofworktoassessthepotentialofpickingtwositeswiththebestCCSopportunitieswithaviewtosettingapathwaytoitsdeployment�
12.3.9 Enterprise Leadership in the Wider Community• Enterprisescanplayaprominentroleasleadersbeyondtheirimmediatebusinessactivities,including:
• ParticipatinginwidercommunityinitiativessuchasSustainableEnergyCommunitiesandBetterEnergyCommunities
• SupportingbusinessnetworksofSMEswhereexperiencecouldbeshared,forexamplethroughlocal chambers of commerce
• Supportingemployeestoactivelycontributetodecarbonisationinworkandtheirwiderlives• Workingwithindustry-ledinitiatives,suchasBusinessintheCommunityIreland,tosupportdecarbonisationprogrammes,suchaslowcarbonpledges
Box 12.1 Cement and Construction Sector Evolution
Constructionofnewhomes,officesandinfrastructurehassignificantenvironmentalimpacts,andinparticulartheproductionofclinkertomakecement–usedinconcrete–isextremelycarbon-intensive.Nonetheless,oursocietyneedsthisactivitytodeliveronourhousing,health,education,transportandeconomicneeds.Anevolutioninboththecementandconstructionsectorsis,therefore,requiredaswedecarboniseoureconomyandsociety.Manyofthemeasuresoutlinedinthisplanaredesignedtofacilitatethisevolution.Keyelementsinclude:
• Facilitatingtheuseofalternativefuelsandnon-recyclablewastesincementkilns
• Prioritisinglonger-lifeandlower-carboncementblendsinpubliccontracts(GreenPublicProcurement)andpromotingtheirusebytheprivatesectorthroughawarenessraising,standardsandrequirementsforconstructionprojectcarbonlife-cycleanalysis
• Facilitatingandpromotingthedevelopmentanduseofalternativeconstructionmaterials,suchastimber,andtechniquessuchaspre-fabrication,usingembeddedcarbonandperformance-based approach
• Extensiveretrofittingprogrammeandprioritisationofbrownfieldandcompactdevelopment
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12.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
126 Developanonlineclimateactionportalforenterpriseswithrelevanttoolsandcontenttoincludeacarboncalculator,templateactionplanandsignpostingtorelevantagencyprogrammes
127 Developnetworksinkeyindustrysectorsandaroadmapofactionstosupportdecarbonisationoflargeindustry
128 ContinuetodevelopandsupportitsOffshoreWindIndustryClusterwhichcomprises over 50 Irish supply chain companies
129 AssistSEAIthroughregistrationofinsulationinstallersforretrofitofbuildings
130 Adaptnationalstructuraldesigncodesforphysicalinfrastructuretotakeaccountofchangesinclimate
131 PublishaStandardrecommendationforthedesign,installationandcommissioningofsolarPVpanelsinnewandexistingdwellings
132 Adopttheinternationaltechnicalstandard-"ISOTS14092:2020”-toprovideguidanceforlocalgovernmentsandcommunitiesinplanningforadaptationforclimatechange
133 Defineanddevelopinspectionmethodologyandregulationsforcomplianceofelectricchargingmetersforchargingelectricvehicles
134 OfferthecertificationschemetoallowenterprisestoquantifyandreporttheirGreenhouseGasEmissions–“ISO14064:2019"
135 DevelopacertificationschemeforSR54EnergyEfficientRetrofitofDwellings
136 UpdatetheEco-designRegulationsforenergyefficientproducts
137 NegotiateandimplementtherevisedEUCorporateSustainabilityReportingDirectivewhichincludesenvironmentalinformation
138 PromoteafocusonCO2reduction/sustainabilitycredentialsacrossventurecapitalfundsdeliveredundertheEISeed&VentureCapitalprogramme.
139 DelivertheprogrammestodecarboniseenterpriseoutlinedintheNDPandResilienceandRecoveryFundSubmissions
140 PromotethepotentialofinnovationandappliedresearchinArtificialIntelligence,MachineLearningandDataAnalyticstosolvecomplexchallengesrelatedtosustainabilityandthelowcarbontransition
141 BuildaPilotTechnologyGatewayintheNorthEastRegiontoharnesstheexpertiseofDundalkIoTintermsofEnergyEfficientandEnergyOptimisationofproducts
142 PerformresearchandencourageIrishresearcherstocontributetotheEUGreenDealresearchprogrammewithrespecttometrologicalassistanceforthedevelopmentofcleanenergytechnologies
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Action Number Action
143 PromotethebenefitsofadaptingtolowcarbontechnologiesandprocessestoSMEsthroughanewLowCarbonBusinessAwardwithintheexistingSeedcornInvestorReadinessCompetition
144 Incorporatemeasurementofclimate-relatedimpactsintocapitalgrantdecisionsbytheenterpriseagencies
145 EnterpriseIrelandtodevelopandpublishtheirnewcorporatestrategy2022-2025,includingafocusonclimateactionandsustainability
146 AlignEnterpriseIrelandandIDAgrantfundingandsupportswithprogresstowardsachievingthecarbonabatementtargetsforenterprise,ensuringresilienceinthetransitiontoalowcarboneconomy
147 PutinplacetrainingandeducationalprogrammesonsustainabilityandclimateactionforIDAexecutives
148 ExperimentwithinitiativestoincorporatenewcontentormodulesrelatingtoclimateandsustainabilityintoClientManagementDevelopmentprogrammes.
149 DevelopastrategyspecifyingoptimumsustainabilitysolutionsandadditionalcarbonabatementopportunitiesinIDA’spropertyportfolio
150 IntroducepilotbiodiversitymeasuresinoneofIDA’sBusinessParks
151 Carryoutresearchtoinformthedevelopmentofoptions,policiesandmeasurestodecarbonisetheheatingandcoolingsectorsto2050
152 Enablethepreparationofdetailedfirm-leveldecarbonisationimplementationstrategiesbylargefood&drinkbusinesses
153 Implementthe€100mCapitalInvestmentFundforAgri-FoodSectorfortheProcessingandMarketingofAgriculturalProducts
154 Developcertificationofrecycledconstructionproductsscheme
155 PublishanIrishStandardtoenableorganisationsapplyasystematicapproachtoEnergyEfficientDesignthroughoutthevariousstepsofdesign,constructionandcommissioningofinvestmentprojects
156 DevelopandpublishtheIntertradeIreland2022BusinessPlan,toincludeapriorityof‘AdaptiontothelowcarbonEconomy’
157 ContinuedevelopmentofthesecondphaseoftheDairyProcessingTechnologyCentretodeveloptechnologiesandapproachesthatwilldeliverreducedcarbonandgreenhousegasfootprintsinthedairyindustry
158 Enablethepreparationofdetaileddecarbonisationimplementationstrategiesbyclientcompaniesinhigh-impactsectorssuchasPharmaceuticals,Cement,Construction,Engineeringandothermanufacturing
159 DevelopCorporateClimateActionPlanswithkeyclientsfortheirIrishsites
160 Identifyandengageclientcompaniesusingthemostemissions-intensivefuels(e.g.,coal,petcokeandfueloils)andsupportthemtodevelopproportionatedecarbonisationplanstoremaincompetitive
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Action Number Action
161 Engagewiththealuminamanufacturingsectorandkeystakeholderstoprogressmeasurestosupporttheachievementoftheidentifiedpotentialabatement.
162 Supportbusinessestodecarbonisethroughtheprovisionofcapitalsupportprogrammestoenhanceenergyefficiency
163 Developrenewablegasinthegasgrid
164 Developthepipelineofhighpotentialstart-upswithlow-carbonandsustainablesolutions
165 ContinuedevelopmentofthesecondphaseoftheIrishManufacturingResearchTechnologyCentreasahubofsustainablemanufacturingexpertise
166 Considerintroducingarenewableenergyobligationintheheatsector
167 Undertakeresearchintobusinessengagementwiththelowcarbonagenda,includingsupportneedstoinvestandcommittmenttolowcarbonadapatations
168 Proactivelyengagewithopportunitiestosupportbusinessclusterandnetworkdevelopmentwhichwillsupporttheall-islandcirculareconomy
169 Win ten environmental sustainability investments in 2021
170 Facilitatelicencingoffuel-switchinginindustrialprocesses
171 Introducenewlegislationtoreformthejudicialreviewprocess,incompliancewithEUlegalrequirements,sothatreformscomeintoeffectontheestablishmentofanewDivisionoftheHighCourtdealingwithplanningandenvironmental issues
172 Progresssustainabilitythroughbusinessplanning
173 Promoteandmarketsustainabletourism
174 ImplementÚdarásnaGaeltachta’sGaeltachtGhlas(GreenGaeltacht)project
175 PromotesustainablepracticesintheScreenProductionindustry
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Built Environment 13
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13. Built Environment
13.1 State of PlayOneofthegreatestdecarbonisationchallengesfacingIrelandrelateshowwecandecarboniseourexistingstockofresidentialandcommercialbuildings(primarilythoseconstructedpre-2006),sothattheyrequirelessenergy,anddrawonfossilfuelstothelowestextentpossible.
Thetransitiontoanenergyefficientandfossilfuelfreebuiltenvironmentwillprovideextensivesocial,economicandenvironmentalbenefitsintheshort-aswellaslong-term.Thisprocesswillbringaboutreducedenergycostsandmorecomfortable,healthier,safer,andlesscostlytoheatandcool,homesenhancingourlivingstandards,improvingourairqualityandhelpingtoaddressenergypoverty.ItwillalsoimproveenergysecurityandreduceIreland’sdependenceonfossilfuelsinadditiontoothersignificantco-benefitsfortheenvironmentandsocio-economicdevelopment.
Table 13.1 – Built Environment GHG Emissions, 201823
Sub-Sector Built Environment Emissions CO2eq.
Share of Total GHG Emissions
Built Environment Emissions CO2eq. per person
Residential 7.0Mt 11.2% 1�4 tCommercial 0.9Mt 1.4% 0�2 tTotal 7.9 Mt 12.7% 1.6 t
Wehavealreadyhadsomesuccessindecarbonisingourbuildingswithemissionsfallingby8.6%between2005and2011,andfallingagainby6%between2011and2018.Thisdecreaseoccurreddespiteanoverallincreaseinconstructionofbuildingsinthatperiod,andtheexceptionallylowtemperatures experienced in early 2018�
Thereductionreflectscontinuedimprovementtobuildingregulationsandstandards,whichhaveadvancedtheenergyandcarbonemissionsperformanceofourbuildingsthrough:theintroductionofNZEBperformancerequirements;theuseofmoreenergyefficientandrenewable,lowcarbontechnologiesanddecarbonisedheatingsourcesinourbuildings;thereplacementofcoalandpeatassourcesofheatingwithoilandgas;aswellastheimprovedefficiencyofourpre-existingbuildingstocksupportedbyGovernmentschemesthroughtheSustainableEnergyAuthorityofIreland(SEAI)andLocalAuthorities;andminimumperformancerequirementsforbuildingsundergoingmajorrenovation.
Thedecreaseinemissionsfromthecommercialsectorintheperiod2005-2011,andsubsequentincreaseintheperiod2011-2018,isareflectionoftheeconomicconditionsinthoseperiods.
Emissionsfromthebuiltenvironmentaccountedfor12.7%ofIreland’sgreenhousegasesin2018,anincreasefrom11.7%in2017.Thisincreaseismainlyduetothelowertemperaturesexperiencedinspring2018,whichledtomoreenergybeingusedtoheatbuildings.
23 https://www.epa.ie/publications/monitoring--assessment/climate-change/air-emissions/greenhouse-gas-emissions-final-2019.php
Built Environment
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DatapublishedbytheEPAindicatesthatemissionsfromtheresidentialsectorin2020increased9%from2019levels,duetotheincreaseinhomeworkingandrestrictionsonmovementthatforcedmorepeopletospendmoretimeathome.24Covid-19hasalsoplacedafocusontheneedtomaximiseventilationopportunitiesinourhomesandotherbuildings.Therefore,itisimportantthatwhenweimprovetheenergyefficiencyofourbuildings,weconsideritinaholisticway,andalsotakeaccountofriskssuchasfiresafety,ventilationanddurability.Thiswillimproveourlivingstandardsbymakingourbuildingsmorecomfortable,healthier,safer,andlesscostlytoheat.
Wehavealreadycommittedtoretrofitting500,000homestoBERB2standardby2030,andinstalling600,000renewableenergyheatingsourcesinbothnewandexistingresidentialbuildings.
Progressalsocontinuestobemadeontheinstallationofheatpumps.BasedonananalysisoftheBERdatabase,itisestimatedthat85%ofnewdwellingsin2020,builttoTechnicalGuidanceDocumentL2019,installedheatpumpsand,since2015,51%ofallnewdwellingsuseheatpumpsastheirmainheatingsystem.Oilboilerinstallationinnewdwellingshasdroppedfrom35%intheperiod2000-2004to4%intheperiod2015-2020.25
Table 13.2 –Trends in Built Environment GHG Emissions
Percentage Change Absolute Change, CO2 eq.2005-11Residential Commercial
-7.5% -17.5%
-0.6Mt -0.2Mt
Total - 8.6% -0.8 Mt2011-18Residential Commercial
-7.2% 4.8%
-0.55Mt 0.04Mt
Total - 6% - 0.5 Mt
Notwithstandingprogresstodate,particularlyintheresidentialsector,Ireland’semissionsreductionfrombuildingssince2005iswellbelowthatofcountriessuchasDenmark,AustriaandFinland,andourassociatedCO2eq.perpersonisgreater.HouseholdsaccountforaroundaquarteroftheenergyusedinIrelandandarealsoresponsibleforaquarteroftheenergy-relatedCO2 emissions�
Furthermore,Irishhomesuse7%moreenergythantheEUaverage,andemitalmost60%moreCO2 thantheaverageEUhome.26Currently,ourbuildingsare70%reliantonfossilfuels,andover80%ofourhomesandotherbuildingsassessedfortheirBERhavearatingofCorworse.
Table 13.3 – Built Environment GHG Emissions International Comparisons, 2018 27
Ireland Denmark Austria Finland EU 27Share of Total GHG 12.7% 5.6% 10% 4.5% 12.1%Emissions, CO2eq. per person 1�6 t 0�5 t 0�9 t 0�5 t 1�0 tChange Since 2005 -14.1% -45.2% -37.9% -37.3% -21.4%
24 https://www.epa.ie/publications/monitoring--assessment/climate-change/air-emissions/EPA-Irelands-Greenhouse-Gas-Emissions-Projections-report_2020-2040.pdf
25 https://www.cso.ie/en/releasesandpublications/er/dber/domesticbuildingenergyratingsquarter12021/26 SEAI(2018),EnergyintheResidentialSector2018Report27 EEAAnnualEuropeanUniongreenhousegasinventory1990–2018andinventoryreport2020
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Inordertodeliverthemostefficientpathwaytoreachouroverallnationalemissionsreductiontargetsfor2030,wemustreduceourbuiltenvironmentsectoremissionsto4-5MtCO2eq� by 2030�
Thiswillrequiretheintroductionofarangeoffurthermeasures,inadditiontothosealreadycommittedtointhe2019ClimateActionPlan,including:
• Improvingthefabricandenergyefficiencyofourexistingbuildings• Rollingoutzero-carbonheatingsolutions,predominantlyheatpumpsanddistrictheatingnetworks• Planningforthefullphaseoutoffossilfuelsinbuildingsby2050• Progressivestrengtheningofbuildingstandardsforalltypesofbuildings• Promotingtheuseoflowercarbonalternativesinconstruction• Promotingbehaviouralchangeinhowhouseholdsuseenergy
Table 13.4 – Required Level of Decarbonisation in the Built Environment
Sub-sector 2018 Emissions 2030 Required Emissions Based on CAP 2021
Residential 7Mt 3.5-4.5MtCommercial 0.9Mt 0.5MtTotal 7.9 Mt 4-5 Mt
Table 13.5 - Potential Metrics to Deliver Further Abatement in the Built Environment
Key Metrics KPI 2030 Additional Abatement Impact, MtCO2eq.
Core MeasuresStrengthenNZEBrequirementsfornewdwellingstoeffectivelybanfossilfuelsinnewhomes
+280,000 newhomeswithout fossil heat1
~0.2
Ramp-upzeroemissionsheatincommercialbuildings
50,000buildings ~0.3–0.4
Increasetargetsforroll-outofdistrictheating
Upto2.7TWhofdistrictheatsupplied
~0.3
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13.2 Targets
To meet the required level of emissions reduction, by 2030 we will: • Effectivelyphaseouttheuseoffossilfuelsforspaceandwaterheatinginallnewbuildings
• Planningforthephaseoutoffossilfuelsinexistingbuildings
• Complete500,000residentialretrofitstoachieveaB2BER/costoptimalequivalentorcarbonequivalent
• Install600,000heatpumpsinresidentialbuildings(ofwhich400,000tobeinstalledinexistingbuildings)
• Deployzero-carbonheatingtothemeettheneedsof50,000typicalcommercialbuildings
• Deliverupto2.7TWhofdistrictheating,withtheexactleveltobeinformedbytheoutcomeoftheNationalHeatStudy
• Developthecalculationframeworkanddatabasesinordertosetperformancestandardstopromotetheconstructionoflow-carbontechnologiesonaphasedbasis
13.3 Measures to Deliver Targets
13.3.1 A New Retrofit Delivery Framework Thecommitmenttodelivertheequivalentof500,000homesretrofittedtoaBERofB2/costoptimalorcarbonequivalent,andtheinstallationof400,000heatpumpsinexistingpremises,bytheendof2030isakeyelementofourstrategytodecarbonisetheresidentialsector.Currently,almosthalfoftheIrishhousingstockhasaBERofD1orworse,andonly10%isB2orbetter.Inordertomeetthetargetsset,itwillbenecessarytobring40%ofhomesuptoaBERB2orbetterstandard,andtoimprovetheenergyratingofasignificantportionoftheremainderoftheresidentialbuildingstock.
TheGovernment’sapproachtoachievingthesetargetsisbuiltonthefollowingfourpillars:
• Drivingdemandandactivity• Financingandfundingmodels• Supplychain,skillsandstandards• Structuresandgovernance
DetailoninitiativesundereachpillarissetoutinChapter14.
13.3.2 Phasing out Fossil Fuels by 2050 in BuildingsInordertoreachnetzero,analmostcompletephaseoutoffossilfuelsinthebuildingsectorwillbeneeded.Itisimperativethatthesesignalsaregivenwithsufficientnoticesothatindustry,consumersandregulatorscanpreparefortheappropriatephasingoutoffossilfueluse,andweavoidconsumersinvestingintechnologythatwillneedtobephasedoutbeforeitseconomiclifehasbeenreached.TheSEAI’sNationalHeatStudywillprovidethedetailedpathway,theidentificationofalternativeheatingsourcesbyusetype,andtheemissionsreductionsrequired.Theprocessofphasingoutfossilfuelforheatingmustconsidertheneedsofhouseholdsinenergypoverty.
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Arangeofregulatorytools,supportsanddisincentivesareinplaceacrossvariousEuropeancountriesthatcouldbemodelledinIreland,includingretrofitprogrammessimilartothenationalretrofitprogrammesinGermany,phasingoutgasnetworksataneighbourhoodlevelintheNetherlands,widespreaddistrictheatingfromwasteheatinDenmark,andtheendingofsaleofkeroseneforheatinginUpperAustriain2035.
Wewillidentifytherequiredactionstoprogressthisobjectivein2022andthesewillbereflectedinClimateActionPlan2022.
13.3.3 Decarbonising Our Commercial Buildings Commercialbuildingsincludeoffices,retailoutlets,warehouses,andbuildingsusedbythehospitalitysector.TheSEAIestimatesthatthereareapproximately136,000commercialbuildingsinIreland,ofwhich50%areowner-occupied.Hospitalitybuildingsarethelargestuseroffossilfuelsinthissector.TheSEAI’sNationalHeatStudywillprovideinformationthatwillallowustodeveloplong-termpoliciesandsupportsforthecommercialsector.Viablesolutionsintheimmediatetermaretheretrofitofbuildings,electrificationofheatsources,andintroductionofdistrictheating.Theskillsinbuildingretrofit,andintheinstallationoflow-carbontechnologies,thatarerequiredbytheresidentialsectorareequally applicable to the commercial sector�
Measurestosupportandincentivisetheincreasedenergyefficiencyanddecarbonisationofcommercialbuildingsinclude:
• Supportingbusinessesinretrofittingtheirpremisesandmovingawayfromfossilfuel-based heatingsources
• Continuingtodevelopandimplementasuiteofservicessuchasenergyaudits,technicalsupports,trainingandadvice
• ActingontheoutcomeoftheSEAI’sNationalHeatStudy,whichwillinformthedevelopmentoftargetedfuturepoliciesandsupportsforthecommercialbuildingsector
• MaintainingaregimeofAcceleratedCapitalAllowancesforenergyefficientequipment,whichissupportingthereductionofenergyuseintheworkplace,andtheawarenessofenergyefficiencystandards in appliances and products
• Providingcapitalfundingwhich,subjecttotheavailabilityofExchequerresources,willsupportthedecarbonisationofthecommercialbuildingssector
• ImplementingarevisedEnergyEfficiencyObligationSchemefrom2022,tosupportenergyusers(financiallyorotherwise)toimplementenergysavingpracticesortocarryoutenergyupgradesontheirproperties
• BuildingontheOPW/SEAIpilotprojectfortheretrofittingoftraditional/historicbuildingstorolloutasustainedprogrammeofretrofittingforIreland’spublicsectorbuildingstock
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13.3.4 District HeatingDistrictheatingoffersthepotentialtosupplylow-andzero-carbonheattohomes,businessesandpublicbuildingsfromacentralsource.Workisunderwaytoinformthedevelopmentofdistrictheatingpolicy,includingthecompletionofthecomprehensiveassessment to support the rollout of district heatinginIreland,andthefinalisationoftheNationalHeatStudy.Inaddition,therearetwodistrictheatingprojectsindevelopmentinTallaghtandDublinCity.
Wewill:
• Establishasystemofgovernanceforthedevelopmentofdistrictheatingpolicy• ConductappropriateresearchtoinformandsupporttherolloutofdistrictheatinginIreland• Developaregulatoryframeworktoprotectconsumersandsuppliers,andtoensurethatdistrictheatingisdevelopedinastructuredway
• Ensurethatnational,regionalandlocalplanningframeworksencourageandfacilitatethedevelopmentofdistrictheating,andfacilitatezoningofsuitableareasfordistrictheatingbasedontheSEAINationalHeatStudy
• Identifyappropriatefinancingmechanismstosupportthedeliveryofdistrictheatingprojects,includingappropriatefinancialincentivessimilartotheretrofitgrantprograms
• Updaterelevantregulatoryandlegislativetoolstoenabletherolloutofdistrict heatinginfrastructure
13.3.5 Geothermal HeatingIn2020,wepublished‘Geothermal Energy in Ireland – A Roadmap for a Policy and Regulatory Framework’,and ‘An Assessment of Geothermal Energy for District Heating in Ireland’�28InconjunctionwiththeNationalHeatStudy,thisanalysiswillalsoinformthedevelopmentofgeothermalenergyinIreland,inparticularidentifyinglocationsmostsuitedtothedeploymentofdistrictheating.
Wewilldeveloparobustregulatoryframeworktoaddressissuessuchasownership,licencingforexploration,developmentandproduction,andreporting.Policyongeothermalenergyexplorationwillbedevelopedduring2021andimplementedfrom2022onwards.
28 gov.ie-GeothermalEnergyinIreland-ARoadmapforaPolicyandRegulatoryFramework(www.gov.ie)
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13.3.6 Standards for New Buildings and RenovationsTheintroductionofNZEBfornewdwellingshasresultedintheeffectivephasingoutoffossilfuelsastheheatsource.WewillcontinuetoseetheeffectsofhighregulatorystandardsasnewbuildingconstructiongainsmomentumtowardsdeliveringthetargetssetoutinHousing for All.Astechnologyandconstructionareconstantlyevolving,policyandregulationmustalsoevolve,andcontinuesettinghighstandardsandtargetsinrelationtoconstructionandmaterialstoensurethatwecanachieveaclimate neutral built environment by 2050�
Wewill:
• ReviewNZEBandcostoptimalcalculationswithinourbuildingstandards• Reviewenergyefficiencystandardsformajorrenovationsfordomesticandcommercialbuildings,subjecttotheresultsofthecostoptimalreview.Thiswillacttopromotewidespreadinstallationofzero-carbonheatingsystemstoreplacefossilfuelheatingduringmajorrenovations
• BuildonthedetailedsectoralanalysisoftheNationalHeatStudy,developingproposalsforregulatoryoptionstoachievethecompletephase-outoffossilfuelheatingthroughoutourbuildingstockinlinewithournetzeroclimateobjective
• Increasethenumberofhomes,businessesandrentalpropertieswithBERsandaDisplayEnergyCertificateasaprecursortoregulatingforaminimumlevelofBERupgrade
• Developmechanismsthattakeintoaccountappropriatetriggers,suchasGovernment-fundedschemes,andpotentialnegativeimpactstothesupplyofrentedpropertiestothemarket
• Researchanddevelopalternativestotraditionalbuildingmaterials,andtheincreaseduseoflowcarbonmaterialsinconstruction
• Introducelife-cycleassessmentrequirementsforbuildingsandconstructionproductsandprocesses• Publishastandardrecommendationforthedesign,installation,commissioningandmaintenanceofsolarPVpanelsinnewandexistingdwellings
• DevelopacertificationschemeforStandardRecommendation54–EnergyEfficientRetrofitofDwellings,toensurethatenergyupgradesofbuildingsarecarriedoutaccordingtobestpractice
• SupportingtheSEAIthroughtheregistrationofinsulationinstallersfortheretrofitofbuildings,reducingthecarbonemissionsofbuildings
TheforthcomingNationalPolicyonArchitecturehas,asoneofitsobjectives,thedesignofplacesforclimateneutrality,climateresilience,circularityandsustainability.Thepolicywillprioritiseandsupporttheintegrationofsustainablepracticesinarchitecturewithrespecttonewconstruction,andthereuse,refurbishmentandconservationofexistingstructures,asflexibilityandadaptabilityareessentialtoenvironmental sustainability�
Traditionalbuildingsoccurintheresidential,commercialandpublicsectors,anditisestimatedthatsome18%fallintothetraditionallybuiltcategory.Becausesomeapproachestoenergyinsulationretrofitarenotsuitableforthesebuildings,aretrofittingguidancedocumentforthesetypesofbuildingsiscurrentlybeingdeveloped.
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Intheresidentialrentalsector,theincentivestoinvestinenergyefficiencyupgradesaremisalignedbetweenlandlordsandtenants,whichimpactsnegativelyontheenergyperformanceofthesector.Thiscomplexproblem,referredtoasthesplitincentiveissue,isseeninmanycountries.Newpoliciesandmeasureswillberequiredtoaddressthesplit-incentive,andincreasethenumberofrentedpropertiesundergoingenergyupgrades.Theseinitiativeswillbeinformedbythefindingsofapublicconsultationheldlastyear.Itwillbeimportanttostriketherightbalancebetweenensuringasufficientsupplyofrentedaccommodation,andtakingactiontoensurethatthoselivinginrentalpropertiescanparticipateintheretrofitprogramme.Housing for All commitstheGovernmenttotakingactioninthisarea.
Policiesandmeasuresarealsorequiredtoaddressthesplitincentiveissueinthecommercialsector,where50%ofbuildingusersinthatmarketarenotbuildingowners.
13.3.7 Promoting Low Carbon Construction WearecommittedtoworkingwithindustrystakeholderstoincreasetheuseoflowcarbonmaterialsandtechnologiesintheconstructionandrenovationofbuildingsinIreland,informedbyevolvingEUstandardsandbybestpracticeinotherjurisdictions.
Recentexperiencewithdefectivematerialsinnewhomeconstructionunderlinestheneedtotakearobustperformance-basedapproachtotheadoptionoflow-carbonmaterials.Alternativematerialsmustmeettherequirementsofallpartsofthebuildingregulations,includingrequirementsrelatingtodurability,firesafety,structure,andresistancetomoisture.
Wewillbaseourapproachonenvironmentalcertification,andaframeworkforcalculatingtheembodiedcarbonofabuilding,takingintoaccounttheoutcomeofthereviewoftheEUConstructionProductsRegulation,withaviewtotheimplementationofBasicWorksRequirement7‘SustainableUseofNaturalResources’(BWR7)andtheenvironmentalcertificationofconstructionproducts.
TheSEAIhascommissionedalife-cycleanalysisstudytocomparethecontributionofdifferentconstructionmaterialstotheembodiedcarboninbuildings.Buildingonthiswork,andotherinputs,wewilldevelopaframeworkmethodologyasanessentialsteptowardsthephasedimplementationofaperformance-basedapproachtotheamountofembodiedcarbonthatisincludedinabuildingproject.
Ourapproachwillincludedistinctstepsfordemonstration,certification,standardisation,andcommercialisationofconstructionproducts.Thiswillincludetheresearchanddevelopmentofalternativestotraditionalbuildingmaterialsandtheincreaseduseoflowcarbonmaterialsinconstruction.Itwillalsoallowforthedecarbonisationandre-certificationofexistingconstructionproducts,whenlower-carbonmanufacturingprocessesareimplemented.
Inlinewithitsleadershiproleforthepublicsector,theOPWiscurrentlydevelopingaroadmaptopromotetheuseoflowcarbonbuildingalternativesinconstruction,andwewillidentifyopportunitiestolocateandbuildanexemplarpublicbuildingusingbestavailablesustainablematerialsand,inparticular,buildingsusingwood.
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13.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
Phase out of Fossil Fuel Heating
176 Carryoutresearchtoinformthedevelopmentofoptions,policiesandmeasurestodecarbonisetheheatingandcoolingsectorsto2050
177 Developproposalstoachievecompletephaseoutoffossilfuelheatingthroughoutourbuildingstockinlinewithourclimateneutralityobjective
Decarbonising Commercial Buildings
178 Developandenhanceinitiativestoeducateandenableorganisationstocontributetoournationalenergyandemissionstargets
179 Developanapproachtoretrofitcommercialbuildings
District Heating
180 SupportthedeliveryofdistrictheatingprojectsundertheClimateActionFund
181 Establishasystemofgovernanceforthedevelopmentofdistrictheatingpolicy
182 ConductappropriateresearchtoinformandsupportthegrowthanddevelopmentofdistrictheatinginIreland
183 Developaregulatoryframeworktoprotectconsumers,andtoensurethatdistrictheatingisdevelopedinastructuredway
184 Ensurenational,regionalandlocalplanningframeworksencourageandfacilitatethedevelopmentofdistrictheatingwhereappropriatetofacilitatingcompacturban development
185 Identifyappropriatefinancingmechanismtosupportthedeliveryofdistrictheatingprojects
186 Assesstheviabilityofdistrictheatingsystemswithinhigherdensityurban/peri-urbandevelopmentsthroughademonstrationproject
Geothermal Heating
187 Developapolicyandregulatoryframeworkforgeothermalenergytosupportitsuseasasecure,environmentallysustainableandcost-effectivesourceofrenewableenergy
Standards for New Buildings and Renovations
188 UndertakeregulatoryreviewofcostoptimalperformancerequirementsforPartL(ConservationofFuelandEnergy)oftheBuildingRegulations
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Action Number Action
Promoting the Uptake of Low Carbon Construction
189 SupportthecurrentreviewbytheEuropeanCommissionoftheConstructionProductsRegulationandproposedimplementationofBasicWorksRequirements7+forsustainabilityofconstructionproducts
190 Developaframeworkmethodologyandcertificationschemeforproducts,asanessentialsteptowardsimplementingaperformance-basedapproachonaphasedbasisformeasuringandlimitingtheembodiedcarbonemissionsofbuildingprojectsandconstructionproducts
191 Workwithindustrystakeholderstoincreasetheuseoflowcarbonmaterials,takingintoaccountinternationalbestpractice
192 DevelopanembodiedcarbonBuildingRatingcalculationmethodology
193 SupportthedevelopmentofatoolforearlydesignstagecomparativeanalysisofembodiedcarbonintypicalIrishconstructiontypologies
194 Designandconstructtwoexemplarpublicsectorbuildingsusingalternativeconstructiontechniquesandmaterials,andmonitortheirperformance
195 Pilotprojecttoassesstheadaptivere-usepotentialofexistingtraditionallybuiltstructuresasresidentialaccommodation
Driving Demand Reduction
196 Evaluatepotentialforfurtheremissionssavingsthroughchangingconsumerbehaviourtolowerhouseholdheatdemand
Adaptation
197 Developspecificclimatemapsanddataforuseinbuildingdesigntoenhanceresilienceinsupportofclimatechangeadaptation
198 Assessandmonitorclimateimpactsonheritagesitesandidentifythreatenedheritagesites
199 Cooperateactivelyandshareknowledgewithinternationalpartnersandclimate-proofplanningproceduresforheritageproperties
200 Buildpublicawarenessoftherisksofclimatechange(ingeneralandforheritage)andofeffortstomitigateitandadapttoit
201 Integrateclimatechangeadaptationintoallheritage-managementplansandpolicies as these are updated
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14. National Retrofit Plan
14.1 IntroductionAsindicatedinChapter13,emissionsfromtheResidentialsectormustreducefrom7MtCO2
eq.in2018tobetween3.5-4.5MtCO2eq.in2030.Acomprehensiveretrofitprogrammewillbeakeymeasuretosupporttheachievementofthistargetalongsideotherinitiativessuchastheroll-outofdistrictheatingsystems.ThisNationalResidentialRetrofitPlanaimstoachievetheequivalentof500,000homesretrofittedtoaBuildingEnergyRatingofB2/costoptimalorcarbonequivalentand theinstallationof400,000heatpumpsinexistingpremisestoreplaceolder,lessefficientheatingsystems by end-2030�
Atotalof18,400homeretrofitswerecompletedin202029.However,just4,000weretoaB2standardand1,600installedaheatpump.Weneedtogreatlyincreasethedepthandvolumeofretrofitsaswellasthenumberofheatpumpsinstalledinordertodelivertherequiredemissionsreductions.
Figure 14.1
Projected cumulative number of home upgrades 2019-25
1 www.seai.ie
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
180,000
200,000
2019 2020 2021 2022 2023 2024 2025
# of
hom
es
SEAI non-B2 homesLA B2 homesSEAI B2 homes
AsindicatedinFigure14.1,itisestimatedthatbetween201930and2025almost185,000homeenergyupgradeswillbedeliveredwithover83,000toaB2/costoptimallevel.Whenthecarbonsavingsfromthenon-B2upgradesareincluded,thisistheequivalentof120,000B2upgradesovertheperiod.Thismeansthatwewillneedtodeliver,onaverage,approximately75,000B2-equivalenthomeupgradesperyearfrom2026to2030toachievetheoveralltargetof500,000by203031�
ThiswillrequirehundredsofthousandsofhomeownerstomakethedecisiontoinvestindecarbonisingandmakingtheirpropertiesmoreefficientaswellastheStateplayingacentralrolethroughtheretrofittingofsocialhomes.Itwillnecessitatealargerretrofitsectorwiththecapacitytodelivermuchhighernumbersofretrofitstotherequiredstandardaswellasapproachestofinancingthatcanfundthenecessarywork.
29 ActivitywasimpactedduetoCOVID-19relatedrestrictions30 The500,000retrofittargetswassetinthe2019ClimateActionPlan31 By2025,itisexpectedthat88%ofB2upgrades(excludingtheSolarPVscheme)willinvolveinstallationofaheatpum
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14.1.1 What is a Retrofit? Aretrofitorhomeenergyupgradeenhancestheenergyperformanceofahome.Adeeperhomeenergyretrofitinvolvescarryingoutmultipleenergyupgrademeasurestogether,andmayincludewallandatticinsulation,replacingwindowsanddoors,addressingairtightnessandventilationandinstallinganefficientrenewableheatingsystem(suchasaheatpump),aswellasotherrenewableenergytechnologies(suchassolarPVpanels).
14.1.2 What is a Heat Pump?Aheatpumpsystemharnessesenergyfromfreerenewablesourcesoutsidethebuilding,inordertobothheatthehouseandproduceitshotwater32.Heatpumpsareanenvironmentallyfriendly,decarbonisedandextremelyefficientalternativetooil,gasandsolidfuelhomeheatingsystems.Themostcommonheatpumpsworkbyconvertingenergyfromtheairoutsideofthehomeintousefulheatinside,inthesamewayafridgeextractsheatfromitsinterior.
14.1.3 Multiple Benefits of RetrofitAsrecognizedbytheInternationalEnergyAgency,thetraditionalfocusonenergysavingsasthemaingoalofenergyefficiencypolicyhas,attimes,ledtoanunderestimationofthefullvalueofenergyupgrades.Retrofit/homeenergyupgradescanbringmultiplebenefits,suchasenhancingthesustainabilityoftheenergysystem,supportingstrategicobjectivesforeconomicandsocialdevelopment,promotingenvironmentalgoalsandincreasingprosperity.Assuch,thebenefitsofahomeenergyupgradesanddecarbonisationinclude:
• Warmer and more comfortable homes • Cheapertorunhomeswhichhelpstoalleviateenergypoverty• Improvedhealthandwellbeing,particularlyfortheyoungandelderly,throughimprovedinternaldwellingtemperaturesandairquality
• Improved asset values• ReducedGHGemissionsandairpollution• Increasedeconomicactivityandhighqualityjobscreatedthroughoutthecountry• Theabilitytoheatourhomesusingtheelectricitygeneratedthroughrenewableenergyprojects
in Ireland
14.1.4 The Role of Retrofit in Our Economic RecoveryThisNationalRetrofitPlanisakeyelementoftheGovernment’splansforeconomicrecovery.Thesignificantbudgetsnowprovidedforretrofit(asoutlinedinsection14.3below)willhelptostimulatethecreationofhigh-qualityjobsthroughoutthecountry,andsupportthedevelopmentofsupplychainsforproductsandservicesthatwillberequiredtotransformIreland’shousingstock.Thiswillhelptosupportajusttransition.TheGovernment’sinvestmentandprioritisationofthissectoroftheeconomyisalsointendedtostimulateinnovationwhichcandrivedowncostsaswellasdevelopknowledgeandexpertisethatcanleadtoexportopportunities.
32 Electricalheatpumpsuseacompressortodrawheatfromalowtemperaturesource,suchasexternalairorgroundtoheatthebuildinginterior.Whileconventionalheatingsystemssuchasstorageheatersandboilerscannotproducemoreheatthanthatcontainedintheirfuelsource,aheatpumptypicallywillproducethreetofourunitsofheatforeveryunitofelectricity
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14.1.5 Designing Our ApproachExperienceinternationallyandinIrelandmakesitclearthatthereisnosinglepolicyormeasurethatcancausetherequiredincreaseintherateofretrofit.Abroadrangeofpolicyleversmustinsteadbeimplementedalongsideclearmarketsignals.ThisNationalResidentialRetrofitPlanprovidesanoutlineofthekeyelementsofourapproachfortheremainderof2021and2022,withsomeclearsignalsforlateryears.Thiswillenablethedevelopmentandexpansionoftheretrofittingsupplychaincapacityasweprogresstothemiddleofthedecadefollowedbyafurtherscalingupofactivityinlateryears.
Itisimportanttonotethattheseactionsarejustthenextsteps.TheDepartment,inconjunctionwiththeSustainableEnergyAuthorityofIreland(SEAI)andanewNationalRetrofitSteeringGroup,willcontinuetotrackandmonitorprogressagainstournationaltargets,evaluatetheimpactofmeasuresintroducedandmakeadjustmentstoenhanceourapproachaswego.Thiswillinformannualresidentialretrofitplanstoincludeadditionalmeasuressuchasfurtherregulatoryandtaxationinitiatives.
AsystematicapproachhasbeentakenindeterminingthemeasuresforinclusioninthisPlan.Thisinvolvedfirstlyidentifyingthemainbarrierstoretrofitandthendeterminingtheinitiativesnecessarytoaddressthosebarriers.Thisprocesswasinformedby:
• Engagement,consultationandworkshopswithhomeowners,thesupplychainandfinanciers• CollaborativeworkingacrossrelevantGovernmentDepartmentsandAgencies• Reviewingnationalandinternationalexperienceofretrofittingprogrammes• TheGovernmentiscommittedtocontinuingtoworkinacollaborativewaywithstakeholdersinrelationtotheimplementationofthePlan.
TheinitiativesinthisPlanwerealsoguidedbyanumberofkeyprinciples:
• Fairness–ensuringfairnesstoallandsupportingajusttransition• Universality–coveringallhousingtypesandconsumersegments• Customer-centric–designingcustomer-centricsolutionstoreducethecostsandcomplexity,makingtheprocesseasierforthoseinvestinginretrofit
• Cost-optimal–encouragingretrofitstocost-optimallevelandmaximisingemissionabatement• Industry-led–stimulatingandsupportingthemarkettoinstilltheconfidencetoinvest,growandtakeonmoreworkers
Theseprincipleswillcontinuetoapplyaswemovefromthedesignstagetotheimplementationstage.
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14.1.6 The Four Pillars of Our Retrofit PlanTheNationalResidentialRetrofitPlanisbuiltonfourkeypillarsasoutlinedinFigure14.2belowwithactionsandinitiativesflowingfromeach.Collectively,theseactionswillcreatetheconditionsnecessaryforourtargetstobeachieved.
Figure 14.2 – Pillars of the National Residential Retrofit Plan
2. Financing & fundingClarify Exchequer financial commitment to residential retrofit and introduce measures to make home energy upgrades more affordable for households
4. Structures and governance
Ensure that the required structures and governance arrangements are in place to drive delivery
3. Supply chain, skills and standards
Expand the capacity of the supply chain, introduce measures to increase the number of skilled workers while maintaining quality
1. Driving demand and activity
Stimulate demand by building confidence in quality, ensuring value for money and simplifying the customer journey
Thesuccessofourapproachdependsonensuringthateffectivepolicyactionistaken,andbalancedprogressismadeundereachpillarsimultaneously.Forinstance,thereislittlepointindrivingdemandwhenthesupplychainisnotsufficientlydevelopedtosatisfythisdemand.Theimportanceofthiscannotbeoverstated–bottleneckscouldotherwiseemergehamperingprogressandexacerbatingtheexistingimbalanceswithintheretrofitsector.
Thispointstotheneedforanall-of-GovernmentapproachtoimplementationofthisPlan.Itisonly bytakingsuchanapproachthatwecanensurealignmentofprioritiesandactionswithasharpfocus on delivery�
Theinitiativestobetakenundereachpillararedescribedinthefollowingsections.
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14.2 Pillar 1 – Driving Demand and ActivityWhilemanyhomesareretrofittedeachyearinIreland,experienceindicatesthatarangeofnewmeasureswillberequiredinordertosufficientlyincreasedemandfromhomeowners.Engagement withstakeholdersaswellasSEAIresearchhasidentifiedseveralkeychallengesandbarriersto achievingsufficientdemandfordeeperretrofits.Thesealignwiththebarriersseeninother jurisdictionsandinclude:
• Alackofawarenessofwhatretrofitisandthemultiplebenefitsitdelivers• Alackoffamiliaritywithsometechnologiessuchasheatpumps• Homeownersbeingoverwhelmedbytheapparentcomplexityandnumberofdecisionsinvolved• Affordabilityandthehighupfrontcostofworks• Hasslethroughouttheretrofitexperiencefromthegrantapplicationphase,throughtothedeliveryofworksinthehome
Theplannedapproachesforaddressingthesebarriersandincreasingthemotivationofhomeownerstoproceedwithretrofitsareoutlinedbelow.Theseinitiativeswillbesupportedbyotherclearmarketsignals,suchastheincreasesinthecarbontaxplannedfortheyearstocome.
14.2.1 A National Awareness and Demand Generation CampaignEffectivecommunicationofthemultiplebenefitsofretrofitandinformationonvarioustechnologiesandsupportsavailablewillbeacorebuildingblockfordrivingdemandforretrofit.AcomprehensivenationalawarenessanddemandgenerationcampaignwilltakeplacethroughoutQ4of2021.
ThiscampaignwillbeinformedbyqualitativeandquantitativeresearchamonghomeownersaswellastheresearchinsightsandexpertiseoftheSEAI’sbehaviouraleconomicsteam.Thecampaignwillemphasisethecomfort,financialandenvironmentalbenefitsofhomeenergyupgradesandwillinformhomeownersabouttheavailabilityofrelevantsupportsincludingfreeservicesforeligibleenergypoorhomes.TherelevantsectionsoftheSEAIwebsitewillalsoberevisedtoallowhomeownerstomoreeasilydeterminetherightgrantschemefortheirparticularcircumstances.
Community-basedsocialmarketingapproacheswillalsobedeployedwitheventstakingplaceinlocationsaroundthecountry.Thesetargetedmarketingcampaigns,underpinnedbybehaviouraleconomicsinsights,willtakeplacein2022andwillbuildonexistinginitiativessuchastheheatpumpreadyhomescampaign.Engagementwiththesupplychainwillalsotakeplace.
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14.2.2 Provide a personalised roadmap for homeowners on how to upgrade their home to a BER B2 in the new BER Advisory ReportWhilemediacampaignshelptoinformhomeownersbroadlyonthebenefitsofretrofit,therecentlylaunchedBERAdvisoryReportwillprovidepersonalisedhomeenergyupgradeadvicefortheirhome.
WhenabuildingisassessedbyanindependentBuildingEnergyRatingassessor,adetailedAdvisoryReportisnowgeneratedandprovidedtothehomeowner.Thisfocusesnotjustonthepresentperformanceofthebuildingbutalsoonitspotentialforimprovedperformance.ThereportsincludeinformationforhomeownersonhowtoupgradetheirhometoatargetofaB2energyrating(orbetter)andidentifyheatpumpsasthepreferredsolutionwhereappropriate.
Thenewadvisoryreportwillhelpto:
• Makehomeownersmoreawareofthepotentialoftheirhome,andthestepsandsupportsto getthemthere
• Driveinvestmentdecisionsbymakingtheoptionsclearanduncomplicated,andmakingit easierforthehomeownertoactoninvestmentdecisionsbyclearlypresentingthenextstep(s) intheupgradeprocess
• Maximisetheinvestmentinenergyperformancetoreachthehighestperformance standards possible
InadditiontotheBERAdvisoryReport,anewinteractivehomeownerBERtoolwillbelaunchedbySEAItoinformhomeownersoftheimpactaBERhasoncomfortlevels,energycostsandcarbonemissionsinthehome.Basedontheinformationprovided,thetoolwillgiveanestimateoftheenergyusageinthehome,approximateenergycosts,carbonemissions,comfort,andairqualitylevels.Thisinformationwillactasahighlevelguideforhomeowners,promptingthemtoconsidercarryingoutaBERassessmentandseektailoredadviceonupgradingtheirhome.
14.2.3 A network of registered retrofit one-stop-shops will be developed to simplify the customer journey and enhance confidenceResearchindicatesthathomeownerscanfeeloverwhelmedbythenumbersofdecisionsassociatedwithretrofittingtheirpropertiesandthiscanbecompoundedbyalackofindependentadviceaswellasalackoftrustincontractors.Homeownerscanalsoexperiencehassleassociatedwiththeprocessfromcoordinatingcontractors,disruptioninthehomeandthepaperworkassociatedwithapplyingforgrants.
AcoreelementofourRetrofitPlanisthedevelopmentofanetworkofregisteredone-stop-shops(OSSs)tosimplifythecustomerjourneyaswellasenhancingqualityandconfidence.TheseOSSswillofferhomeownersalltheservicesrequiredforacompletehomeenergyupgrade.Theseregisteredprivateoperatorswillmanagetheentireprocessforhomeowners,fromtheinitialassessmentofthehome,throughtothefinalBuildingEnergyRating.Therangeofservicestobeprovidedbythe OSSs includes:
• Home energy assessment –atechnicalsurveyorwilladviseonthebestupgradestobringhomestoaB2energyratingorbetter
• Grant application–theywillapplyandacceptallSEAIgrantsfortheprojectanddeductthegrantvaluesupfrontfromthecostofworks
• Project management–theywillmanagealltheworksinthehomeandensurequalitychecksarecarried out
• Contractor works–theywillassignacontractortocarryouttheworksonthehome
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• Follow up BER–aregisteredBERAssessorwillcompleteapost-worksBERassessmentandpublishthecertificate
• Finance Options–someOSSscanofferfinanceoptionthroughtheirfinancepartners
TheOSSswillalsobringtogethergroupsofhomesforretrofit,deliveringeconomiesofscaleandfacilitatingnewefficiencies.
14.2.4 A new National Retrofit Scheme (One-Stop-Shop Service) will be launched Since2000,over450,000homeownershaveupgradedtheirhomeswithsupportfromSEAIgrantschemes,representingnearlyonehomeinfouracrossthecountry.SEAIgrantschemeswillcontinuetobeacentralelementoftheGovernment’sstrategytoencouragehomeownerstoretrofittheirhomesandtosupportthedevelopmentofthenetworkofOSSs.Theseschemeswillbeenhancedandimprovedtoensurealignmentwithournationaltargetsandattractivenesstohomeowners.TheflagshipdevelopmentinthisregardwillbeanewNationalHomeRetrofitScheme(OneStopShopService)whichwillfocusonthedevelopmentandexpansionoftheOSSmarket,aswellasthedeliveryofB2retrofitswithheatpumps.
Thisschemewillalsofacilitatecontinuous,year-roundworkingandmulti-yearplanning,whichhaslongbeenidentifiedasacrucialrequirementbythesupplychainandhomeowners.
TosupportthelaunchoftheNationalRetrofitScheme,theSEAIisdevelopingaformalregistrationprocessforOSSsaswellasmulti-annualcontractframeworks.ThesecontractframeworkswillincludeservicelevelagreementsbetweentheSEAIandtheOSSs,whichwillbereviewedquarterlytoensuretheOSSsaremeetingthenecessarycustomerandqualityperformanceindicators,andthattheirprojectpipelineisdevelopingattheagreedrate.Inparallel,SEAIprocessesandadministrationarebeingsignificantlystreamlined.ThiswillbeofbenefittohomeownersandassistthecashflowsinOSSs.AdditionaldetailontheregistrationsystemforOSSsissetoutinsection14.4below.
TheexistingSEAIgrantschemeswillbealignedwiththeNationalRetrofitSchemetomakeit easierforhomeownerstoclearlyidentifythebestroutetogetahomeenergyupgradebased on their circumstances�
14.2.5 Sustainable Energy Communities will be used to drive Community Activation SustainableEnergyCommunities(SECs)werefirstsetupin2015tosupportcommunitiesinthetransitiontoalowcarbonsociety.UnderthisNationalResidentialRetrofitPlan,SECswillbesupportedbyGovernmenttocontinueandexpandtheirrolesas‘activators’intheircommunity.Therearecurrentlyover580SECsintheSECNetworkwithatargettogrowthisnumberto1,500by2030.Basedonfeedbackfromthenetworkofcommunities,andinordertofacilitatemorelocalsustainableenergyactivation,atargetedandmorestreamlinedstrandoftheCommunitiesGrantisbeingdeveloped.AcallforprojectsundertheCommunitiesEnergyGrantSchemewilltakeplaceinQ42021,andthenewstrandoftheschemefocusedonsmallerprojectsforretrofittinghomeswillalsobeintroducedin2022.ThenewstrandwillremainavailableonanongoingbasisforSECsandwillprovideadditionaltimeforprojectstobecompleted.
14.2.6 Those least able to afford to retrofit will be supported to participateInlinewiththedesignprinciplesoffairnessanduniversality,thereisaneedtoensurethatallhousingtypesandconsumercohortscanparticipate.SpecificmeasurestostimulateretrofitactivityamonghouseholdsvulnerabletoenergypovertyandApprovedHousingBodies,andintheprivaterentedsectorwill,therefore,alsoberequired.
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AswellassignificantincomesupportsthroughtheDepartmentofSocialProtection33,Government fundsfreeretrofitsforlowerincomehouseholdsthroughtheSEAIWarmerHomesScheme.Funding forthisschemehasincreasedsignificantlyinrecentyearswithabudgetofover€100millionin2021.Todate,over143,000homeshavereceivedfreeupgradesunderthescheme.Inthefirstsixmonths of2021,theaveragevalueoftheenergyefficiencymeasuresprovidedperhouseholdwasapproximately€17,100.
Recommendationsontheimplementationofchangestotheschemetoensurethatitbettertargetsthosemostinneedwillbefinalisedthisyear.B2retrofitswillbetargetedandheatpumpswillalsobeinstalledinanumberofWarmerHomesSchemeupgradesaspartofapilottogatherevidencetoinformtheappropriateprocessandapproachtoincreasingthenumberofB2upgradesandheatpumpinstallationsunderthescheme.
Intheresidentialrentalsector,theincentivestoinvestinenergyupgradesaremisalignedbetweenlandlordsandtenants,whichimpactsnegativelyontheenergyperformanceofthesector.Thisisacomplexproblemseeninmanycountries.AkeystepassociatedwithaddressingthisissuewillbetheintroductionofaminimumBERratingrequirementforprivaterentalpropertieswherefeasiblefrom2025,inlinewiththecommitmentintheHousing for All Plan.SEAIgrantsupportwillalsocontinuetobemadeavailabletohelplandlordstoretrofittheirpropertiesaswellastheplannedlowcostloanschemeforretrofit(seeSection14.3below).
The Government’s Strategy to Combat Energy Povertywaspublishedin2016.TheStrategysetoutseveralactionstoalleviatetheburdenofenergypovertyonthemostvulnerableinsociety.Thefocusofthestrategywasonhighimpactactionswhichaimedtomakearealdifferencetothelivesofthoseinenergypoverty.Areviewoftheimplementationofthisstrategywillbecompletedandwillinformnextstepsinrelationtothedevelopmentofanewstrategy.TheresearchfindingsoftheWarmthandWellbeingStudywillalsobepublished.
14.2.7 The Local Authority Retrofit Programme will be expandedApproximately36,500localauthorityhomeswillberetrofittedinthenextdecadeundertheLocalAuthorityRetrofitProgramme.ThesehomeswillbebroughttoaB2/costoptimalstandardwithaheatpump.ThisprogrammeofworkwillnotonlybenefitLocalAuthoritiesinassistingthemintheupgradeandmaintenanceoftheirhousingstock,butwillalsodirectlybenefithouseholderswithanenhancedlevelofcomfortandlowerfuelcosts.
In2022,theEnergyEfficiencyRetrofittingProgrammewillseeapproximately2,400homesnationallybeingupgradedtoaB2orequivalentstandardwithasignificantincreaseinfundingsupporttoLocalAuthoritiesto€85million.
14.2.8 The new Energy Efficiency Obligation Scheme will be launchedAnenergyefficiencyobligationscheme(EEOS)isalegalrequirementplacedonenergysuppliers and/ordistributors(‘obligatedparties’)tohelpenergyuserssaveenergy,includingbycarryingoutenergyupgradesintheirproperty.Indoingso,obligatedparties(OPs)deliverthesavingstheyarerequiredtomakeacrossanumberofsectors(e.g.commercial,residential,andpublicsector),throughtheirownprogrammesand/orbyworkingwiththeexistingGovernmentenergyupgradeschemesofferedthroughtheSEAI.
33 Governmentisprovidinganestimated€300millionin2021foraFuelAllowancepaymentaswellasanelectricityorgasallowanceundertheHouseholdBenefitsschemeatanestimatedcostof€265millionin2021
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IrelandhasusedanEEOStohelpdeliveronitsbindingenergysavingsobligationundertheEnergyEfficiencyDirectivesince2014.The2014-2020EEOSsupportedenergyefficiencyactionsinmorethan300,000dwellings.Theschemetooperatefrom2022-2030hasbeenredesignedtoalignmorecloselywiththecommitmentsoftheProgramme for Government,particularlyinrelationtotheresidentialsector,therebybettersupportingthedeliveryofIreland’sbroaderenergyandclimateambitionandtargets.34
14.3 Pillar 2 – Financing and Funding ModelsEvidenceshowsthatakeybarriertoscalingupthenumberofhomeenergyupgradesisthefinancialconstraintsofhouseholds.Theseareexacerbatedbyhighupfrontcostsofhomeenergyupgradesandlongpaybackperiodsassociatedwithsuchinvestments.Lackoffundsalsocurtailsthenumberofretrofitmeasureshomeownerschoosetoimplementatthesametime.
TheworkrequiredandassociatedcostofbringingahometoaBERB2isdeterminedbyanumberoffactorsincluding:thesizeandtypeofhome(apartment,terrace,semi-detached,detached,bungalow);wallstype(solidorcavity);aswellastheageandstartingconditionofthehome(whenbuiltandanyworkscarriedoutsubsequently).Forinstance,theaveragecostofupgradingaB3-ratedhousewillbelessthanthecostofupgradingasimilarlysizedG-ratedhouse.Inthesameway,thecostofinstallingaheatpumpisdependentonvariablesincludingbuildingtypeandsizeaswellastheextentofre-plumbingrequired.
Forthatreason,thecalculationofanaveragecostforthefutureprogrammeofworkischallengingbecausewedonothavecertaintyonwhich500,000houseswillberetrofittedoverthecomingdecade.However,estimatescompiledfortheDepartmentoftheEnvironment,ClimateandCommunicationsindicatethatthecosttoretrofitthefabricofahousetoaBERB2andinstallaheatpumpcanrangebetween€14,000and€66,000.Usingacross-sectionoftheentirehousingstock,thiswouldimplyatotalcostofupto€28billionfortheretrofitprogramme.Thesefiguresshowtheextentofthechallengeaswellaswhyaffordabilityisfrequentlycitedasthebiggestbarriertoretrofitamonghomeowners.OtherfinancingrelatedchallengestobeaddressedinthisPlaninclude:
• Aperceivedabsenceofamulti-yearfundingcommitmentfromGovernment• Substantialprivatefundingwillberequired• Adifferentmixoffundingmodelswillberequired
WhileSEAIgrantschemesreferredtointhedemandsectionabovewillclearlyassistwith addressingaffordabilityissuesforhomeowners,arangeofothersupportingmeasuresareplanned andoutlinedbelow.
14.3.1 The NDP has provided clarity on the Exchequer multi-annual funding commitment for retrofitTheGovernmentrecentlyfinaliseditsreviewoftheNational Development Plan (NDP)allocationsforretrofitting.Thisreviewresultedinanunprecedentedlevelofinvestmentinretrofit.€5billionofadditionalcarbontaxrevenueshavebeenallocatedtosupportresidentialretrofitto2030.Crucially,theNDPalsoprovidedclarityontheannualallocationsforthecomingyearsaswellasthetotalallocationtotheendofthedecade,givingthesectortheconfidencetoplanandexpand.Itwillalsofacilitate
34 Atransitionschemeisinoperationfor2021withthenewlydesignedEEOScommencingon1January2022.
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grantfundingbeingmadeavailableacrosscalendaryears,thusenablingyear-roundbusinesscontinuity.TheannualallocationssetoutinthetablebelowwillprimarilybeusedtofundtheexpansionandenhancementofSEAIresidentialandcommunityretrofitschemes,includingenergypovertyschemesaswellasotherinitiativestosupportretrofit.Theconsistentandverysignificantincreaseintheannualallocationswillhelpthesectortogrowinasustainableway.
Table 14.1 – NDP Annual Allocations for Retrofit
Year 2022 2023 2024 2025 2026 2027 2028 2029 2030Plannedallocation(million)
€202 €291 €380 €469 €641 €898 €1,257 €1,760 €2,000
Asindicatedinthetable,furtherfundinginadditiontothe€5billionwillbeavailableforresidentialretrofit,predominantlyinthesecondhalfofthedecade,fundedbytheoverarchingDepartmentoftheEnvironment,ClimateandCommunicationsNDPallocationofaminimumof€12.9billionto2030.Thismeansthattheoverallallocationforresidentialretrofitwillbeapproximately€8billionto2030.AdditionalfundingwillalsobeavailabletofundtheDepartmentofHousing,LocalGovernmentandHeritage’sLocalAuthorityRetrofitProgramme.
14.3.2 Further research will be carried out to understand the needs of homeownersIrishconsumerresearchshowsthatalmosthalfoftherespondentswouldconsidertakingoutaloan topayforenergyefficiencyimprovements.Thefindingshaveshownthatgrantsencouragehouseholdstoundertakeahomeenergyupgradewhilelow-costfinancehelpsencouragepeopletochooseadeeper,morecomprehensivepackageofretrofitmeasures.Thisreinforcestheargumentthatacombinationofdifferentfundingapproaches,suitableforvariousconsumergroups,isnecessary.Additionalresearchiscurrentlybeingconductedtofurtherdeveloptheunderstandingofretrofitfinancingneedsofthemarket.
14.3.3 A new Residential Retrofit Low-cost Loan Scheme will be launchedAsmentionedabove,GovernmenthascommittedasignificantleveloffundingtosupportretrofitintheNDP.However,itisclearthatExchequerfundingalonewillnotbesufficienttocovertheentirecostofachievingIreland’sretrofittargetsandprivatefinancewillberequired.
Inthisregard,theGovernmentisworkingwiththeStrategicBankingCorporationofIrelandandtheEuropeanInvestmentBanktodeveloparetrofitloanguaranteeschemeandassociatedlow-costresidentialretrofitloans. ThisprojectformspartofIreland’sNational Recovery and Resilience Plan� Thepart-Exchequerandpart-EUfundedloanguaranteewillprovideriskprotectiontoretailcreditinstitutionsparticipatinginthescheme.Thiswillenablethemtoofferloanswithreducedinterestratestomakecomprehensivehomeenergyefficiencyupgradesmoreaffordabletohouseholdsandnon-corporatelandlords.Theprojecthasahighmarketcreationpotentialand,overtime,shouldleadtothedevelopmentbyfinancialinstitutionsoffollow-onfinancingproductscustomisedtohomeenergyupgradesandprovidedwithoutrelianceonExchequersupport.Inthisway,theschemewillcontributetodevelopingasustainableresidentialretrofitlendingmarketinIreland.
14.3.4 European Union funding will be pursuedTheuseofvariousEU-fundingstreamsinthepursuitoftheEU Renovation WaveagendaandIreland’sresidentialretrofitambitionhasmanypotentialadvantages. Intheperiod2021-2027,European
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StructuralandInvestmentFundswillsupport“a greener, low-carbon Europe” as a policy priority by promotingacleanandfairenergytransition,greenandblueinvestment,thecirculareconomy,climateadaptation,andriskpreventionandmanagement.InadditiontotheEURecoveryandResilienceFacilityfundingalreadycommittedtotheretrofitloanguaranteescheme,theGovernmentwillfurtherexaminethepotentialforallocatingmorefundingfromtheEuropeanRegionalDevelopmentFundtoretrofitsupportswhilepreparinganewgenerationofoperationalprogrammes.
14.3.5 The potential for new tax incentives for retrofit will be exploredWithaviewtofurtherincreasingretrofitactivitylevels,thepotentialfortheintroductionofanenergyefficiencyfocusedtaxincentivewillbealsoconsideredduringthelifetimeofthisPlan.Pastexperiencehasshownthatadedicatedtaxincentivecanbeacatalystforhomeimprovementactivity.Acorrectlydesignedtaxbreakcouldhaveasimilareffectondrivingenergyefficiencyhomeimprovements.Stakeholderengagementalsosuggeststhatthistypeofincentivecouldbeaneffectivewaytoaddresstheissueofmisalignedincentivesbetweentenantsandlandlords,whichimpedestheuptakeofenergyefficiencymeasuresintheprivaterentedsector.
14.4 Pillar 3 – Supply Chain, Skills and StandardsInordertoachievetherequiredlevelofretrofitactivity,itisessentialthatwedevelopthesupplychainandensurethatwehavetherequirednumberofappropriatelyskilledworkersnecessarytosatisfythatdemand.Buildingupofcapacityinthemarketfromitscurrentlevelstoapointwhereitcandeliverapproximately75,000homerenovationprojectsperyearwillrequiretherightinitiativestostimulateandsupportthemarkettoinvestandattractnewentrants.Forthistohappen,anumberofchallengesaffectingtheexistingsupplylandscapemustbeaddressed:
• AlackofindustrycertaintyaboutGovernmentintentionsandcommitment• Ashortageofworkerswiththenecessaryskills,drivenbyhighdemandintheconstructionsectoroverallandadvancesinbuildingenvelopeandlowcarbonheattechnologies
• Theexistingcomplexsupplierjourney(e.g.redtaperequiredtoreceivepaymentforwork)• Fragmentationresultinginlimitedabilitytoengageandmobilise
Astheretrofitindustrytransformstoaccommodatemuchhigherlevelsofoutput,qualitymustbemaintainedatahighleveltosustainconsumerconfidenceanddemand.Standardsandtheexistingqualitymanagementmodelwillneedtoevolvetocopewithmuchgreaterscaleofactivity.
Theretrofitsectorisgoingtorequireongoingsupportthroughto2030toovercomethesechallenges.Muchofthesupportisneededintheearlyyearsofthisdecadeinordertogrowthecapacityoftheretrofitindustrytoupskill,expandandinnovate.Overtime,supplychainsupportswillevolveinlinewiththeprogressmadeonthepathtowardsIreland’s2030carbonabatementobjectives.
SomeoftheinitiativespreviouslymentionedunderthedemandandfinancingpillarsofthisPlanwillsimultaneouslyhelpthesupplychain.Forinstance,thecommitmentofaverysignificantExchequerbudgetforretrofit,andclarityontheannualallocationsfortheyearstocome,willprovideconfidencetothesectortogrow,duetotheresultinglargeandstablepipelineofworkthatitwillsupport.ThecommencementofnewSEAIgrantschemesandexpansionoftheLocalAuthorityRetrofitProgrammewillalsoallowyear-roundworking.Thisinitselfwillgreatlyincreasethecapacityofthesectortodeliverincreasednumbersofretrofitsbecauseittransformsas6-monthindustryintoayear-roundindustry.However,arangeofotherinitiativesareplannedandoutlinedbelow.
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14.4.1 Carryout a skills forecast for the retrofit sector to 2030TheExpertGrouponFutureSkillsNeeds(EGFSN)willsoonpublishareporttitled‘Skills for Zero Carbon- The Demand for Renewable Energy, Residential Retrofit and Electric Vehicle Deployment Skills to 2030’� The EGFSNadvisestheIrishGovernmentonthecurrentandfutureskillsneedsoftheIrisheconomy,aswellasonanylabourmarketissuesthatimpactonenterpriseandemploymentgrowth.Thereportwillanalysethenatureandquantifythescaleoftheskillsrequiredbyenterprisesoverthecomingdecade,inordertodeliveronkeyenablingmeasuresforthezero-carbontransition,includingtheenergyefficientretrofitoftheexistinghousingstock.Thereportwillsetoutlabourdemandestimates,includingatdetailedoccupationallevel,forthedeliveryoftheGovernment’sretrofitambitionsforthenextdecade.Itwillalsosetoutacomprehensivesuiteofrecommendationsfortheeducationandtrainingsystem,aswellasothersourcesofskillssupply,inordermeettheprojectedlevel ofskillsdemand.
14.4.2 Deliver the necessary increase in upskilling, reskilling and apprenticeship supports TheGovernmentwillcontinuetosupportthedevelopmentoftheskillsnecessarytofurtherIreland’sclimateagenda,includingskillsassociatedwithenergyefficiencyinbuildings.AspartoftheresponsetotheimpactsoftheCOVID-19pandemic,theGovernmentexpandedinvestmentinupskillingandreskillinginareasofkeyskillspriorities,includingthelowcarbontransition.Newspecialistretrofittingtrainingcoursestosupportnon-craftandoperativerolesintheretrofitsectoraredeliveringtheinfrastructurerequiredtosupportskillsdevelopmentasdemandincreases,includingdevelopingtargetedopportunitiesforunemployedpersons.
Therehasbeensubstantialprogressondeliveringaninfrastructureforupskillingexistingcraftspeopleaswellasotherinterestedlearners.NearZeroEnergyBuilding(NZEB)andretrofittrainingisbeingdeliveredacrosstwospecialistcentres,withthreefurthercentresofexcellenceindevelopment.AnNZEBspecifictrainthetrainerprogrammeisinplacewiththefirstcohortduetograduateinautumn2021.Inadditiontoregionaldistributionofupskillingandreskillingopportunities,workisunderwaytoprovideblendedlearningandvirtualrealitysupportedtrainingwhichwilldeliveradditionalflexibilityinrelationtogeographicreachoftheprogrammes.
Apprenticeshipiswellembeddedintheconstructionsectorandprovidesaclearopportunitytogivethoseenteringtheworkforcetheskillsrequiredformoreenergyefficientconstruction,andtosupportdeliveryoftheGovernment’stargetsinretrofittingthehousingstock.Inadditiontoscheduledreviewsofcurriculumcontentofexistingcraftapprenticeships,whichprovideasignificantcontributiontotherangeofskillsrequiredtosupportthetransitiontothezerocarboneconomy,therecentlylaunchedAction Plan for Apprenticeship 2021-2025setsoutafive-yearstrategytoexpandthenumberofavailableapprenticeshipsandtoembedapprenticeshipasaclearchoiceforlearnersandemployerswishingtoupskillorreskill.
Actionsundertheplanwillmakeapprenticeshipvisible,promotethepotentialofapprenticeshipinnewareas,andseektosupportemployerstoincreaseengagementwithexistingapprenticeshipsandthedevelopmentofnewprogrammes.Doublingannualapprenticeregistrationsto10,000newregistrationsperyearby2025providesclearopportunitytosupportthedevelopmentoftheskillsetsnecessaryacrosstheretrofitindustry.
FundinghasbeenprovidedunderSpringboard and the Human Capital Initiativeforprogrammesandinnovationprojectstargetingthedevelopmentofprofessionalsinareassuchasbuildinganalysisandclimateadaptation;sustainablebuildingtechnology;andretrofit,conservationandsustainability.
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14.4.3 Initiatives to ensure the required number of BER assessors ThereareanumberofinitiativesplannedtoensurethattherequirednumberofregisteredBERassessors,tomeetthescalingupofBERactivity,isavailable.Theseinitiativeswillsupportboththeretentionofexperiencedassessorsandtherecruitmentofnewassessors.Initiativesinclude:
• Thedevelopmentofanewqualityassurancearchitecturetosupportbothascaling-upofactivityandcontinuousimprovement
• Thedevelopmentofacompetencyframeworkandacontinuousprofessionaldevelopmentpolicytosupport career development
• Theidentificationofchallengesforassessorsandbarrierstoregistration• ThereviewandupdateofBERtrainingcoursecontentanddeliverytoimproveaccessibility• Thepromotionofthenewadvisoryreport,andofBERassessorsasindependentadvisorstohomeownersonimprovingtheirBER
14.4.4 Supports for Enterprise Itisexpectedthattherangeofmeasuresinthisplanwillencouragenewentrantstotheretrofitmarketaswellasincentivisingexistingmarketplayerstogrow.However,newandexpandingbusinessesintheretrofitsectorcanfacechallengesastheydevelopandexpand.TheSEAIwillworkwiththesebusinessestoencouragethemtoavailoftherangeofsupportsavailablethroughtheLocalEnterpriseOffices(LEOs),whichincludefinancialsupports,trainingprogrammesandmentoring.
14.4.5 Registration for One-Stop-ShopsEntitiesseekingtooperateasOSSswillneedtomeetthecriteriaandstandards,includingcorecapabilities,setbytheSEAItobeeligibleforinclusiononthenationalregister.OSSswillberequiredtoprovidestrategic2/3-yearplansagainstwhichSEAIwillentermulti-annualagreementswitheachOSSforhomeenergyupgradesandensureappropriateongoingfundingcommitmentsareavailableforthesupportoftheseupgradestothelevelofgrantincentivespublishedbytheSEAI.
ThiswillallowOSSsandhomeownerstoupgradetheirhomesatatimethatsuitsthem,ratherthanhavingtowaitforprojectstofitwithopenandclosingperiodsofannualgrantprogrammeswithintheSEAIaswasthecasepreviously.
AnOSSneedstobeabletoprovideaunifiedandcohesiveofferingtohomeownerstoupgradetheirhomes,withnovisiblehandoversofcustomercommunicationorrelationshipswithintheenergyupgradeproject.TheSEAIwillmonitortheperformanceofOSSstoensurehighqualityofenergyefficiencyworksandrobustcustomerserviceinordertobuildconsumerconfidenceinthebenefitsassociatedwiththisnewretrofitdeliverymodel.TheregistrationofOSSswillcommencebytheendof2021withfurtherworkpackagestofine-tunethenewdeliverysystemtobefinalisedin2022.
TheexistingCommunityEnergyGrant(CEG)Schemewillremainopenasadevelopmentcallandavailableforthoseprojectco-ordinatorswhoarenotsuccessfulinregisteringasanOSS.TheCEGSchemewillencouragethedevelopmentofapipelineofOSSserviceproviders.
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14.4.6 Carry out a study into the Heat Loss Indicator criteria for the installation of heat pumpsUnderSEAIgrantschemes,thecurrentHeatLossIndicator(HLI)criterionforheatpumpinstallationinhomesis2.3W/Km2orless.ThismeansthathomeswithaHLIgreaterthan2.3W/Km2afteranybuildingfabricworksarenoteligibleforSEAIheatpumpsupports.TheSEAIwillcarryoutanaction-basedresearchstudywiththeintentionofinformingandprovidingevidenceontheoptimumperformancefromtheheatpumprelativetothefabricandventilationspecificationandcontrolstrategies.TheobjectiveofthisresearchistotesttheefficacyofinstallingaheatpumpinhomeswithaHLIof>2.3and≤2.6W/Km2.IfproventobeeffectiveatthisrangeofHLI,withacceptableincreasesinheatingbills,thiscouldallowheatpumpstobeinstalledinmanyhomeswhich:
• CurrentlyfinditeithercostprohibitivetoachieveaBERB2andachieveaHLIof2.3W/Km2
• Areexcessivelydisruptivetoperformanenergyupgrade• HavebeendeemedineligiblebytheSEAIforagrantforaheatpumpinstallationwhenundertakingretrofitworksinthepast
14.4.7 New Standards and Guidance DocumentsTheNationalStandardsAuthorityofIreland(NSAI)recentlypublished“S.R. 50-4:2021 Building Services – Part 4: Heat pump systems in dwellings”.Thisdocumentprovidedguidelinesforthedesigninstallation,commissioningandmaintenanceofheatpumpsystem.TheNSAIwillalsopublishastandardrecommendationforthedesign,installation,commissioningandmaintenanceofsolarPVpanelsinnewandexistingdwellings.Inaddition,themainguidancedocumentontheEnergy Efficient Retrofit of Dwellings (S.R. 54)willbeupdatedtotakeaccountofnewdevelopmentsandensurethattheguidancewillcontinuetosupportworkbeingcarriedoutinlinewithbestpractice.
Asignificantproportionofhomesandbuildingsthatwillneedtoberetrofittedare“traditionallybuilt”.Thistermgenerallyappliestobuildingsbuiltbefore1940,andincludessignificantnumbersofVictorianandGeorgianstructures.Itisestimatedthatsome18%ofdwellingsfallintothetraditionally-builtcategory.Uncertaintyaboutwhatretrofittreatmentswereallowableorappropriatehascontributedtoalimitedamountofenergyefficiencyretrofitonthesebuildings.ToprovideclarityandguidanceonundertakingthisretrofitappropriatelyanewGuidancedocumentisbeingdevelopedforbuildingprofessionalsparticularlyspecifiersandinstallers.Anyrelevant,availableSEAIretrofitsupportswillalignwiththebestpracticeguidancewhenpublished.
14.4.8 Building RegulationsBuildingregulationscontinuetoplayacentralroleindrivingthedecarbonisationofourhousingstockunderthisplan.TheNZEBRegulationswillensurethatallhomesbuiltinthefuturewillmeetourexpectationsintermsofcomfortandfunctionality,whilealsosignificantlyreducingenergyuseandCO2emissions.Since2015,lessthan4%ofnewdwellingsinstalledoilboilersandapproximately85%ofnewdwellingsbuiltto2019NZEBBuildingRegulationsinstalledheatpumps.Itisexpectedtheinstallationoffossilfuelboilersinnewhomeswillbeeffectivelybannedby2023.
Theregulationswillalsohelptoaddressthelegacyofolderhousingwithpoorenergyefficiencyperformanceandhighlevelsofemissions,throughtherequirementthatdwellingsundergoingmajorrenovations(wheremorethan25%ofthesurfaceareaisrenovated)mustmeetaBERB2orcostoptimalequivalent.MinimumBERstandardswillalsobeimplemented,wherefeasible,forprivaterentalpropertiescommencingin2025inlinewithEnergyPerformanceofBuildingsDirective.
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RegistersofcompetentbuilderswillalsobeestablishedbyplacingtheConstructionIndustryRegisterIreland(CIRI)onastatutoryfooting.
ThedevelopmentofNZEBtrainingcourses,NSAIstandardsandBERadvisoryreportinformationwillalsoaidcompliance,inparallelwithexistingbuildingcontrolrequirements.
14.5 Pillar 4 – Structures and GovernanceTheNationalResidentialRetrofitPlanincorporatesactionstobedeliveredacrossanumberofGovernmentDepartmentsandAgencies.Assuch,implementationwillrequirecollaborationacrossGovernment,andappropriatestructuresandgovernancearrangementsareessential.
14.5.1 A cross-Departmental National Residential Retrofit Oversight Steering Group will be establishedReportingontheactionsintheNationalResidentialRetrofitPlanwillbeincorporatedwithinthereportingstructuresfortheClimateActionPlan.
Inaddition,across-departmentalsteeringgroup,chairedbytheDepartmentoftheEnvironment,ClimateandCommunicationswillbeestablished.Thisgroupwilloverseeandmonitorprogressagainstournationaltargetsanddevelopnewinitiativesasrequired.
14.5.2 Further develop and resource the SEAI as the National Retrofit Delivery BodyTheSEAIhasbeendesignatedastheNationalRetrofitDeliveryBody.Inthisrole,theSEAIwillactastheleadagencyindrivingthedeliveryofourretrofittargets.
TheresponsibilitiesoftheSEAIinthiscapacityinclude:drivingdeliveryofourretrofittargets;promotingretrofituptakethroughmarketingcampaigns;enhancingtheappealoftheretrofitsupportsandimprovingthecustomerjourney;settingstandardsfor,anddevelopingandregistering,OSSs;increasingthenumberofBERassessors;monitoringandmanagingthequantumandqualityofretrofitserviceprovision;andsupportingthesupplychainintheareaofretrofit.
SignificantadditionalfundingisbeingprovidedbytheGovernmenttocontinuetoincreasethecapacityoftheagency.Theprocessofdeveloping,restructuringandrecruitingthenecessaryexpertisecommencedin2021andwillcontinueinparallelwiththedeliveryoftheNationalRetrofitPlan.
14.5.3 Enhance the collection and monitoring of retrofit activity data delivered with Government supportTherestructuredandresourcedSEAIwillalsohelpsupportenergypolicyandbudgetingdecisionsoftheGovernment.ThiswillincludeenhancedcollectionandmonitoringofdataonretrofitactivityacrossGovernment-supportedretrofit.Itwillalsocontinuetodeliverinsightsfromenergystatistics,programme/policyevaluationandimpactassessment,energymodelling,behaviouralscience,technologyexpertise,andresearch.ThisanalyticalbasisisconsideredessentialfordrivingIreland’sambitiousemissionsreductiontargetsinthebuiltenvironmentsectorto2030andbeyond.
14.5.4 The capacity of Local Authorities to deliver their retrofit programme will be enhanced LocalAuthoritieswillcontinuetoplayakeyroleinsupportingtheachievementofournationalretrofittargets,particularlythroughtheexpansionoftheLocalAuthorityRetrofitProgramme.LocalAuthoritieswillbesupportedwithincreasedprojectmanagementsupportthroughdirectfundingfromtheDepartmentofHousing,LocalGovernmentandHeritage,andwithadvice,guidance,knowledgesharingandbestpracticeexamplesfromtheHousingDeliveryCo-ordinationofficebasedintheLocalGovernmentManagementAgency.
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14.6 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
Driving Demand and Activity
202 Implementanationalawarenessanddemandgenerationcampaignforresidentialretrofit
203 ProvideapersonalisedroadmapforhomeownersonhowtoupgradetheirhometoaBERB2inthenewBERadvisoryreport
204 DevelopanetworkofretrofitOne-Stop-Shopstosimplifythecustomerjourneyandenhanceconsumerconfidence
205 LaunchnewSEAINationalRetrofitScheme(OneStopShopService)todrivethedeliveryofB2retrofitswithheatpumpsandfacilitateyear-roundworking
206 UtiliseSustainableEnergyCommunitiestodrivecommunityactivation
207 Supportthoseleastabletoaffordtoretrofit
208 RolloutofSocialHousingNationalRetrofittingProgrammein2021withretrofittedpropertiesrequiredtoreachBERB2orequivalent
209 LaunchanewEnergyEfficiencyObligationScheme
Financing and Funding Models
210 Allocatefundingtoresidential/communityretrofitfromDepartmentalcapitalenvelopeinlinewithNDPfundingtrajectory
211 Carryoutresearchtofurtherunderstandtheneedsofhomeownersinrelationtofinancingretrofit
212 Introducearesidentialretrofitloanguaranteescheme
213 PursuefundingthroughEuropeanUnioninitiativesasappropriate
214 Explorethepotentialfornewtaxmeasurestosupportretrofit
Supply Chain, Skills and Standards
215 PublishaforecastoftheskillsrequiredtodeliveronourretrofittargetaspartoftheExpertGrouponFutureSkillsNeedsreporton“SkillsforZeroCarbon-TheDemandforRenewableEnergy,ResidentialRetrofitandElectricVehicleDeploymentSkillsto2030”
216 Deliverthenecessaryincreaseinupskilling,reskillingandapprenticeshipsupportsforresidentialretrofitting
217 IntroduceinitiativestoensuretherequirednumberofBERassessors
218 LaunchastudyintotheHeatLossIndicatorcriteriafortheinstallationofheatpumps
219 PublishnewStandardsandGuidanceDocumentsforretrofit
220 Helptoaddressthesplitincentiveissueforrentalproperties
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Action Number Action
Structures and Governance
221 Establishacross-DepartmentalgrouptooverseeimplementationoftheNationalRetrofitPlan
222 FurtherdevelopandresourcetheSEAIastheNationalRetrofitDeliveryBody
223 EnhancethecollectionandmonitoringofretrofitactivitydatadeliveredwithGovernment support
224 Enhancethecapacityoflocalauthoritiestodelivertheirretrofitprogrammeaccordingtobudgetsallocated
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Transport 15
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15. Transport
15.1 State of PlayThepopulationofIrelandisexpectedtoreach5.7millionby2040fromacurrentestimateof4.9millionin2021.Inparallel,overthenexttwodecadesthereareprojectionsofbothemploymentandeconomicgrowththatmaystimulategreatertransportactivityanddemand.Withoutsignificantchangesintravelpatterns,modalshare,andtechnology,agrowthincurrenttransportactivityanddemandwillfurtherdiminishournationalcompetitiveness,qualityoflife,anddecarbonisationgoals.
Transportaccountsforapproximately20%35ofIreland’sgreenhousegas(GHG)emissions.Roadtransportisresponsiblefor96%ofthoseGHGemissionsandisalsodirectlyresponsibleforarangeofairpollutantsthatnegativelyimpactbothhumanhealthandtheenvironment.Thelevelsofnoise,accidents,andcongestionassociatedwithroadtransportreducesqualityoflife,detersactivetravel,andcosts society hundreds of millions of euro per annum36inwastedtime.Promotingcleaner,saferandmoresustainablemobilityiscriticalforclimatepolicy,anditalsorepresentsanopportunitytoimproveourhealth,boostthequalityofourlives,meettheneedsofourgrowingurbancentres,andconnectourrural,urbanandsuburbancommunities.
Table 15.1 Transport GHG Emissions, 201837
Transport Emissions CO2eq.
Share of Total GHG Emissions
Transport Emissions CO2eq. per person
12.2Mt 19.6% 2�5 t
Transportemissionspeakedat14.4MtCO2eq.in2007,fallingduringtheeconomicrecessionto10.9MtCO2eq.in2012.Astheeconomicrecoverytookhold,thesector’semissionsbegantoriseoncemore,illustratingacontinuedrelationshipbetweentransportemissionsandeconomicactivityinIrelandthatmustbeaddressed.Theemissionsinventoryreportedaslightincreaseintransportemissionsfrom12MtCO2eq.in2017to12.2MtCO2eq� in2018.Thiswasdespitetheintroductionofincreasedbiofueluse,improvingvehicleefficienciesandagrowingnumberofEVsinthefleet.Thesemeasures,alongsidetheongoingdevelopmentofthebroadersustainabletravelambitionsofthefirstClimateActionPlan,stillofferapathwaytowardsalow-emittingandsustainabletransportsector.However,itisclearthattodelivera51%GHGemissionreductionby2030,thelevelofambitionandsupportingactionsmustincreaseandtherateofchangemustbesignificantlyaccelerated.
TheimpactoftheCOVID-19pandemic,withtheintroductionofseveretravelrestrictionsandgreaterremoteworkingpractices,isestimatedtohaveresultedinareductionofapproximately16%oftransportemissions(excludingaviation)in2020comparedto2019levels38� This conveys some sense ofthescaleofthechallengewefaceindeliveringa51%reductionintransportemissionsby2030.Thegoalistosuccessfullyreduceemissionsfromthetransportsectorwhilemaximisingthebenefitsofthetransition,withoutnegativelydamagingeconomicwellbeing,andwithoutadverselyimpactingdifferentsocialgroups.Thepandemichasalsoshownusthatlargescalebehaviourchangeisachievableandthatnewpatternsofmobilityandworkingcanplayapartinthetransitiontoacleaner,saferandmore
35 Thistotalexcludesinternationalaviation36 AnalysisundertakenbytheDepartmentofTransportin2017indicatedthatthetimecostsoftrafficcongestioncouldgrowbyover75%upto2025andmorethantreblebetweenthenand2033–reachingapeakcostashighas2.08bnintheGreaterDublinAreaalone-CostsofCongestion:AnAnalysisoftheGreaterDublinArea
37 https://www.epa.ie/publications/monitoring--assessment/climate-change/air-emissions/greenhouse-gas-emissions-final-2019.php38 https://www.seai.ie/publications/Energy-CO2-emissions-2020-Short-Note-FINAL.pdf
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sustainabletransportsystemforall.Improvedplanningandradicalredesignisrequiredtoshiftourbuiltenvironmentfrombeing“vehiclecentered” tobeing “peoplecentered”. The concept of the “15-minuteneighbourhood”, whichgainedprominenceduringtheCOVID-19pandemic,isrepresentativeofthisbroadambition.Specifically,promotingandsupportingcommunitiesinwhichpeoplecanliveandaccessmostoftheirdailyneedswithina15-minutejourney,mainlybysustainablemodes(publictransport,cyclingandwalking).
Table 15.2 Trends in Transport GHG Emissions
Timeframe Percentage Change Absolute Change, CO2 eq.2005-11 -14.5% -1.9Mt2011-18 8.9% 1Mt
TheimmediatechallengesfacedbyIrelandforthetransportsectorarecommontomanyEUcountries.Theheadlineactionsincludeastrongshifttosustainabletravelmodesandtheelectrificationofvehiclefleets.Thechallengeisnotsomuchtheninsettingthepathwaytotransportdecarbonisation,butratherindeliveringtherequisitepolicysupports,investment,infrastructureandinformation,sothatthebehaviouralandtechnologicalchangesareeasy,plausibleandattractiveforcitizens,andthatthenecessaryratesofchangecanbedelivered.Stronggovernanceisrequired.
Table 15.3 – Transport GHG Emissions International Comparisons, 2018 39
Ireland Denmark Austria Finland EU 27Share of Total GHG 19.6% 27.9% 31.1% 20.7% 22.0%
Transport Emissions, CO2eq. per person 2�5 t 2�3 t 2�8 t 2�1 t 1�9 t
Change Since 2005 -6.9% -1.0% -2.0% -9.8% -2.3% Supporting National PlansTheClimateActionPlanfortransportwillsupportandbuildfromseveralkeynationalpolicyplansthataredrivingthenecessarychanges,includingProjectIreland2040,theNationalPlanningFramework,theNationalRemoteWorkStrategy,theNationalAdaptationFramework,OurRuralFuture-RuralDevelopmentPolicy2021-2025,andtheforthcomingSustainableMobilityPolicy.Theseplansalignwiththeclimateactiongoalsbysupportingrelevantchangessuchasmorecompact,connecteddevelopmentsthatofferbetterpublictransport,aswellassafer,longerandbetter-connectedwalkingandcyclingnetworkstosupportactivetravelchoicesandchanges.Theforthcominglandtransportinvestmentframeworkwillsetoutahierarchyformakinginvestmentsinthetransportsector,withsustainabletravel,startingwithactivetravelandthenpublictransport,beingencouragedovertheprivate car�
Table 15.4 – Required Level of Decarbonisation in Transport
2018 Emissions40 2030 Required Emissions based on CAP 202112.2Mt 6-7Mt
39 EEAAnnualEuropeanUniongreenhousegasinventory1990–2018andinventoryreport202040 Ireland’sProvisionalGreenhouseGasemissions19902019
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Table 15.5 Potential Metrics to Deliver Further Abatement in Transport
Key Metrics 2018 20252030
(Based on CAP 2021)
Additional Abatement Impact,
MtCO2eq.
Core Measures
Sustainable Transport Journeys
and Demand Management Measures41
N/A
125,000additionalpublic transport andactivetraveljourneys,andtherollingoutof
sustainable demand management
measures
500,000(14%)additionalpublictransportandactivetraveljourneys
per day
ReduceICEcarkilometresbyc.
10%
c� 1�4
Electrification of Passenger Cars c� 2000 175,000
845,000withafocus on BEVs
c� 2�7
Transition to Low Emission Vans c� 85 20,000
95,000withastrongerfocuson
BEVsc� 0�2
Improved HGV Technology c� 20 700
3,500lowemissionHGVs
c� 0�3
Increased Bio-fuel Blend Rate
E5 B4�5
E10 B12
E10 B20
c� 1�1
Electrify Mass Transportation N/A
300 EV buses andexpandingelectrifiedrail
services
1,500EVbuses andexpandingelectrifiedrail
services
c� 0�3
c� 0�1
Further MeasuresUndertakeaprogrammeofworkwhichwillreviewprogressand
furtherrefinemeasuresthatwillseektodelivertheadditionalc.0.9MtCO2 reductionby2030inafairandequitablemanner
c� 0�9
41 Includestheimpactofreducedfueltourismpractices
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15.2 Targets
To meet the required level of emissions reduction, by 2030 we will: • Provideforanadditional500,000dailypublictransportandactivetraveljourneys
• Developtherequiredinfrastructural,regulatory,engagement,planning,innovationandfinancialsupportsforimprovedsystem,travel,vehicleanddemandefficiencies
• IncreasethefleetofEVsandlowemittingvehicles(LEVs)ontheroadto945,000,comprisingof:
• 845,000electricpassengercars
• 95,000electricvans
• 3,500lowemittingtrucks
• 1,500electricbuses
• anexpandedelectrifiedrailnetwork
• RaisetheblendproportionofbiofuelstoB20indieselandE10inpetrol
• ReduceICEkilometresbyc.10%comparedtopresentdaylevels
• Undertakeaprogrammeofworkwhichwillreviewprogressandfurtherrefinemeasuresthatwillseektodelivertheadditionalc.0.9MtCO2reductionby2030inafairandequitablemanner
15.3 Measures to Deliver Targets 15.3.1 Sustainable MobilityExpandingsustainablemobilityoptionstoprovidemeaningfulalternativestoeverydayprivatecarjourneysisnecessarytoreducetransportemissions.Continuedandenhancedinvestmentinourwalking,cyclingandpublictransportinfrastructureandservicesacrossthecountryisrequiredonascalenotpreviouslyseen.Wearecommittingtodeliveringanadditional500,000dailysustainablejourneysby2030(c.14%increaseoncurrentlevels)throughtheimplementationofmajortransportprojectssuchas:
• BusConnects• ConnectingIreland• Expandingrailservicesandinfrastructurein,andaround,majorurbancentres• Asignificantincreaseinourwalkingandcyclinginvestments
Newtechnologywillalsoincreasinglyplayakeyroleintherealisationofourclimateactiongoals,withelectricbicycles,electriccargobicycles,and(whenlegalised)e-scooters,extendingboththenumberandlengthofsustainabletripsacrossIreland.
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Akeyambitionis,therefore,toprovidecitizenswithreliableandrealisticsustainablemobilityoptionstoenablebettermobilitychoices.Tothisend,abroadsuiteofsupportswillbeutilised,including:additionalareamobilitymanagementplanning;furtherpedestrianisationofcitycentresandschoolstreets;investmentsinactivetravelinfrastructure;improvementstothecapacity,frequency,reliabilityandjourneytimeofpublictransportservices;andpromotinggreaterawarenessoftheseimprovedwalking,cyclingandpublictransportoptions.Modalshiftfromtheprivatecartosustainabletransportwillalsobesupportedthroughthenew10-yearSustainable Mobility Policywhichwillbepublishedlaterthisyear.Alongsidecontinuedsignificantinvestmentandexpansionofactivetravelandpublictransportinfrastructureandservices,thenewpolicywillincludeactionsintheareasofbehaviourchange;demandmanagement;andtransport-leddevelopment–includingmulti-modaltransporthubs,transforminghowwetravelthroughthegreateruseofsustainabletransport.
Thenewapproachtopublictransportwillbebasedonavisionofanintegratedpublictransportnetwork,enablingshort,mediumandlongdistancetripsforpeopleineverypartofIreland.Thiswillmeanincreasingthefrequencyofexistingrailandbusservices,andexpandingthebusnetworkthroughtheConnectingIrelandapproach,whileensuringtheirtimetablingtoenableconnectedjourneys.Thisexpansioninpublictransportcapacitywillbothdriveandcaterfortheplannedtransferofmodes.Togetherwithmajormedium-andlong-terminfrastructuralinvestment,thefollowingaresomeoftheotherkeyactionsdesignedtopromotegreatersustainablemobilitythatwillbeimplemented:
• Legislatingforelectricscooters• SupportingLocalAuthoritiesinexpandingsharedmobility(ormobilityasaservice)schemes• Encouragingcargobicycleuse• Creatingagreaterawarenessofroadsafetyamongstallroadusers
Box 15.1 Behavioural Change: Workplace/Area Travel Plans and Safe Routes to School
Supportingbehaviouralchangecanhaveasignificantimpactontraveldemandregardlessofthelevelofinfrastructureinvestment.MobilityManagementPlansinworkplaces,educationalestablishmentsandresidentialdevelopmentshavehadasignificantimpactonthetravelchoicesofemployees,studentsandresidents.TheNationalTransportAuthorityhelpedover150largeemployersand23campusesnationally,coveringover250,000employees,developMobilityManagementPlans.WhereworkplacesactivelyengagedwiththeirWorkplaceTravelPlan,anaveragereductionincarcommutingof18%hasbeenrecorded.
TheSafeRoutestoSchoolprogrammewaslaunchedin2021tosupportwalking,scootingandcyclingtoprimaryandpost-primaryschools.Theprogrammewillinvesttocreatesafewalkingandcyclingrouteswithincommunities,toalleviatecongestionattheschoolgatesandincreasethenumberofstudentswhowalk,scootorcycletoschool.
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15.3.2 System Efficiency and Demand ManagementReducinginternalcombustionengine(ICE)cartripsisessentialifwearetoachieveourtransportemissiontargets.Realisingthisobjectivecanoffermanyco-benefitsintermsofpublichealth,reducedcongestion,andfacilitatingmoreaccessibleandvibrantcommunities.Itisestimatedthat,by2030,fossilfuelledpassengervehiclekilometreswouldneedtodecreasebyupto10%from2019levelsinordertofullyachievea51%emissionsreductionoverall.Reducingoverallpassengerkilometresisnotaboutcancellingtrips,butratheritisaboutreducingtheneedfor,andlengthof,certaintrips.Thatsaidachievingthislevelofreductioninthetimeframeenvisagedpresentsasignificantchallengegiventhattechnologyadvancescanonlyachievesomuchandtheheavyrelianceonthecaramongcertaincohortsofthepopulationandincertainpartsofthecountrywheremoresustainablealternativesarelimited.Forthisreason,thesuiteofpotentialdemandmanagementwillneedtobedeliveredinawaythatachievesajusttransitionandsupportseconomicwellbeing.
ThependingFiveCitiesDemandManagementStudywillidentifythemaindriversof,andthesuitableactionstoreduce,transportdemandinIreland’sfivelargesturbancentres—Dublin,Cork,Waterford,Limerick,andGalway.ThestudyfindingsandrecommendationswillbekeytodevelopingthepoliciesandactionstodeliverontheoverallgoalforareducedlevelofICEtripsby2030.Furtheranalysiswillfollowtoidentifyhowmeasuresidentifiedinthisstudycanbeappliedindifferentregionsandlocationsacross the country�
Governmentplanningpolicywillalsocontinuetoworktoaddresslowdensity/suburbansprawl (whichincreasesthedistancepeoplemusttravel,lockingincar-dependentpatternsofdevelopment andbehaviour)bypromotingcompacturbangrowthasakeymechanismtoenablesustainabledevelopmentaswellasactiononclimatechangeandcongestion.Thiswillinvolvenotjustthedesignofnewdevelopments,butalsotheaddressingofissueswithinexistingdevelopments.Planningpolicywillworkto:
• Reducedemandfortravelbycar,traveldistances,andjourneytimes• Increasetravelchoices,reducecardependency,andmitigatetrafficcongestion• Reduceairpollutionandpromotecleanerandmoreactivemodesoftransport• Sustaineconomicandsocialactivityatstreetlevelcreatingvibrantcommunities• Increaseaccesstoshops,employment,transportservices,andlocalamenitiesbysustainablemodes
WhilemoreworkisrequiredtofullydefinethepathwaystoachievethenecessaryICEkilometresreduction,thebenefitsandchallengesofseveralpotentialmeasureswillbeconsideredincluding:
• Reallocatingroadspacefromtheprivatecartoprioritisewalking,cyclingandpublictransport• Enhancingpermeabilityforactivetravel• Deliveringsaferwalkingandcyclingroutestoencouragegreateruptakeofactivetransport• Improvingtrafficmanagementandtheintroductionoflargercirculationroutes• Encouraginglowerspeeds,employingstrongerspeedlimitenforcementorintime,reviewingdefault
speed limits• Reducingparkingprovisionand/orincreasingparkingfees• Implementinglowemissionzones• Employingroadpricingsystems• Promotingthemostfuel-efficientICEvehicleswithinthelegacyvehiclefleet
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ThefocusoverthecomingmonthswillbeonmodellingandresearchingthevariousoptionsavailabletoreduceICEtripsinajustmanner,intandemwith:
• ConsideringthefindingsoftheFiveCitiesDemandManagementStudy• Identifyingmethodsbywhichourregulatoryandplanningsystemscanbeutilisedtopromoteactive
mobility and sustainable development• ReviewinglegislationwithaviewtoensuringthatLocalAuthoritieshavethenecessarypowerstointroducelowandzeroemissiontrafficzones
15.3.3 Fleet ElectrificationElectrificationofthevehiclefleetoffersapathwaytozerotailpipeemissions,withseveralco-benefitssuchasimprovedairquality,reducednoisepollution,andlessfossilfueldependence.Therearecurrentlyover45,000EVsregisteredonIrishroads,sowhilethenumberhasimproved,thepaceofuptakemustincreaseoverthecomingyearstoachieveourfleetelectrificationtargets.
Subjecttotechnologicaladvances,itisexpectedthatbythemid-2020sEVs(carsandvans)willreachtotalcostofownership(TCO)paritywithICEvehicles.Thismeansthatwhentheaverageconsumerfactorsinboththeup-frontandrunningcosts,anEVwillbeaseconomicaltoownasapetrolordieselequivalent.However,untilTCOparityisachieved,thehighercostofanEVwillremainasignificantbarriertouptake.Rangeanxietyisafurtherimpediment,althoughtechnologyisquicklyadvancingwithnewEVmodelsenteringthemarketcapableoftravelingmorethan500kilometresonasinglecharge.Inparallel,thecontinueddevelopmentofareliablepublicchargingnetworkwillbeneededtosupporttheEVtransition.Inthisregard,itwillalsobeessentialthatadditionalelectricalgridcapacityisavailabletocaterforthisgrowingEVfleet.AsIrelandwillbecompetingagainststrongEU-widedemandforEVs,weneedtoofferarobustpackageofregulatory,taxation,engagementandsubsidymeasurestomaintainasecuresupplyofmodelstoourmarket.TherecentlypublishedEVPolicyPathwayReporthighlightssomewaystoachievethis.
AdedicatedOfficeofLowEmittingVehicles willbeestablished to act as a one-stop-shop for members ofthepublicinterestedinpurchasingorusinganEV.Theofficewillprovideindependent,non-salesadviceandinformationonEVs,andsupporttestdrivingexperiencesaswellascommissioningresearchandassistinginpolicydevelopment.AdditionalmeasuresthatwillbeputinplacetoaccelerateandsupportthemajortransitiontoEVsinclude:
• ContinuedsupportfortheexpansionoftheEVchargingnetwork,alongwithpublicinvestmenttodriveconsumerconfidenceintheavailabilityandreliabilityofpubliccharginginfrastructure
• SettingthestrategyforEVchargingstationswithatargettostayaheadofdemand,coupledwithclearplanningrulesthatfacilitatetheinstallation,andincreasetheobligation,overtime
• Ensuringelectricitygridreadiness,sothatadequateelectricalcapacityisavailabletosupporttherapidpaceoftransitiontoEVs
• ReviewingandupdatingVRTandotherfiscalandregulatoryincentivesintheEVsector,aswellasconsideringfiscalandregulatorydisincentivesforICEvehicles
• Reviewingandamendingbuildingregulationsregardingtheinstallationandrequirednumberofchargingpointsinbothresidentialandnon-residentialbuildings
• Identifyingmeasurestosupporttheshifttoelectricvans• Committingtotransitioningthepublictransportfleettolowemissionalternatives• MakingconversionoffleetstoEVsacentralelementofthemandateforallpublicbodies
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15.3.4 Transitional Measures: Renewable and Alternative Transport FuelsRenewabletransportfuelsrepresentanimportanttransitionalmeasureonthepathwaytoafullydecarbonisedfleet,andmaysupportcertainkeysubsectorsoftransport,suchasheavygoodsvehicles(HGVs),whileimprovedtechnologyoptionsdevelop.Thedeploymentofsustainablebiofuelshasbeentheprimarymechanismusedtodatetoincreasetheshareofrenewableenergyinthetransportsector.IthasalsomadeasignificantcontributiontoreducingGHGemissions.In2020,239millionlitresofbiofuels replaced about 209 million litres42offossilfuels,avoidingapproximately520KtCO2eq� GHGemissions�
TheBiofuelsObligationSchemehasbeeninplacesince2010.Underthescheme,suppliersofcertainfuelstotheroadtransportmarketarerequiredtoincludeacertainproportionofbiofuels,whichmustmeetstrictsustainabilitycriteria,aspartoftheirfuelmix.ThebiofuelscurrentlyinuseinthetransportsectorinIreland,andincludedinthescheme,arebiodiesel(blendedwithdiesel),bioethanol(blendedwithgasolineininpetrol),andbioLPG43 and biomethane�
Reducingarelianceonfossilfueliscentraltodecarbonisingthetransportsector.Itisexpectedthatthetrajectoryoffuelcosts,takingaccountofincreasingcarbontaxesandbiofuelblendrates,willincreasinglynegatethepracticeoffueltourism44inIreland.Fueltourismwasresponsibleforover2%oftransport emissions in 2020�
FreightThetechnologypathwayfordecarbonisingHGVsisstilldeveloping.Policysupportsfordecarbonisingthesectorreflectthisandarenottechnology-specific,withapurchasegrantandreducedtollsavailabletohydrogen, electric,andgas-powered vehiclesalike.Giventhatthesectorismainlyfuelledbydiesel,asatransitionalmeasure,increasingtheblendofbiodieselinthenationalfuelmixwillprovidealevelofemissionssavingsfromthisfleet.Biomethanemayalsoofferemissionssavings.TheEuropeanCommissionhasrecentlyproposedamendingtheAlternativeFuelInfrastructureDirectivetomandatefordedicatedEVHGVrecharginginfrastructure.Ireland’splansforsuchinfrastructurewillalignwiththeregulationwhenitisadopted.
Thesustainabilityanddecarbonisationchallengefacingthefreightsectorisoneoftheissuestobeaddressedbytheforthcoming10YearStrategyfortheRoadHaulageSector.Sustainablepractices,suchaseco-driving,arealsoimportantinthecontextofdecarbonisation,andwillhelptoreduceemissionsandfuelcosts,aswellasimprovingroadsafetyandprovidingupskillingopportunitiesforHGVdrivers.Furthermore,aStrategicRailReviewisunderwaywhichwillexamineallaspectsofinter-urbanandinter-regionalrailconnectivityontheislandofIreland,includingananalysisofrailconnectionstothemajorsea-andair-portsforfreightmovements.
ForHGVs,whereelectrificationisnotlikelyintheshortterm,emissionsreductionswillbeachievedintheinterimthrough:
• Increasingtheblendrateforbiodieselto20%andbioethanolto10%by2030• Developingrobustsupplychains,includingsustainablesourcingofbiofuelblends
42 Biofuelstypicallyarelessenergydensethanfossilfuels43 bioLPGisarenewableformofLiquefiedPetroleumGas44 FueltourismisdefinedasfuelthatisboughtwithintheStatebymotoristsandhauliersbutconsumedoutsidetheState
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• Supportingtechnologicalprogressasviablevehicle/fuelalternativescometomarket• Examiningthefeasibilityofdevelopinglogisticshubsnearurbancentrestoconsolidateandrationalisefreighttransport,takingaccountofsafetyandairqualitybenefits
• SupportingEUregulationsthatpromotemorestringentHGVvehicleemissionstandards• ComplyingwiththeprovisionofEUmandatoryalternativefuelinfrastructuredeploymenttargets
Box 15.2 Action on Non-Road Transport Activities
AsasmallopeneconomyontheperipheryofEurope,theaviationandmaritimesectorsarecriticalforthemovementofourgoodsandpeople.ActionisbeingtakenatEUandinternationallevelstoaddressemissionsfromthesesectors,includingthroughmarket-basedmeasuressuchastheETSandsustainablefuelmandatinginitiatives(throughReFuelEUAviation,FuelEUMaritimeandtheAlternativeFuelInfrastructureRegulationwhichwillallincludebindingtargetsonceadopted).
ContinuedinternationalcollaborationthroughtheInternationalMaritimeOrganizationandtheInternationalCivilAviationOrganization,willbekeytoachievinggreatersustainabilityandpreservingalevelplayingfieldintheseglobalsectors. IrelandwillsupportappropriateactionstakenatEUandgloballevelstoreduceemissionsfromtheaviationandmaritimesectors.
Thecombinedimpactoftheabovesuiteofmitigationmeasuresisestimatedtodeliver5.2MTofareductioninCO2emissionsby2030.Thiswillleaveashortfallof0.9MTinreachingour51%reductiontarget.Moreanalysisisnowrequiredtoconsidertherelativeimpactsoftheoverallsetofmeasuresbeforedetermininghowtobridgethisgap.Forthisreason,itisproposedtoundertakeaprogrammeofworkoverthenextyeartoreviewprogressandfurtherrefinemeasuresinafairandequitablemanner.
15.3.5 Horizon ActionsInnovationandtechnologywillinfluencethetransportsectortransition.Adynamicanditerativeapproachwillbenecessarytodelivertherequiredchanges.FutureClimate Action Planswilladapttonewtechnologiesandbehaviourstoensurethetransitioniseffective,efficient,andequitableforall.Thefollowingrepresenthorizondevelopmentsforthefuture.
Green HydrogenGreenHydrogen45isarenewablefuelofnon-biologicalorigin,whichhasbeenidentifiedashavingpotentialtosupportdecarbonisationenergyproduction,acrosshomeheating,industryandtransport.Hydrogenisaversatileenergycarrierthatmaystoreexcessrenewableenergyfromthegrid.Fromapost-2025transportperspective,itisenvisagedthatgreenhydrogenmaycontributetothedecarbonisationofhard-to-abatesectorssuchasHGVs,shippingandpotentially(asasyntheticfuel)aviation.Greenhydrogencouldalsopotentiallybeusedinthemanufactureofsyntheticfuelsfortransport.ItisbeingconsideredtoextendthescopeoftheBiofuelsObligationSchemetoincludegreenhydrogenandotherrenewablefuelsofnon-biologicalorigin.
Emerging TechnologiesSmartdrivingsolutionsforvehiclessuchasnavigationaids,cruisecontrol,parkingaidsandovertakingassistsystemsarenowfittedtomostvehiclesasstandard.Theirprevalenceinthefleet,alongsideotherinnovations,cansupporttravelefficiencythroughoptimisedrouteguidanceanddriverfeedbackforfuelefficiency.Overtimeautonomousvehiclesofvaryinglevelsmayalsodeliversubstantialchangesintermsofhowwetravel,vehicleownership,andmore.
45 GreenHydrogenusuallyreferstohydrogenproducedbytheelectrolysisofwaterusingrenewableelectricity.Theonlyby-productisoxygen.Therefore,thisisconsideredazero-emissionsgas
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15.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
225 ContinuetheimprovementandexpansionoftheActiveTravelandGreenwayNetwork
226 DevelopmentofacoherentandconnectedNationalCycleNetworkStrategy
227 Constructanadditional1,000kmofcyclingandwalkinginfrastructure
228 EncourageanincreasedlevelofmodalshifttowardsActiveTravel(walkingandcycling)andawayfromprivatecaruse
229 Accelerate sustainable mobility plans for schools
230 LegislatetoimprovetheActiveTravelenvironmentinurbancentres
231 Enableuseofe-scootersande-bikes
232 PublishthenewSustainableMobilityPolicy
233 CommencedeliveryofBusConnectsNetworkRedesignDublin
234 CommencedeliveryofBusConnectsNetworkRedesigninCork,Galway,Limerick&Waterford
235 CommencedeliveryofBusConnectsCoreBusCorridorInfrastructureWorks
236 CommencedeliveryofBusConnectsinCork(CoreBusCorridorInfrastructureWorks)
237 CommencedeliveryofBusConnectsinLimerick(CoreBusCorridorInfrastructureWorks)
238 CommencedeliveryofBusConnectsinGalway(CoreBusCorridorInfrastructureWorks)
239 ImplementanenhancedruraltransportsystemthroughdeliveryofConnectingIrelandRuralMobilityPlan.
240 CommencedeliveryofDART+Programmeandcontinueheavyrailfleetinvestment
241 CommencedeliveryofMetroLink
242 PhasedintroductionofNationalYouthTravelCard
243 ExpandSmarterTravelWorkplacesProgramme
244 ExaminetheroleofdemandmanagementmeasuresinIrishcities,includinglowemissionzonesandparkingpricingpolicies.
245 Publishtheimpactofspeedandspeedlimitsongreenhousegasemissionsandpollutants
246 Continuerolloutofvariablespeedlimits/dynamictrafficmanagementinfrastructureontheM50Motorwaytoincreasesafetyandreducecongestion
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Action Number Action
247 ConductreviewofCommunityCarScheme
248 Requireallcitieswithapopulationexceeding75,000toproduceasustainabletransportplanbynolaterthanJune2020forreviewbytheNationalTransportAuthorityandD/Transport.
249 Balancebettermovementprioritieswithinurbanareassotransitionthebuiltenvironmentandpublicdomainfromonethatis“vehiclecentred”tobeing“peoplecentred”toalignwiththegoalofnetzeroby2050
250 EnsureallmetropolitantransportstrategiesreflectClimateActionPlansectoralemissionreductiontargets
251 Reviewand,ifnecessary,developaregulatoryframeworkforlow-emissionzones
252 Advancedemandmanagementmeasures
253 Explorepotentialofroad-userchargingmeasuresthroughtheBetterRoadUserChargingEvaluation(BRUCE)study
254 Increaseprovisionofparkandride/shareattransportinterchanges
255 DeliverpublictransportcorridorsprovidingprioritisedbuslanesonrelevantnationalradialroutestotheM50
256 DeliversustainablebusprioritymeasuresontheNationalRoadNetwork
257 PublishnewinvestmentframeworkforlandtransportinIreland
258 Awardacontracttosupportthereplacementof78,000lightsinthesouthwestregionaspartofthenationalpubliclightingenergyefficiencyprojectandprogressremaining202,000.
259 Developroadmapforreviewandtransitionawayfromfossilfueltaxsubsidiesintransport sector
260 Examineoptionsfortheequalisationofdieselandpetrolexciseratesoveranappropriateperiodoftime
261 EnsureourregulatoryregimeforbuildingsrequirestheinstallationofEVcharginginfrastructure
262 TransitionDublinMetropolitanPSObusservicestolow/zeroemissionbusfleet.
263 TransitionCork,Galway,LimerickandWaterfordmetropolitanareaPSObusservicestolow/zeroemissionbusfleet.
264 TransitionPSOtownbusservicestolow-emissionbusfleet
265 TransitionPSOLocalLinkbusservicestolow-/zero-emissionbusfleets
266 Developapolicypathwaytodriveasignificantramp-upinpassengerEVsandelectricvansalesand/ordisincentivisefossil-fuelledpassengervehiclesandvans
267 IdentifyoptionstoincreaseEVuptaketosupportthetransitionawayfromgrantsupports
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Action Number Action
268 EstablishanOfficeforLowEmittingVehiclestoco-ordinatetheimplementationofexistingandfutureEVmeasuresandinfrastructure
269 Developandlaunchanextensivecommunicationandengagementcampaign,wholeofGovernmentincoverage,todrivetheavailabilityandunderstandingofkeyinformationregardingEVs,tailoredtohousehold,businessandpublicsectorconsumers
270 EnablegreaterEVinfrastructureroll-outforpassengercarsandvans
271 Developanationalinfrastructurestrategytoaddresson-street,locationandfastcharginginfrastructureneedstostayaheadofdemand,havingparticularregardto non-urban needs
272 LaunchaDestinationChargerSchemetoinstallpubliclyaccessibleEVcharginginfrastructure
273 AmendtheHomeChargerGrantSchemetoincludeapartments
274 SupportthetransitiontoelectricvehiclesinGaeltachtcommunitiesthroughinvestment in EV infrastructure
275 Identifymeasurestosupporttheshiftto95,000electricvans
276 SetaroadmapformoreLEVsinPublicSectorFleets
277 Set out the planned level of biofuel use for the period 2021 to 2030�
278 Rolloutplannedrefuellinginfrastructure
279 CompleteStrategicRailReviewtointeraliaidentifyapathwaytoappropriatedecarbonisationofinterurbanrailservice
280 Publishanupdatedpolicystatementonrenewablefuelsfortransport
281 Supportthedevelopmentofrenewablegas,suchasbiomethane,asatransportfuel in the transport sector
282 Publishthe10-yearHaulageStrategyforHeavyGoodsVehicles
283 Supportthetransitiontoalternativelyfuelledandzero-emissionvehiclesbyremovingthevehicleweightbarrier
284 Promotegreatereco-practiceswithintheHGVsector
285 ImplementtheminimumstandardsandmandatorytargetsidentifiedintheAlternativeFuelsInfrastructureRegulation(AFIR)
286 AssessoptionstoensurecommercialStateportsarepositionedtofacilitatethedevelopmentofoffshorerenewableenergy
287 AssesstheenvironmentalimpactoftheinternationallytradingIrishfleet
288 CarryoutareviewofthesupplyofrenewabletransportfuelsinIreland,suchasbiofuels,advancedbiofuels,e-fuels,syntheticfuels,greenhydrogenandbiogas
289 ThroughtheCoreTransportAdaptationTeam,reviewtheclimateadaptationactivitiescurrentlyongoingandidentifyopportunitiesforfutureimplementationof relevant policy�
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Action Number Action
290 Identifyopportunitiesforcollaborativeresearchintheareaofclimateadaptationfor the transport sector
291 ImproveclimateresilienceandadapttoclimatechangeontheLightrailandNationalRoadNetwork
292 Collaborateandsharebestpracticeonadaptationinthetransportsectorwithrelevantstakeholders
293 Defineasetofmetricstoaccuratelyquantifythecostofextremeweatherevents to the State in terms of both revenues lost and the cost of repairs
294 Commissionresearchonadaptationinthetransportsectortofillexistingknowledgegaps
295 Devisepathwaytodeliveranadditional0.9MTCO2reductioninthetransportsector by 2030
296 Reviewfurtherlinkagesbetweenaccessibilityandclimateaction
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Agriculture 16
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16. Agriculture
16.1 State of PlayTheagri-foodsectorisoneofIreland’slargestindustries.In2020,itaccountedforalmost7%ofmodifiedgrossnationalincome;10%ofexportsinvalueterms;approximately164,400jobsrepresenting7.1%oftotalemployment;and€14billionofexports.
Thehistoricalandeconomicimportanceofagriculturerelativetootherindustriesmeansthatthesectoristhesinglelargestcontributortooverallemissions,at35.2%,representingoveronethirdofIreland’stotalgreenhousegasemissions(GHGs).In2018,GHGemissionsfromagriculturewere14%above1990levels,mainlydrivenbyanincreaseinmethaneemissionsfromentericfermentation(theanimaldigestiveprocess).
ThehighproportionofnationalemissionsrepresentedbyagriculturemeansthatforIrelandto meetitsoverallemissionsreductiontargets,alongwithallothersectors,theagriculturesectormustmakeapositivecontributiontocombatingclimatechangeandsupportingthetransitiontoaclimateresilient,biodiversityrichandclimateneutraleconomyandsocietynolaterthan2050.Additionally, asothersectorsdecarbonise,theshareoftheagriculturecontributiontothenationalemissionsprofilewillincrease.
Table 16.1 – Agriculture GHG Emissions, 2018
Agriculture Emissions CO2eq. Share of Total GHG Emissions Agriculture Emissions CO2eq.
per person22.03Mt46 35.2% 4�5 t
In2018,thesectorproduced22.03MtCO2eq.(8%morethanin2005)drivenmainlybyanincreaseinbovinenumbersandmilkoutput,followingtheendingoftheEUmilkquotasystemin2015.However,agriculturalemissionsdecreasedby4%in2019largelyduetoadecreaseinfertiliseruse(-10.1%)andliming(-25.4%).Ifrecenttrendscontinue,withdairyherdsincreasing,thereisariskthatemissionswillgrowasabatementandefficiencyeffortsareoutstrippedbyherdgrowth.
Irishagricultureisdominatedbylivestockgrazingoutdoors,apasture-basedfoodsystem,whichcomparesfavourablytosystemswhereanimalsarehousedonintensivegrain-basedproductionsystems.Thesectorhasareputationforhighqualityandsustainablyproducedfood,anditisimportantthatwemaintainthatreputation,inaworldwithincreasingconsumerdemandsforcredibleevidencethatfoodandingredientsareproducedsustainably.
46 Based onAR4accounting
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However,thesector’srelationshipwithkeyenvironmentalindicatorshasbeentrendinginthewrongdirection.AgriculturalpracticeshavebeenidentifiedbytheEnvironmentalProtectionAgencyassignificantlycontributingtothedeclineinwaterqualitynationally,withothersectorsalsocontributingtothistrend.Theagriculturesectorisalsoresponsibleforover99%ofnationalammoniaemissions..Furthermore,impactsfromagriculturalactivitiesarereportedashavinganegativeeffectonawiderangeofspecies,includingfish,molluscs,terrestrialmammalsandvascularplants.Theimplementationofmeasurestomitigateagriculturalemissions(suchasuseofstabilisedureafertilisers)hascommenced.Continuedsupportanduptakeofsuchmeasureswillbecriticaltoensureareversalinenvironmentalmetricstomeetourclimateambitionsandprotectthesector’sstronginternationalreputation.
Table 16.2 – Trends in Agriculture GHG Emissions
Timeframe Percentage Change Absolute Change, CO2 eq.2005-11 -9.3% -1.9Mt2011-18 19.1% 3.5Mt
ThroughoutEurope,reducingGHGemissionsinagriculturehasprovendifficult,withonlya2.3%reductionacrosstheEUasawholesince2005.Ourcarbonintensityperheadofpopulationinthesector,at4.5tCO2eq.,issubstantiallyhigherthantheEUaveragereflectingthesignificantrolethattheagriculturalsectorplaysinIreland’seconomicmake-up.
Table 16.3 – Agriculture GHG Emissions International Comparisons, 2018 Ireland Denmark Austria Finland EU 27Share of Total GHG 35.2% 25.8% 10.4% 13.9% 12.4%Agriculture Emissions, CO2eq. per person 4�5 t 2�1 t 0�9 t 1�4 t 1�0 t
Change Since 2005 8.0% -8.4% 0.4% -4.4% -2.23%
Therecentlylaunched‘FoodVision2030-AWorldLeaderinSustainableFoodSystems’strategyadvocatesafoodsystemsapproachtodevelopinganagri-foodsectorthatmeetsthehigheststandardsofsustainability–economic,environmental,andsocial–whilealsoprovidingthebasisforthefuturecompetitiveadvantageofthesector,andisbeingdevelopedtofullyalignedwithourclimateambition.
Table 16.4 – Required Level of Decarbonisation in Agriculture47
2018 Emissions 2030 Required Emissions based on Climate Action Plan 2021
22.03Mt48 16to18Mt
47 https://www.epa.ie/publications/monitoring--assessment/climate-change/air-emissions/irelands-greenhouse-gas-emissions-projections-2020-2040.php
48 Based onAR4accounting
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Climate Adaptation in AgricultureFinally,thesectoralsofacesachallengeinadaptingtotheimpactsofclimatechangeandwillneed tobuildresiliencetoitseffects.Havingarobustagri-foodsectorisnotonlyimportanttothesectoritself,butalsotothenationaleconomyandtoIreland’sglobaltradingpartners.Aclimateresilientagriculturesectorshouldbeabletogrowsustainably,resistclimateshocksandpursueclimatechange relatedopportunities.
Box 16.1 – AR5 Accounting
TheIntergovernmentalPanelonClimateChange’s(IPCC)FifthAssessmentReport(AR5)isoneofthemostcomprehensiveassessmentsofclimatechangeeverundertaken.ItsetsnewstandardsofaccountingforGlobalWarmingPotential(GWP)ofGHGs.
GWPvaluesprovideacommonscaleformeasuringtheclimateeffectsofdifferentgases.Thismeasurementisusedasabenchmarktocomparenon-carbondioxideGHGsagainstcarbondioxide(CO2),withtheGWPofCO2being1.
TheIPCChasprovidedupdatestothesevaluesseveraltimesoverthelastnumberofdecades,eachadjustmentbeingtheresultofsignificantadvancesinscientificunderstanding.
AR5hasrevisedtheGWPformethane,from25inAR4,to28.IthasalsodecreasedtheGWPfornitrousoxidefrom298to265.Theseaccountingchangeswillhaveasignificantimpactonhowweaccountforemissionsacrossallsectors,butparticularlyintheagriculturesectorwherebothmethaneandnitrousoxideareheavilyemitted.ByswitchingfromAR4toAR5,agriculturalemissionsin2018increasefrom22.03MtCO2eq.toapproximately23MtCO2eq�49
Table 16.5 – Potential Metrics to Deliver Abatement in Agriculture
Key Metrics KPI 2030 Additional Abatement Impact, MtCO2eq.
Core Measures
Significantreductioninnitrous oxide emissions by changingfarmmanagementpracticesinrelationtonutrient use
ChemicalnitrogenuseonIrishfarmsmustbereducedto<350,000tonnesby2025and
<325,000tonnesby203065%ofstraightCalciumAmmoniumNitrateto be replaced by protected urea (or other
protectednitrogenproducts)90%uptakeofLowEmission
SlurrySpreading
1�5-2
Improvedanimalbreeding
Numberofdairyherdscarryingoutmilkrecordingfrom50%to90%,andincreasesucklerbeefherdweightrecording
from30%to70%
0�3
49 BasedonAR4accounting
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Improvedanimalfeeding
Reducecrudeproteincontentoflivestockfeedingstuffstominimisenitrousoxideandammonialoss,whileutilisingfeedadditives
duringhousingperiod
0�7
EarlyfinishingageofcattleReducetheaverageageofslaughterofprime animals from 27 to 24 months by
20300�7
IncreasingorganicfarmingIncreasetheareafarmedorganicallyinIrelandfrom74,000hectaresto350,000
hectares by 2030
0�3
Contributeagriculturalfeedstockstotheproductionof 1�6 TWh per annum ofindigenoussustainablyproduced biomethane forinjectionintothegas gridby2030
1.6TWhbiomethaneinjected intogasgrid
0�1-0�2 (agriculturesector)
0.4(energysector)
Further Measures
Diversificationopportunities
Reviewofdiversificationopportunitiesforincomeandlanduseforfarmers,includinginareassuchasbiomethaneandenergyproduction,agroforestryandafforestation
TBD
CarbonfarmingExplore the development of a
carbonfarmingmodelTBD
Methanereducingfeedadditivesforpasture- basedsolutions
Explorethepotentialformethanereducingfeedadditivesforpasture-basedsolutions
TBD
16.2 Targets
To meet the required level of agriculture emissions reduction, by 2030 we will: • Committocoreandfurthermeasurestoreduceemissionsfrom23to16-18MtCO2eq� in 2030
• Workwiththewastesectorintheprovisionoffeedstocks,tocontributetotheproduction of1.6TWhperannumofindigenoussustainablyproducedbiomethaneforinjectionintothe gasgridby2030
• Undertakeaprogrammeofworktorefinethepotentialandtosettargets/pathwaysformeasurestodeliverfurtheremissionsreductions:
• CarryoutadiversificationreviewbasedonLandUseReviewfindings
• Enableacarbonfarmingframeworkbytheendof2023inlinewithEUactivity
• Explorethepotentialformethanereducingfeedadditivesforpasture-basedsolutions
• Enhancedreductionsfromfurtherandearlierimplementationofactionsalreadyidentified
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16.3 Measures to Deliver Targets Morethan80%ofagriculture-relatedGHGemissionsaredirectlylinkedtolivestocknumbersandthemanagementofthemanurestheyproduce,with12%attributedtochemicalfertilisers,andtheremainderfromfuelcombustionandCO2fromlimeusage.
Policieswhichseektoreduceemissionsintheagriculturesectormustrecognisethedirectcorrelationbetweentheanimalnumbers,productionandGHGemissions.Efficienciesandbettertechnologiescaneffectivelybecancelledoutbygrowingemissionsfromherdsizeand/ormake-up.Thedevelopmentofplanstomanagethesustainableenvironmentalfootprintofthebeefanddairysectorswillbecentraltotheachievementofourclimatetargets.
Failuretoimplementsignificantchangesnowwillmeanthatmoreradicalcorrectiveactionwillbenecessarylatertoensuredeliveryofourcommitments.Scientificresearchandinnovation,theaccelerationoftheadoptionofbestpracticesatfarmlevel,andworkinginpartnership,acrosstheentireagri-foodsector,willbecriticaltorealisingourvisionofclimateneutrality.
ALandUseReviewisunderwayledbytheDepartmentoftheEnvironment,ClimateandCommunicationsandtheDepartmentofAgriculture,FoodandtheMarine(seeLandUseReviewsectionintheChapter17).Diversificationreviewsforincomeandlanduseforfarmers,includingareassuchbiomethaneandenergyproduction,agro-forestryandwoodlandcreation,willbecarriedoutfollowingthepublicationofthisreview.
16.3.1 Reducing the Emissions on Our FarmsWewillreduceIreland’sagriculturalemissionsby22-30%,fromabaseof23MtCO2eq.,toreach16-18MtCO2eq.by2030,bycommittingtoasetofcoreandfurthermeasures:
• IncreasingthepaceanddepthofchangeinanenhancedAgClimatiseroadmap.Thiswillbuildonthe2020AgClimatiseandwilllookatfurtheringthetargets,andbringingforwardthemeasurestobeconsistentwithsectoralemissionsceilings
• Chemicalnitrogenuseisresponsibleforapproximately40%ofnitrousoxideemissionsonIrishfarms.TheamountofchemicalnitrogenusedonIrishfarmswillbereducedinlinewithAgClimatisetargetsfromitspeakusageof408,000tonnesin2018,reducingnitrousoxideandammoniaemissionsandimprovingwaterquality.Thismeasurewillinvolveasignificantshiftinthetypeoffertiliserused,withafocusontheuseofnitrogenfertiliserscontaininginhibitorsthatwillmitigatethereleaseofnitrousoxideandammoniaintotheatmosphere.Additionalreductionsinfertilisermaybegainedbytheinclusionoflegumesinswardsandthesowingofmultispeciesswards,aswellasachievingoptimalsoilPH.Theestablishmentofanationalfertiliserregisterwillbenecessarytofacilitatethistransition,togetherwitharevisednitratesprogramme
• Wewillaccelerateactioninanimalbreeding.CowswithahigherEconomicBreedingIndexaremoreefficientproducers,andwillcontinuetoimprovethecarbonfootprintofouranimalproteinproducts.Thefundingofresearchandtheassimilationofdatawillfacilitatethebreedingofbeefanimalsthatareloweremittersofmethane
• Theconstituentsoftheanimal’sdietareanimportantpartoftheoutputsfromourfoodsystem,withthelevelofcrudeproteinfedindairyandpigrationshavingadirectimpactontherelatedlevelofnitrousoxideandammoniaemissions.WewillcontinuetotestnewfeedadditivesunderIrishconditionstoestablishthebestavailabletechnologiesthatdeliveronmethanemitigation,animalwelfare,andfoodsafety,foruseinIrelandduringthewinterhousingperiod
• Wewillcollaboratewithallstakeholdersinthebeefsector,withaparticularfocusonpracticesatfarmlevel,toensurebeefanimalsreachtherequiredweightsatanearlierage
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• WewillsignificantlyincreasetheareafarmedorganicallyinIrelandtoatleast350,000hectaresby2030.ThiswillbeincentivisedthroughtheprovisionofcapitalgrantsandaccesstotheOrganicFarmingScheme
• Improvementsinthehealthstatusofthenationaldairyandbeefherdleadstoincreasedproductivity,andultimatelyreducedemissionsperunitofproduct.Wewillinvesttheresourcesnecessarytoimprovethehealthofthenationalherd,whichwilldeliverimprovedefficiencyandreducedemissions.Thereisanonusontheentiresectortoworktomaketargetedimprovementsoverthecomingdecade
• Wewillincreasethevolumeandqualityofgrazedgrassconsumedbyournationalherdandflock,throughtherolloutoftheTeagascSignpostProgramme–FarmersforClimateAction,andagri-advisoryprogrammes
• TheCommonAgriculturalPolicyStrategicPlan(CSP)willbeanintegraldeliverymechanismtoachieveourclimateambition.TheenvironmentalandclimateambitionwithintheCSPwillbealignedtotheCAP’snew‘greenarchitecture’.ThiswilloperateacrossbothpillarsofCAPexpendituretoachieveacoherentoverallapproach.IrelandwillintroduceEco-Schemesopentoallfarmerswiththeobjectiveofmaximisingfarmerparticipationtoachieveclimateandenvironmentalimprovementsacrossallfarmedlands.Ambitious,environmentallyfocusedPillarIIinterventionswilldeliversignificantlong-termenvironmentalimprovementthroughparticipationbyasignificantnumberoffarmers,witheachmakingastrongclimateimprovementontheirfarm.However,awhole-of-government,whole-of-industryapproachwillbeneededtoachieveouroverallclimateobjectivesastheCSPalonewillnotbeabletodeliveronallthechangesrequired
16.3.2 Further Measures to Reduce Emissions and Increase RemovalsWewillengageinaprogrammeofworktoidentifyopportunitiestofurtherreduceemissionsandincrease removals:
• WewillexamineallthemeasuresintheAgClimatiseroadmaptoensuremaximisationofGHGreductionscanbeachievedwithinsectoralemissionsceilingswhenpublished
• Wewillexplorethedevelopmentofacarbonfarmingmodel,withthepotentialfortrading,andwhichrewardsfarmersforemissionsreductionsandremovals,includingthroughpotentialprivatesectorinvestment.ThisisinlinewiththeEU’spolicydirection.Suchanapproachwillrequiretheestablishmentofbaselinedata,auditing,thedevelopmentofvoluntarycarboncodes,leveragingofprivatefinancingthroughpublic/privatepartnerships,andtheputtinginplaceofgovernancestructures
• Wewillcarryoutadedicatedreviewofdiversificationopportunitiestoidentifywherefurthersavingscanbeachievedthroughdiversification
• Workingwiththewastesectorthroughtheprovisionoffeedstocks,wewillcontributetotheproductionof1.6TWhperannumofindigenoussustainablyproducedbiomethaneforinjectionintothegasgridby2030,representingabout3%ofnaturalgassupply.Theremainingagriculturalfeedstocks,primarilygrasssilageandanimalslurries,requiredtoproduce1.6TWh,aftertheutilisationofwasteresources,couldbeprovidedthroughimprovedproductivityandgrasslandmanagementpracticeswhilekeepingwithinthesustainabilitycriteriaaslaidoutintheRenewableEnergyDirective.Thiswillabate0.1-0.2MtCO2eqperannumfortheagriculturesector,andwilldisplace0.4MtCO2eqperannumfortheenergysector
• Wewillexploreopportunitiesfortheproductionoffurtherlevelsofbiomethaneabove1.6TWh,buildingontheoutputoftheforthcomingNationalHeatStudyandLandUseReview
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• Wewilldoubletheindigenousbiomasssupplyasafossilfuelsubstitutiontogenerateheatandelectricity.ThefellingoftreesisregulatedbytheForestryAct2014whichensuresthatharvestedareasaremanagedsustainably,andenvironmentalrequirementsapply.Thedoublingofbiomasssupplywillmainlycomefromcommercialforestsplantedsincethe1980s
• InvestmentwillbemadeinresearchtodevelopafeedadditivesolutionforIreland’spasture-basedproductionsystem
16.3.3 Agriculture and ResearchTheestablishmentoftheNationalAgriculturalSoilCarbonObservatoryisaveryimportantstepinquantifyingcarbonsequestration.WewillbackthisupwithcomprehensiveprogrammesofmappingandsamplingofIrishsoils.
Aspartofanenhancedresearchprogramme,thereisanurgentneedtodevelopandtestnewandexistingabatementtechnologiestodirectlyreduceagriculturalGHGemissions,and/orincreasedcarbonsequestrationonfarms,tomeettheneedsofclimateneutralitynolaterthan2050.
Underpinningthesestrategieswillbetheneedtoincorporatemeasuresintoinventories.Thiswillrequireresearchtospecifynewemissionfactorsand/ornewwaysofcollatingactivitydata,aswellasensuringthatmeasurescontributetowardsgreaterclimateresilienceintheAgriculture,ForestryandOtherLandUsesector.
EstablishmentofanewAgriculturalGHGCentreofExcellenceisessentialgiventhescale ofthechallenge.
16.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
297 CompleteareviewoftheTeagascMarginalAbatementCostCurve.
298 Reducechemicalnitrogenusetoanabsolutemaximumof325,000tonnes(annually)by2030,withaninterimtargetof350,000tonnesby2025
299 AgreeanewNitratesActionProgramme
300 EstablishNationalFertiliserUserRegistertoallowamoreresourceefficientuseof nutrients
301 IncreaseuseofprotectedUrea
302 Promoteincreaseduseofleguminouscropstofixnitrogeninproductionsystems
303 Increasethenumberofdairyherdscarryingoutmilkrecordingfromthecurrentlevelof50%to90%
304 Increasefocusonselectionfortraitsthatleadtolowermethaneproductioninthebeefbreedingprogramme
305 Introducemeasurestopromoteimprovedefficiencyinlivestock
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Action Number Action
306 Reducethecrudeproteincontentoflivestockfeedingstuffstominimisenitrousoxide and ammonia loss
307 Progressthedevelopmentonfeedadditivesonmethaneemissionsforuseduringthehousingperiod
308 Introducemeasurestopromoteimprovedefficiencyandreducedemissionsinlivestockviaimprovedanimalhealthandwelfare
309 Reducetheaverageageofslaughterofprimeanimalsfrom27to24monthsby2030
310 Increasethecurrentareaunderorganicproductionfrom74,000hato350,000ha by 2030
311 BuildOrganicResearchCapacity
312 ContributetotheCapacityandCapabilityBuildingforAnaerobicDigestion
313 ConductfurtherresearchintobiomassandmanurefeedstocksforbiogasproductionthroughAD
314 IntroduceaHighergrantrateof50%forFarmersforCapitalInvestmentsthatcontributetothewiderrenewableenergypolicy
315 DoubletheBiomassSupplyasafossilfuelsubstitutiontocontributetothedecarbonisationoftheenergysystem
316 ProducedetailedplansbyQ22022tomanagethesustainableenvironmentalfootprint of the dairy and the beef sectors
317 Developanenablingframeworktofacilitatetherolloutofanationalcarbonfarmingprogramme
318 Continuetoinvestinresearchtodevelopnovelfeedadditivestoreducebiogenicmethaneduringthegrazingseason
319 Ensureoptimisationofforageproductiontoimprovequalityandquantityofforageinanimaldiettoimproveentericfermentationefficiency(reducesmethane),throughgrasslandmanagementandinclusionofcloverinreseededswards
320 DevelopandfinaliseappropriateinterventionsunderIreland'sCAPStrategicPlantosupportthemaximumpossibleenvironmental,biodiversityandclimateambitioninCAP2023-2027
321 SupportandexpandResearchCallsandNationalfundinginlinewithDAFMpriorityareasandclimateactionresearchgoals.
322 Supportandexpandinternationalresearchfundingopportunitiesinpriorityareasincludingclimaterelatedareas
323 Establishacentreforexcellenceforinnovationinclimatesmartagricultureandland-usefortheagri-foodsector
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Action Number Action
324 Upskillfarmersandadvisorstoensuretheyhavetheknowledgeandtoolstoimplementclimatemitigation,biodiversityenhancementandadaptationpractices.
325 Identifyknowledgegapsinthehorticulturesectoraroundclimatechangemitigationactionsandaddressareasforchange
326 EstablishexemplarnetworkofSignPostFarmstodemonstratebestclimatepractice.
327 ImplementtheFoodVision2030,inparticularthemissionfor“AClimateSmart,EnvironmentallySustainableAgri-FoodSector”
328 Supportbusinessestodecarbonisethroughtheprovisionofcapitalsupportprogrammestoenhanceenergyefficiencysubjecttotheavailabilityofexchequerfunding
329 PromoteecosystemrestorationandconservationthroughPaymentforEcosystemServicesandinvestmentinactionsthatincreasecarbonsinkswhilepromotingbiodiversitye.g.woodlands,bogs,soilmanagement,hedgerows
330 ImplementthenewAll-IrelandPollinatorPlanfor2021-2025
331 StrengthenadaptativecapacitythroughimprovingknowledgeandawarenessbuildingonClimateActionPolicyintheFoodandDrinksIndustry
332 Improveclimateresilienceincropproduction.
333 IncreasingClimateresilienceinourForestEstate
334 EngageDAFMInternalAdaptationStakeholderGroup(IASG)toreviewDAFMprogressonmainstreamingadaptationinpolicy
335 ConductanInterimReviewoftheAgriculture,ForestandSeafoodSectoralAdaptationPlanandrecommendnextsteps
336 IdentifyprioritystepstowardsbuildingresiliencefromtheseafoodsectionoftheAgriculture,ForestandSeafoodClimateChangeSectoralAdaptationPlantobeactionedin2021
337 UpdateClimateAdaptationImpactandVulnerabilityAnalysis
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Land Use, Land Use Change, Forestry and Marine 17
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17. Land Use, Land Use Change, Forestry and the Marine
17.1 State of Play
17.1.1 Land Use, Land Use Change, ForestryHowweuseandmanagethelandisfundamentaltohowweliveinIreland.Ourlandproducesmuchofthefoodweeat,supportsrenewablepowerforourhomesandindustry,andprovidesthetimberweuseinbuildingourhomes.Itisthebasisfortheecosystemsthatwerelyonforcleanairandwater,andsupportsthehabitats,floraandfaunathatmakeupIreland’suniquebiodiversity.Landuseaffectshowgreenhousegases(GHGs)intheatmosphereareeitheremittedfrom,orremovedby,ourland.
Table 17.1 Land Use, Land Use Change and Forestry GHG Emissions, 2018
LULUCF Emissions CO2 eq. Share of Total GHG Emissions LULUCF Emissions CO2eq.
per person4.8Mt 7% 0�97 t
AcrosstheEU-27since1990,theLandUse,LandUseChangeandForestry(LULUCF)sectorhasbeenanetsinkofGHGemissions,primarilyduetotheextensiveforestcover.Incontrast,theIrishLULUCFsectorhasbeenanetsourceofGHGemissionsinallyearsfrom1990to2019.Thisislargelyduetothecarbonsinkfromtheland-usecategoriesofForestLand,andHarvestedWoodProducts,beinglessthanthe carbon source from Grasslands and Wetlands� Grassland and Wetlands are considerable sources ofemissionsasaresultofthedrainageoforganicsoils.Theland-usecategoryCroplandfluctuatesbetweenbeinganetsinkinsomeyears,andasourceinothers.AllthesecategorieshavethepotentialtobemanagedasnetsinksforGHGs.
Figure 17.1 LULUCF Emissions and Removals, 1990-201950
50 SourceEPA
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Figure 17.1 LULUCF Emissions and Removals, 1990-201950
Table 17.2 – Trends in LULUCF GHG Emissions
Timeframe Percentage Change Absolute Change, CO2eq.
2005-11 -8.3% -0.5 Mt
2011-18 -12.7% -0.7 Mt
LULUCF net emissions have been falling over time. In 2018, they were 4.8 MtCO2eq. A 51% reduction in these emissions means a 2030 target of approximately 2.4 MtCO2eq.. However, this net emissions target for LULUCF is more challenging than it appears. The 4.8 MtCO2eq. net emissions in 2018 represents non-forest land as a source of emissions with our forest sink netted off. This forest sink is reducing, and current Environmental protection Agency (EPA) projections forecast that by 2030 Ireland’s net emissions will reach 7.1 MtCO2eq. Furthermore, this projected net total is expected to increase further with emerging science to a range between 7-11 MtCO2eq. in 2030, with the level of carbon removals from forests on organic soils being less than previously understood.
50 Source EPA
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Table 17.2 – Trends in LULUCF GHG Emissions
Timeframe Percentage Change Absolute Change, CO2eq.2005-11 -8.3% -0.5Mt2011-18 -12.7% -0.7Mt
LULUCFnetemissionshavebeenfallingovertime.In2018,theywere4.8MtCO2eq.A51%reductionintheseemissionsmeansa2030targetofapproximately2-3MtCO2eq..However,thisnetemissionstargetforLULUCFismorechallengingthanitappears.The4.8MtCO2eq� net emissions in 2018 representsnon-forestlandasasourceofemissionswithourforestsinknettedoff.Thisforestsinkisreducing,andcurrentEnvironmentalprotectionAgency(EPA)projectionsforecastthatby2030Ireland’snetemissionswillreach7.1MtCO2eq.Furthermore,thisprojectednettotalisexpectedtoincreasefurtherwithemergingsciencetoarangebetween7-11MtCO2eq.in2030,withthelevelofcarbonremovalsfromforestsonorganicsoilsbeinglessthanpreviouslyunderstood.
Table 17.3 – LULUCF GHG Emissions International Comparisons, 2018
Ireland Denmark Austria Finland EU 27LULUCF Emissions, CO2eq. per person 0�97 t 1�13 t -0�58 t -1�86 t -0�59 t
Change Since 2005 -19.9% 10.9% 51.5% 58% 16%
WhileIreland’sLULUCFsectoriscurrentlyanetsourceofemissions,ithasalreadybeennotedthattherehasbeenadownwardtrendintheseemissions,witha20%reductionsince2005.However,asstated,thistrendisprojectedtoreverse,astheageprofileoftheforeststockmaturesandharvestinglevelsincreaseinlinewithprojectedforecasts.WhenconsideredalongsidecomparableEUmemberstates,wecanseethatthereisasignificantchallengeoverthemedium-tolonger-terminmanagingandreducingLULUCFemissions.ManynationalcarbonsinksacrosstheEUhaveexperiencedsimilarreductionsoverrecentyears,resultingintheEUcarbonsinkreducingby16%between2005and2018.
Table 17.4 – Required Level of Decarbonisation in LULUCF
2018 Emissions 2030 Required Emissions based on Climate Action Plan 2021
4.8Mt 2-3Mt
BasedoncurrentEPAprojections,whicharesubjecttofurtherupwardrevisionbasedonemergingscience,Ireland’snetLULUCFemissionswillreach7.1MtCO2eq.Thisimpliessavingsofatleast4.6MtCO2eq.needtobeachieved.Thesavingsrequiredcouldriseto6.6MtCO2eq.ormore,withrevisionsto the inventories�
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17.1.2 Marine EnvironmentClimatechangeiscausingfundamentalandpotentiallyirreversiblechangestoourmarineenvironment,withconsequencesforallofsociety.Weneedtoincreaseourunderstandingofthemitigationandadaptationpotentialofourseas,andthemarineindustriesitsupports,toinformourfuturepolicies.Expandingoceanliteracy,andpublicawarenessofthevalueofIreland’sseas,willensuresupportforasustainableapproachtomanagingourmarineresources.
Box 17.1 – What is Blue Carbon
BlueCarbonreferstocarbonwhichisstored,orsequestered,intheocean,itssediments,andvegetatedhabitatsaroundourcoast.
TheMarineInstitutecommissionedaspecialreportentitled‘BlueCarbonandMarineCarbonSequestrationinIrishWatersandCoastalHabitats’toreviewandsynthesiseexistingknowledgeinrelationtobluecarbonandmarinecarbonsequestrationinIrishwaters,andtoidentifycriticalknowledgegaps.Followingthisstudy,theMarineInstitute,inJune2021,launchedaresearchcallthatwillbuildournationalcapacityandprovideadviceandevidencetoinformpolicydecisions.
Table 17.5 Potential Metrics to Reduce Emissions in Land Use, Land Use Change and Forestry
Key Metrics KPI 2030Direct Savings
MtCO2eq. in 2030
ForestLandNewafforestationto2030Accountingforafforestationwithremovalsrealised post 2030
0�8
2�1
CroplandIncrease use of cover cropsIncorporationofstraw
0�03
0�04
Grassland
ImprovedmanagementofgrasslandonmineralsoilsReducedmanagementintensity(watertablemanagement)of80,000hectaresondrainedorganic soils by 2030
0�26
0�88
WetlandsBordnaMonaandLIFEPeatlandsrehabilitation (45,000hectares)Afurther20,000hectaresofrehabilitation
0�30
0�20
Total 4.61
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17.2 Targets
To meet the required level of emissions reduction, by 2030 we will: • ReduceIreland’snetLULUCFemissionsby4.6MtCO2eq.in2030againstcurrentprojectedemissionsandconsistentwithachievingcarbonneutralitynolaterthan2050by:
• Increasingourannualafforestationrateconsistentwithrealisingthisambitionandachievingcarbonneutralitynolaterthan2050,includingpromotingforestmanagementinitiativestoincreasecarbonsinksandstores
• 80,000ha.ofreducedmanagementintensity(watertablemanagement)ofgrasslandsondrainedorganicsoils
• Improvingourmanagementforcarbonsequestrationofatleast450,000hectaresofgrasslandson mineral soils
• Increasingtheinclusionofcovercropsintillagetoatleast50,000hectaresby2030
• Increasingtheincorporationofstrawtoatleast10%ofthetillage(cereal)area
• Rehabilitating65,000hectaresofpeatlandsacrossnumerouslandownersandprojects
• Designating30%ofIreland’smarineareaasaMarineProtectedArea
WemustestablishapathwayforourLULUCFsectortobecomealong-termsustainablenetsink,makingapositivecontributiontocombatingclimatechange,andsupportingourtransitiontoacarbonneutraleconomyandsocietynolaterthan2050.TheobjectiveistobringthissectorinlinewiththeoverallEU-27,minimisingemissionsandoptimisingGHGsequestrationopportunities,whilebalancingenvironmental,social,andeconomicconsiderationsacrossseveralsectors.Achievingthiswillyieldsignificantecosystemservicesandbiodiversitybenefits.
17.3 Measures to Deliver Targets
17.3.1 ForestryForestsandforestproductsplayanimportantroleinmitigatingclimatechange.Sustainablymanagedforestsareanetabsorberofcarbon.Usingwoodandwood-basedproductsforconstructionisasustainablesubstituteforconventionalcarbon-heavyconstructionproducts,suchasconcrete,brickandsteel.Afforestationisthesinglelargestland-basedclimatechangemitigationmeasureavailabletoIreland.Managementofourexistingforestsalsoprovidesopportunitiestoincreasecarbonstores:
• ProjectWoodlandwillfacilitatethepreparationofanewforeststrategythatrecognisesthemultiplebenefitsthatforestsprovide
• Wewillcontinuetopromoteafforestationinordertoincreaseplantingtoarateconsistentwithrealisingour2030ambition,andcontributetoachievingcarbonneutralitynolaterthan2050
• AnewForestryProgrammewilllaunchin2023focussingontheimportanceofclimatesmartforestry�
• Wewillafforestinpursuitofcommercial,climate,waterandbiodiversityobjectives,boththroughplantingandnaturalregeneration
• Wewillfacilitatethecreationofsmallnativeforestsaspartofouragri-environmentschemes,avoidingpoorcitingoftreestoensurebiodiversityaswellascarbongoalsaremet.
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• Wewillcontinuetosupportthemobilisationofroundwood,throughinitiativessuchasinvestinginharvestinginfrastructure,andresearchintimberandprocessingindustries
• Wewillincreasethemonitoringoftheforestestatetoreduceillegaldeforestation• Supportwillbeprovidedtoencouragetheincreaseduseofalternativemanagementsystemssuchasclosetonatureforestryandagro-forestry
• Wewillsupporttheconservationandsustainableuseofforestgeneticresources,whichisessentialtoprotectthegeneticdiversityofourforestsandimproveresiliencetoclimatechange
• Wewilldevelopdecisionsupporttoolstoenableforestownerstomakedecisionsontimingofharvesting(suchasextendedrotations)tooptimisecarbonstorage
Box 17.2 – Accounting for Forestry
Globallyforestsareasignificantstoreofcarbonafteroceans.Theycanabsorbandstorecarbonintheirbiomass,soilsandproducts,equivalenttoaboutonetenthofcarbonemissionsprojectedforthefirsthalfofthiscentury.Wemust,therefore,substantiallyincreaseourcurrentratesofafforestationandprovidearangeofforestmanagementmeasurestoincreasecarbonstorageinourexistingforests.However,foreststakedecadestogrow.Ahectareofforestplantedtoday,willremovecarbondioxidefromtheatmosphereasthetreesgrow,butwilldelivermostofitssequestrationintheperiodafter2030..Givenallforestsplantedinthecomingdecadeswillbecriticalforachievingcarbonneutralitynolaterthan2050,itisessentialthatsubstantialafforestationtakesplaceinthisdecade.
TheClimateChangeAdvisoryCouncil(CCAC),initsadvicetotheMinisteronapproachestocarbonbudgets(CCAC3September2021),notesthatasthesettingandaccountingfortargets‘….in the period to 2030 should take account of the unavoidable delay between actions and outcomes in terms of actual reduction in emissions or enhanced removals, with the understanding that many of the actions taken will bear fruit in the post 2030 period. In order to incentivise activity, provision could be made in regulation to account for the committed emissions savings in a shorter time frame, while avoiding double counting.’
Regulationsapprovedbygovernmentwillprovideforthemeanstoaccountforanearlierrealisationofsuchremovals,andhowtheycanbeutilisedforsectoralceilingcompliance.
17.3.2 Agriculture Lands Weneedtoensurethatweuseourlandwell,inawaythatsecuresfamilyfarmincomesandvibrantruralcommunitiesintothefuture.Aswellassustainablyproducingfood,farmerscanberewardedbydevotingpartoftheirlandtoplantingtreesorotherwisecreatingsinkstoabatecarbonemissions.Thegovernmentwillpartnerwiththefarmingorganisationsinthistransition,whichwillbesupportedwithinthestructureofthenextCommonAgriculturalPolicy.Wewill:
• Reducedmanagementintensity(watertablemanagement)ofatleast80,000hectaresofdrained,agricultural,managed,carbon-richsoils.Aswellasreducingourcarbonemissions,therewillalsobeco-benefitsintermsofimprovedwaterquality,increasedbiodiversity,andenhancedresiliencetochangingweatherpatterns51
51 ReducedmanagementintensityofagriculturalmanageddrainedcarbonrichsoilsofferssignificantpotentialforreducingtheCO2emissionsfromthelandusesector.However,thewillingnessoffarmerstorewettheirlandifincentiveswereofferedisdifficulttopredictastheleveloffarmingintensitythatcanbesustainedpostreducedmanagementintensityisfarmandsite-specific.Furthermore,thescaleofreducedmanagementintensityinthelandscapeandcomplexhydrologicalsystemsthereinwillinfluencethecapacitytoreduceemissionsfromtheseecosystems.Assessmentofbestpracticemanagementoptionsforoptimumenvironmentalandproductionoutcomesrequiresresearch.
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• Improveourmanagementofatleast450,000hectaresofgrasslandonmineralsoilsforcarbonsequestration.Improvedpracticescompriseincreasedtimetoreseeding;expandinglegumesinthepasturesward(includingcloverandmulti-speciesswards);avoidingcompaction;andlong-termpasturemanagementplans
• Increasetheinclusionofcovercropsintillagetoatleast50,000hectaresby2030• Increasetheincorporationofstrawtoatleast10%ofthetillage(cereal)area.Choppingandincorporatingthestrawintothesoilincreasessoilorganiccarbon,asorganicmatterisdirectlyinputtedbackintothesoil
17.3.3 Wetlands Peatlandscover21%ofourlandarea,and64%ofourtotalsoilorganiccarbonstock.TheyarethelargeststoreofcarbonintheIrishlandscape.However,thiscarbonstoreisveryvulnerable,forexampletovaryingweatherconditionsandextremeweatherevents.Therehabilitationofdegradedpeatlandstoaconditioninwhichtheyregaintheirabilitytodeliverspecificecosystemserviceshasconsiderablepotentialforinitialmitigationgains,andfuturecarbonsequestration.Additionalbenefitsofpeatlandrestorationincludepositivesocio-economicoutcomesfortheMidlands,increasednaturalcapital,enrichedbiodiversity,improvedwaterquality,andfloodattenuation.Wewill:
• Restore/rewetraisedbogSpecialAreasofConservationandNaturalHeritageAreasassetoutintheNationalRaisedBogSpecialAreasofConservationManagementPlan2017-2022.Suchrestorationmeasures,andhydrologicalmanagementofourprotectedpeatlands,willhaltandreducepeatoxidationandcarbonloss
• Undertakefurtherresearchtoassessthepotentialtosequester,storeandreduceemissionsofcarbonthroughthemanagement,restorationandrehabilitationofpeatlandsasoutlinedintheNationalPeatlandsStrategy
• Upgradeland-useandhabitatmappingsystemstoestablishthebaselineconditionofwetlands,andinformthedevelopmentofbest-practiceguidelinesforwetlandmanagement,includingthemanagementofdegradedsitesandpeatlandscurrentlyexploitedforenergypeatextraction
• Developfurthermeasurestohelprehabilitateexploitedanddegradedpeatlands,includingaspartofnationalland-useplanningandthenewCommonAgriculturalPolicy,andrecognisingthatstrategiesmayneedtodifferbetweenregions
17.3.4 Land Use ReviewLanduseisacrucialclimatemitigationmeasureavailabletoIreland,buttherearesignificantchallengestobeovercometomaximisethepotentialcontributionfromlanduse52.TheProgrammeforgovernmentcommitstoalandusereviewtoensurethatoptimallanduseoptionsinformallrelevant governmentdecisions.
52 ThemajorityofgrasslandsinIrelandareusedforagriculturalpurposesandcoveratotallandareaofcirca4millionhectares.IrelandcalculatesemissionsandremovalsfromgrasslandsandreportstheseemissionsandremovalstotheEUintheannualNationalInventoryReportcompiledbytheEPA.Grasslandsondrainedorganicsoils(~300thousandhectares)arenetemittersofCO2totheatmosphereduetotheoxidisationofthesoilorganicmatterandthecarbonpresentindrainagewaters.TheCO2 releasedduetothedrainageofgrasslandsonorganicsoilsislargerthantheCO2sequesteredbygrasslandsonmineralsoilsand,asaresult,grasslandsareanetemitterofCO2 to the atmosphere�
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Box 17.3 – National Land Use Review
InconsideringIreland’slanduse,theNationalLandUseReviewwill:
• Balanceenvironmental,social,andeconomicconsiderations,andinvolveaprocessofevaluationoftheecologicalcharacteristicsoftheland
• Gatherdataandevidencetoreporton,anddetermine,theenvironmental,ecological,andsocio-economiccharacteristicsoflandcover,landuseandland-basedactivitiesacrossIreland,includinghowtheyinteractwitheachother
• Includeconsiderationofemissionstoairandwater,carbonsequestration,andclimateadaptationchallenges
• Examinethelandavailabilityandsuitabilityforforestryasalandusechangetakingintoaccountbiodiversity and environmental impacts and constraints
Thereviewisbeingcarriedoutintwodistinctphases:
Phase 1 – Evidential Review
Phase1oftheLandUseReviewisalreadyunderway,andwillprovideanevidencebasetodeterminetheenvironmental,ecological,andeconomiccharacteristicsoflandtypesacrossIreland.
Phase 2 – Policies, Measures and Actions
BuildingontheevidencebasefromPhase1,Phase2willidentifyappropriatepolicies,measuresandactionsinthecontextofthegovernment’swidereconomic,socialandclimateobjectives.
Wewill:
• CompletetheNationalLandCoverMapProjectofOrdnanceSurveyIrelandandtheEPAin2022,includinginformingLULUCFaccounting.
• SupportEPAresearchprogrammesonlanduse,biodiversity,andsoils.
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17.3.5 The Marine Environment Ourcoastalcommunitiesandmaritimesectorswillplayasignificantroleincontributingtoourclimategoals,andwillbeconsultedandsupportedinbeingpartofthetransition.
ThestatutoryNationalMarinePlanningFramework53,establishedin2021,setoutobjectivesandpolicies,includinginrelationtoclimatechangeadaptationandmitigation,whichmustbeconsideredinrelationtoallprogrammes,plansorpolicies;andconsenting,approvalsorregulations,inthemaritimearea.Inaddition,managementofIreland’smaritimeareaisbeingreformedthroughtheMaritimeAreaPlanning(MAP)Bill54.Theemergingplan-ledsystemisprovidingafoundationforclimatemeasures,suchasmeetingrenewableenergytargetsthroughoffshorerenewableenergyinstallation,andidentifyingwaysthatallactivitiesinthemaritimeareacancontributetocarbonreductionandadaptationmeasures.
Actionstoprotect,conserveandrestoreourocean,suchasestablishingMarineProtectedAreas(MPAs),willincreasetheabilityofourseastomitigatetheimpactsofclimatechangethroughnaturalcarbonsequestrationandstorageprocesses,andensurethatmarineecosystemsareresilienttotheimpactsofclimatechange.
• TheMAPBilliscurrentlybeingconsideredbytheOireachtaswiththeaimofbeingenactedbytheend of 2021
• Legislationontheidentification,designationandmanagementofMPAswillcommenceatthe end of 2021
• Nature-basedcarbonstorage,andthepotentialresilienceofecosystemstoclimatechangeandoceanacidification,willbeconsideredwithincriteriaforthedesignationofMPAs.IrelandwillexpanditsnetworkofMPAstocoveratleast10%ofitsmarineareaassoonaspossible,and30%by2030
• Theseafoodindustry(fishing,seaweedharvestingandaquaculture)isoneofthekeystakeholdersoperatinginthemarineareaandplaysavitalroleinthesustainabilityofourcoastalcommunitiesaroundIreland.Over16,000peopleareemployedaroundourcoastbothdirectlyandindirectly.Theseafoodindustrywillcontinuetosupportinitiativestoimproveourunderstandingofourmarinearea,ensuringsustainableresourceuse,includingthroughbioandcirculareconomyinitiatives.Ireland’srecentlyupdatedassessmentundertheMarineStrategyFrameworkDirective(Ireland’sMarineStrategyPart1,June2020)indicatedthatatleastsomecomponentsofmarinefoodwebsarechanging.Theimpactsofclimatechangeonecosystemfunctioningwillbecomprehensivelyassessed
• TheMarineInstitutewillcontinueinvestment,undertheMarineResearchProgramme,inresearchcallstoaddressclimatechangeissuessuchasrisingsealevel,oceanacidification,fishdistributionandabundancechanges,bluecarbonstorageandsequestration,coastalerosionandflooding,andextreme storm events
53 https://www.gov.ie/en/publication/60e57-national-marine-planning-framework/54 https://www.gov.ie/en/publication/a1a65-maritime-area-planning-bill/
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17.4 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
338 ProjectWoodlandtodevelopasharednationalapproachfortrees,woodsandforest
339 PreparethenextForestryProgrammepost2014-2020forpublicationin2023
340 ImplementForestryProgramme2014-2022(includes2yearextension)
341 Increasethelevelofafforestationtomeettargets
342 Increase output of forestry licences to meet demand
343 Promotetheroleofafforestationasaclimatesolution
344 Developtoolsforcommunicatingproductivityandclimatebenefitsofforests
345 EncouragetheplantingofsmallwoodlandsaspartofDAFMagri-environmentandafforestationschemes
346 MinimisetheimpactofdeforestationonGHGemissions,whilesupportingwidergovernmentpolices
347 Developandsupportforestsandforestownersinthesustainablemanagementofwoodlandandtheimportanceofclimatemitigationandadaptation
348 Conductresearchintospeciesselectiontoincreaseresiliencetoclimatechange
349 Assesstheimpactofforestcarbonstocks,sinks,andstoreswithintheLandUse,Land-useChangeandForestrysectorandmodelimpactsofdifferentforestmanagementandafforestationscenarios
350 Encourageincreaseduseofalternativeforestmanagementsystems
351 Supportthemobilisationoftimberforuseintheprocessingandbiomasssector
352 Supportthedevelopmentanduseofharvestedwoodproducts
353 Protectandmonitortheforestestateforpestanddiseaseinordertomaintaincarbonstocksandbuildresilience
354 IncreaseClimateresilienceinourForestEstate
355 Ensuretheinclusionofcovercropsintillageto50,000haby2030
356 SupportcapitalinvestmentsintheTillageSector
357 Supportthestrawincorporationmeasuretoreach10%ofTillage(cereal)area
358 Developadditionalcroplandmeasurestoprotectandenhancesoilcarbon
359 Promote450,000haofgrasslandsonmineralsoilsforcarbonsequestration
360 80,000hectaresin2030ofreducedmanagementintensityofgrasslandsondrainedorganicsoils
361 PromoteecosystemrestorationandconservationthroughPaymentforEcosystemServicesandinvestmentinactionsthatincreasecarbonsinkswhilepromotingbiodiversitye.g.woodlands,bogs,soilmanagement,hedgerows
362 Continueinvestmentinpeatlandmapping
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Action Number Action
363 EstablishandRefineunderlyingsoildatatomeasurethenutrientandsoilcarbonin our soils
364 EstablishmentoftheNationalAgriculturalSoilCarbonObservatoryinassociationwiththeSignPostFarmProgramme
365 Establishanationalsoilmoisturemonitoringnetwork
366 Protect,enhance,andincreasethenumberofhedgerowsandtreesonfarms
367 Furtherrefinehedgerowcarbonsequestration
368 Identifyopportunitiesforadditionalpeatlandsforenhancedrehabilitation,tobringsignificantbenefitsandcontributetoIreland’stargetofbeingcarbon-neutral by 2050
369 CompletePhase1EvidentialReviewoftheLandUseReviewinlinewiththeProgrammeforGovernment2020
370 ImplementthenewAll-IrelandPollinatorPlanfor2021-2025
371 Promotionofforestryactivity
372 Research and development in forestry
373 DeliverthefullLandUse,Land-useChangeandForestryflexibilityavailabletoIrelandinthecontextofthe2030greenhousegasemissionstargets
374 Assessthepotentialopportunitiesanddemandfordevelopingadvancedbio-productsdevelopment(bio-fuelsandchemicals)fromlignocelluloseinIreland
375 Exploreandidentifyopportunitiestoincreaseafforestation
376 Supportbiodiversitydatacollection
377 BuildonthecommitmentsmadeundertheNationalBiodiversityActionPlan2017-2021
378 Assessandimplementmitigationoptionsonpost-productionpeatextractionsites�
379 CoordinatetheactionsintheProgrammeforGovernmentregardingpeatlandstomaximisethebenefitsforbiodiversity
380 Continuetoraiseawarenessofbiodiversity
381 Protectandmonitortheforestestateforpestanddiseaseinordertomaintaincarbonstocksandstores
382 Research&development-SoilTellusSoilSamplingProgramme(NationalGeological,Geophysical&GeochemicalProgrammeofGSI)
383 Research&development-PeatThickness-TellusProgramme(NationalGeological,Geophysical&GeochemicalProgrammeofGSI)
384 Conductresearchandengageonhowtosupportclimatejusttransitioninagriculture
385 Restoreandenhancenaturalsystemstoincreaseresilience–startingwithmanaginghydrologicalprocesses,carbonprocessesandpollination
386 PromoteecosystemrestorationandconservationthroughPaymentforEcosystemServicesandinvestmentinactionsthatincreasecarbonsinkswhilepromotingbiodiversitye.g.woodlands,bogs,soilmanagement,hedgerows
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Action Number Action
387 StrengthentheNatura2000networkbyprovidingincreasedcapacityfortheenforcementofhabitatregulations
388 Monitorphenologicalchangeincludinginphenologicalgardens
389 Educateschoolchildrenthroughexisting(HeritageSchoolsProgramme,AnTaisceGreenSchools,CleanCoasts)andadditionaleducationalprogrammestoraiseawarenessofthelinksbetweenbiodiversityandclimatechange
390 Engagestakeholdersinallsectorstoprotectbiodiversityinordertoincreaseresiliencetoclimatechange
391 DevelopafinancialstrategytoimplementtheBiodiversityClimateChangeadaptationplanwhichincludespublicandprivatefundsinnovativefinancialmechanismsandenablesinvestmentfromnationaltolocallevel
392 IncreaseIreland’sknowledgebaseintermsofmarineclimatechangeimpactsandbluecarbonpotentialtoinformthedevelopmentofnationalmitigationactions
393 Increaseoceanknowledgeandsupportresearchandinnovation,investinginresearchandinnovation
394 EstablishmentofanewMaritimeAreaRegulatoryAuthoritytosupportacomprehensive,state-ledmarineconsentingsystembetterabletomanagethestepchangeinscaleandcomplexityofoffshoreprojects,andprovisionsforimproved enforcement mechanisms
395 DevelopamonitoringprogrammeundertheMarineStrategyFrameworkDirectivethatallowsustoassesstheeffectsofclimatechange
396 Developcomprehensivelegislationfortheidentification,designation,andmanagementofMarineProtectedAreasinIrishmarinewaters
397 Increasebroaderpublicunderstandingoftheeffectsofclimatechangeonthesea
398 BuildonthesuccessoftheUNESCODublinBayBiosphereandachievefurtherUNESCOdesignationsforIrishsites,includingtheLoughReeregion
399 Develop criteria for marine protected areas to include nature-based carbon storageandresiliencetoclimatechangeandoceanacidification
400 DevelopaDemonstrationNaturalCapitalAccountsmodelfortheseafoodsector
401 IdentifyareasofclimateactionappropriatetotheSeafoodDevelopmentProgramme2021-27
402 CompletetheNationalStrategicPlanforSustainableAquaculture,includingclimate measures
403 PublishtheSeafoodCarbonFootprintStudy,providingadetailedanalysisofthecarbonfootprintofthecatchingandaquaculturesectors
404 Completeapilotstudyonimprovingthecarbonefficiencyoffishinggeardesign
405 Maintainparticipationrateof96%intheCleanOceansInitiativeandbringthefisheryharbourcentresinlinewiththePortReceptionFacilitiesDirective
406 Developastudytotestdifferentseaweedscultivationtechniquesforeventualinclusionincattlefeedtoreducemethaneproduction
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The Circular Economy 18
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18. The Circular Economy
18.1 The Challenge of Sustainable Use of ResourcesThecirculareconomyoffersanalternativetotoday’slinear(‘take-make-waste’)modelofproductionandconsumption,inwhichweextractgreatquantitiesofnaturalresourcestomakethingsthatwemayuseonlyoncebeforethrowingthemaway.Inthecirculareconomy,resourcesarekeptinuseforaslongaspossible,themaximumvalueisextractedfromthemwhileinuse,beforeresidualresourcesarethenrecoveredandregeneratedintonewproductsandmaterialsattheendofeachlifecycle.Thecirculareconomyis,therefore,aninherentlyregenerativesystem,whichminimisesoravoidstheemissionsandothernegativeenvironmentalimpactsassociated,byreplacingalinearlifespanwithaclosedloopformaterials.Achievingthiscirculartransitionwillrequiresignificantlevelsofinnovationinrelationtothedesignofbothproductionandbusinessmodels.
ThefocusoftheWasteActionPlanforaCircularEconomyisonincreasingrecycling,minimisingwastegenerationbyprioritisingthepreventionofwasteateveryopportunitythrougheco-design,reuseandrepair,andincreasingsegregation.Thecirculareconomyandclimateactionarealsoinherentlyinterlinked.AnOECDstudyoffourcountries’greenhousegas(GHG)emissionsfoundemissionsarisingfrommaterialmanagementaccountedforbetween55%and65%ofnationalemissions.Ireland’smaterialconsumptioniswellabovetheEUaverage,indicatingthatthereisscopeforsavingsinGHGemissionsthroughmaximisingtheefficiencyofourmaterialusage.
Ourcurrent,linearproductionandconsumptionmodel(basedonproduce,useanddispose)issignificantlycarbonandresource-intensive.Weneedtomovetoamoresustainableproductionandconsumptionmodelbychanginghowweconsumematerialsandresources,howwedesigntheproductsthathouseholdsandbusinessesuse,andhowweextendtheproductivelifeofallgoodsandproductsinoursocietyandeconomy.Anestimated1tonneofwasteperhomeperyearleadstoGHGemissionsthroughwastebeingcomposted,landfilled,orincinerated.Avoidingwasteinthefirstinstanceisaclimateactionwecandoeveryday.
Thesesavingswon’tbedirectlycreditedtoanysector,butwillbetriggeredacrosssocietythrougharadicalchangeinthewaywethinkaboutthecirculareconomyandtheavoidanceofwasteateverylevel,fromtheproducer,theprocessor,andtheretailertotheconsumer.
18.2 State of PlayFromaclimateperspective,theshifttoacirculareconomyisparticularlyimportantatboththeresourceextractionanddisposalphasesoftheproductormateriallifecycle.Forexample,50%oftotalGHGemissionscomefromresourceextractionandprocessing,whileiffoodwastewereacountry,itwouldbethethirdlargestglobalGHGemitter,behindonlyChinaandtheUnitedStates.Reducingtheresourceintensityofoureconomyis,therefore,anessentialcomponentofachievingnetzeroemissions.
With a circularity rate55of1.6%,IrelandlagssomewaybehindtheEUaverageof11.9%.Improvingthisratewillyieldsavingsnotonlyintonnesofmaterialswasted,butalsoincarbonemitted.TheforthcomingWhole-of-GovernmentCircularEconomyStrategywillprovideanoverallnationalpolicyframeworkforthecirculartransition,andwillincludemeasurestoimproveIreland’scircularityperformanceabovetheEUaverageby2030.ThesemeasureswillmakeprovisionforCircularEconomySectoralRoadmapswhichwillinturn,includeprioritywastepreventiontargetsinsectorswhereincreasingcircularitywillhaveasignificantimpact:construction,transport,agri-foodandconsumergoods,andadditionalenterprisesupportstodevelopinnovativebusinessmodelsandsustainableproductinnovation.
55 Circularityrateindicatestheshareofmaterialwhichisrecoveredandfedbackintoaneconomy
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18.2.1 The Bioeconomy Thebioeconomy,whichisafacetwithinthecirculareconomy,encompassesarangeofactivitiesacrossmanysectors,includingagriculture,themarine,forestry,waterandwastemanagement,energy,aswellasbiopharmaceuticals.Itisthepartofoureconomywhichusesrenewableresourcessuchascrops,forestry,andfisheriestoproducefoodandproducts,aswellasenergy,whilealsoreducingwaste.Increasingthescopeofthebioeconomywillmeandiminishingourrelianceonfossil-basedfuelsandcarbonintensiveresourcesandwillboostouruseofrenewablebiologicalresources.
TheGovernment’svisionforthebioeconomy,assetoutintheNationalPolicyStatementontheBioeconomy,istogrowIreland’sambitiontobeagloballeaderforthebioeconomythroughaco-ordinatedapproachthatharnessesIreland’snaturalresourcesandcompetitiveadvantage,andthatfullyexploitstheopportunitiesavailablewhilemonitoringandavoidingunintendedconsequences.
Sincethepublicationofthenationalpolicystatement,aHigh-levelBioeconomyImplementationGroupconsistingofGovernmentDepartmentsandAgencieshasbeenestablishedbytheDepartmentoftheEnvironment,ClimateandCommunicationsandtheDepartmentofAgriculture,FoodandtheMarine.ThegrouphastakenforwardanumberofmajoractionsincludingthesettingupofaNationalBioeconomyForumofindustryrepresentativesandexperts,whichwaslaunchedinJuly2021.ItisanticipatedthatboththeNationalBioeconomyForumandtheHigh-levelBioeconomyImplementationGroupwillinformpolicydirectionandmakepolicyrecommendations,includingfordetailedactionstobereflectedinlateriterationsoftheClimateActionPlan,andotherrelevantpolicydocuments.
AnimportantobjectiveofthebioeconomyistoaidIreland’stransitiontoacarbonneutralandcirculareconomy.Forthisvisiontoberealised,itisessentialthatwehaveacoherent,horizontalapproachtopolicy-makingacrosssectors.
18.2.2 Minerals and the Circular Economy Mineralshaveacriticalroletoplayinrealisingthetransitiontoacircularandresourceefficienteconomy.Thecirculareconomyconceptadvocatesasignificantlyreducedprimaryresourceextraction(i.e.miningofprimarymetalsandminerals)infavourofsecondarymaterial(recycledmetalsandminerals)flowingthroughinternalloops.However,evensuchacircularsystemmaystillneedrawmaterialstofacilitatethegreeneconomy.Forexample,toachievethenationaltargetofonemillionelectricvehiclesby2030,asignificantincreaseintheavailabilityofbasemetalswillberequiredtoallowforthemanufactureofbatteriesandothercomponents.TheInternationalEnergyAgencyestimatesthattheamountofcopperneededtosupplyelectricvehicleswillincreasebyalmosttwomilliontonnesby2030,andtherearealsoprojecteddemandsurgesfornickel,cobalt,lithium,aluminium,manganeseandotherminerals.Similardemandsareprojectedonothermetalsandmineralstomeettherequirementsofthegrowinggreentechnologysector,andthesedemandscannotbemetthroughrecyclingaloneinacircular system�
18.2.3 Waste WhenitcomestotheformalinventoryofGHGs,itisemissionsfromwastetreatmentthatarereportedunderthewastesector(predominantlymethaneemissionsasaresultofdisposaltolandfill).Thegainsinreducingmaterialuse,andsubstitutingvirginmaterialwithrecycledmaterial,willbecreditedbackupthesupplychain.Minimisingwastegeneration,andimprovingsegregation,reuseandrecycling,willleadtolessemissionsassociatedwithwastetransportandtreatment.Inthisway,materialmanagementwhichleadstowastetreatmentaccountsfor1.5%ofIreland’stotalGHGsin2018.
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Table 18.1 – Waste GHG Emissions, 201856
Waste Emissions CO2 eq.
Share of Total GHG Emissions
Waste Emissions CO2eq. per person
0.91Mt 1.5% 0�2 t
WasteemissionsperheadarelowerinIrelandcomparedtotheEUaverage.Emissionshavefallensince2005,butnotasmuchasinotherMemberStatesorcomparedtotheEUaverage.Irelandhasmadesignificantprogressinmanagingwastestreams,particularlyinimprovingrecyclingratesanddiversionfromlandfill.Ambitioustargetshavebeenadoptedfor2030.
Table 18.2 – Waste GHG Emissions International Comparisons, 201857
Ireland Denmark Austria Finland EU 27Share of Total GHG 1.5% 2.4% 1.8% 3.2% 3.1%Emissions, CO2eq. per person 0�2 t 0�2 t 0�2 t 0�3 t 0�3 t
Change Since 2005 -29.7% -8.8% -49.1% -35.2% -23�8 %
ThekeypolicytoolswhichhavebeensuccessfulinIrelandare:
• Levyonlandfillanddiversionregulations• Widespreadsegregationofwaste,capturingrecyclablesandbiodegradablewaste• Industry-supportedrecyclingoperations• Regionalwasteplanning
However,toachieveourtargetsalltheseareasneedimprovement,particularlytodevelopbetterpreventionstrategies,improvecapturerates,andreducebothcontaminationandtheamountofnon-recyclable materials�
WastepolicymeasuresoutlinedintheWasteActionPlanforaCircularEconomywillhaveasignificanteffectonwasteminimisation,reuseandrecyclingratesoverthenextfiveyears.Thelatestreleaseofdataonbiodegradablemunicipalwaste(BMW)tolandfill,reportsthatIrelandmetthe2010,2013and2020targetsundertheLandfillDirective(1999/31/EC)58.Ireland’ssuccessindivertingwastefromlandfillisunderpinnedbytwokeylevers:increasesinthelevyfordisposalofwastetolandfill,andrequirementstodivertBMWfromdisposaltolandfillundertheLandfillDirectivetargets.59
Table 18.3 – Required Level of Decarbonisation in Waste
2018 Emissions60 2030 Required Emissions Based on CAP 20210.91Mt 0.77Mt
56 http://www.epa.ie/pubs/reports/air/airemissions/ghgemissions2017/57 EEA(2021),AnnualEuropeanUniongreenhousegasinventory1990–2019andinventoryreport202158 EEA(2021),AnnualEuropeanUniongreenhousegasinventory1990–2019andinventoryreport202159 Therateofthelevyiskeptunderreview,currentlyat€75atonneforliablewastedisposedatlandfill60 http://www.epa.ie/pubs/reports/air/airemissions/ghgemissions20197/
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18.3 Targets
Circular Economy • AnWhole-of-GovernmentCircularEconomyStrategywillbepublishedbyend-2021
• TheCircularEconomyBill2021belegislatedfor,puttingtheCircularEconomyStrategyonastatutoryfooting
The Bioeconomy • ReporttoGovernmentwithanupdateontheimplementationoftheNationalBioeconomyPolicyStatement,includingadetailedactionplanby2022
• Opportunitiestoexpandbothskillsandfundingmechanismsforthebioeconomywillbeexplored
Waste Landfill Reliance:
• Limitdiversionofbiodegradablemunicipalwastetolandfilltomaximumlimitof427,000tonnesby2020,andforeveryyearafter
• Reducetheamountofmunicipalwastelandfilledto10%by2035 Recycling:
• Recycle65%ofmunicipalwasteby2035
• Recycle70%ofpackagingwasteby2030
• Recycle55%ofplasticpackagingwasteby2030
• Separatecollectionobligationsextendedtoincludehazardoushouseholdwaste(byend2024),bio-waste(byend2023),andtextiles(byend2024) Food:
• Reducefoodwasteby50%by2030
Plastic Single-Use Items:
• Providefor90%collectionofplasticdrinkscontainersby2029
• Determineandintroducereductiontargetsandmeasuresnolaterthan2022tobe achieved no later than 2026
• Ensureallplasticpackagingisreusableorrecyclableby2030
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18.4 Measures to Deliver Targets
18.4.1 Circular Economy• WewillfinaliseIreland’sfirstWhole-of-GovernmentCircularEconomyStrategytoensurepolicycoherenceacrossthepublicsector,andtooutlineGovernment’soverallapproachtothecirculareconomyforstakeholdersandthepublic.Thiswhole-of-GovernmentapproachwilloutlinethedetailedmeasuresIrelandwilltaketoadvanceourcirculareconomy
• WewillbringtheCircularEconomyBill2021throughtheOireachtas,thegeneralschemeofwhichwasapprovedbyGovernmentearlierthisyear.Thislegislationwillgofurtherbytranslatingthispolicyapproachintoastatutoryrequirement.Itwillalsoprovidethenecessarystatutoryunderpinningtoarangeofactionsthatwillstrengthenwasteenforcementinrelationtoillegaldumpingandlittering
18.4.2 Bioeconomy Measures• TheHigh-LevelNationalBioeconomyImplementationGroupwillreporttoGovernmentontheimplementationoftheNationalBioeconomyPolicyStatementbyearly2022
• TheHigh-LevelNationalBioeconomyImplementationGroupwillsetoutathree-yearactionplanforthe bioeconomy in 2022
• TheNationalBioeconomyForumwillproviderecommendationsandadvicetoaidtheadvancementofthebioeconomy.ItisexpectedthatthisprocesswillresultinrecommendationsforfutureiterationsoftheClimateActionPlan,keypoliciesandotherkeyGovernmentstrategieswhicharerelevant to the bioeconomy
• Wewillidentifywhereeducation,trainingandskillgapscurrentlyexistonthebioeconomyinIreland• Wewillidentifyandengagewithpotentialfundingmechanismsfordemonstrationactionswithin
the bioeconomy
18.4.3 Mineral Exploration Measures • AdraftPolicyStatementonMineralExplorationandMiningwillbefinalisedin2021.Thiswillpromotetheenvironmentallysustainableexplorationandextractionoftheessentialmineralsrequiredtotransitiontoacircularandclimateneutraleconomy
18.4.4 Waste MeasuresIrishandregionalwastepolicyisbasedonthewastehierarchy:wasteprevention;preparingforreuse;recycling;andenergyrecovery;withdisposalbeingtheleastdesirableoption.ItisimplementedbytheGovernment,LocalAuthoritiesandtheEPA.Wearetransformingourapproachtowasteinlinewithmodern,circulareconomyprinciples61.Thisinvolvesamind-setchangetodemandthehighestlevelofprotectionforournaturalandman-maderesourcesandtheenvironment.Irelandhasscopeformajorprogressinallofthekeyareasofthewastehierarchy.
61 ThesignificanceoftheCircularEconomyindeliveringsustainablegrowthandpromotingclimatechangemitigationisreflectedininternationalpolicyframeworks.Goal12oftheUNSDGs(SustainableProductionandConsumption)setsoutaseriesoftargetsthatincluderesourceefficiency,wastedfood,wastemanagement,reuseandrecycling,publicprocurement,education,andremovaloffossilfuelsubsidies.TheEUCircularEconomyActionPlan,ClosingtheLoop,adoptedin2015,includesanambitiousnewlegislativeframeworkforwastemanagement,aswellasEco-designproposalstoimproveproductdurability;foodwastereductionactions;andproposalsforreuseofwaterandbio-nutrients,seehttps://eur-lex.europa.eu/resource.html?uri=cellar:8a8ef5e8-99a0-11e5-b3b7-01aa75ed71a1.0012.02/DOC_1&format=PDF
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Prevention Priorityareasforpreventionplanningareinplastics,food,constructionandcommercialwaste:
• TheWasteActionPlanforaCircularEconomyoutlinesthemeasuresIrelandistakingtosubstantiallyreducetheamountofsingle-useplasticitemsweuse,andtosustainablymanagethewastearisingfromthosethatwedouse.From3July2021,thedateoftranspositionoftheSingle-UsePlasticsDirective,single-useplasticcutlery,plates,straws,balloons,andcottonbudsticksmaynotbeplacedontheIrishmarket.Thisbanwillalsoapplytoexpandedpolystyrenecupsandfoodcontainers,andallproductscontainingoxo-degradableplastic.TheplanalsodetailsIreland’sambitiontoleadEUeffortsondealingwithdisposablecoffeecups,throughtheintroductionofalattelevyandaneventualbanondisposablecoffeeandcolddrinkscups
• Modulatedfeeswillbeextendedtoencouragetheuseofrecyclablecomponentsinpackagingproducts.Weshalldevelopafoodwastepreventionroadmaptodeliverourcommitmenttoreducefoodwasteby50%by2030
Recycling and Reuse Thereisgreatscopeforimprovedperformanceinrecycling.Only43%ofIrishhouseholdshadabrownbinin2018.Over30%ofwhatgoesintotheblackbincouldhavebeenrecycled.Contaminationrateshavetobereducedastheycanoftendestroyrecyclingforawholeload.Asignificantchallengeshallbetoreachtheplasticrecyclingtargetof55%by2030,witha90%collectiontargetforbeveragecontainers.However,anumberofinitiativeswillbeintroducedtoassistinattainingthesegoals,including:
• ExpandingtheExtendedProducerResponsibilitySchemetonewwastestreams• UsingmodulatedfeestoensurethatallpackagingplacedontheIrishmarketisreusableorrecyclableinaneconomicallyviablewayby2030
• IntroducingadepositandreturnschemeforplasticandaluminiumbeveragecontainersbyQ32022• PromotingtrialsofbetterpublicrecyclingopportunitiesonstreetandatBringCentres• WorkingwithindustrytoexpandinitiativessuchasthePlasticsPledge• Workingwithindustrytoimprovelabellingtoavoidconfusionorambiguity• Targetingtheimprovementofkeycaptureratesbyextendingsegregatedcollectionwhereitisnotnowavailable,andpromotingbetterpractice
• Implementingthetargetof30%replacementofvirginplastictoberecycled• Introducingleviesondisposableswheresustainablealternativesareavailable• Improvingsegregationandcollectionperformancetoincreaserecyclingandreducecontamination• Usingourstrengthenedenforcementstructuresandmeasurestoensurewemaximisesegregatedmaterialcollection.Wewilldrivetransparencyandinformation-sharinginmaterialsmanagement.Householders,businessesandthepublicsectorasconsumersofresourcesneedclearandreliableinformationabouttheirbehaviour,anditsimpact,beforesustainedbehaviourchangecantakeplace.Toachievethiswewillexaminewaystostrengthendatareportingandappropriateinformationsharingtobuildstakeholderconfidence
• Improvingthetake-upofcollectionservices,withtheWasteActionPlanfortheCircularEconomycommittingtoensureeveryhouseholdonacollectionservicewillhaveaccesstoathree-bin(recyclables,food/organic,andgeneralwaste)system
• Usingresearchanddevelopmentfundingtodriveinnovativedevelopments• Promotingtheoptimaluseofdatatoexploreandidentifyopportunitiesforefficienciesandsynergiesinouruseandreuseofmaterialresources
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18.5 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
407 PublishaWhole-of-GovernmentCircularEconomyStrategyandpromotetheCircularEconomy,includingfocusonawarenessraising,GreenPublicProcurementandinternationalpartnerships
408 EnacttheCircularEconomyBill2021
409 EstablishaCircularEconomyInnovationScheme,focusingonprovidingfundingforalimitednumberofregionaland/ornationalscalecirculareconomyprojects,withthecapacitytosignificantlyraiseawarenessofthecirculareconomyand/orimproveconsumptionpatternsinrelationtospecificproductcategoriesorwithinspecificsectors
410 Strengthentheregulatoryandenforcementframeworksforthewastecollectionandmanagementsystem,tomaximisecirculareconomyprinciples
411 Reducedemandforvirginrawmaterialsandsupportre-use,bykeepingmaterialoutofwastestreamsthroughstreamlinedEnd-of-WasteandBy-Productdecision-makingprocessesandnationalEnd-of-WastedecisionsforspecificConstructionandDemolitionwastestreams
412 ReconfigurethecurrentNationalWastePreventionProgrammeasaCircularEconomyProgrammeforIrelandtodrivethetransitionforbusiness,citizensandthe public sector
413 ContinuetodrivetherolloutofCirculEire,thenationalcirculareconomyplatform
414 TheHighLevelNationalBioeconomyImplementationGroupwillreporttoGovernmentanddevelopadetailedBioeconomyActionPlanin2022
415 TheBioeconomyForumwillcontributetothedevelopmentofactionsinfutureiterationsofkeypoliciesandstrategies
416 TheBioeconomywillbereflectedacrosscirculareconomystrategiesandpolicieswhererelevant,andregulatorybarrierswillbeexamined
417 Fundingmechanismsforbioeconomyinnovationatdemonstrationlevelwillbeexplored,aimingtoachievecoherenceacrossnationalfunds
418 Opportunitiestoincreaseskillsinthebioeconomywillbeexplored
419 Developapolicystatementonmineralexplorationandminingthatsupportsthesustainablesupplyofmineralsrequiredtotransitiontoaclimateneutraleconomy,particularlyintermsofthematerialsrequiredforrenewableenergy,energystorage(batteries),themovetoadigitaleconomy,andelectrifyingthetransport system
420 DevelopaFoodWastePreventionRoadmapthatsetsoutaseriesofactionstodeliverthereductionsnecessarytohalveourfoodwasteby2030andpromoteourtransitiontoacirculareconomy
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421 Enhancefoodwastesegregation,collectionandtreatment(anaerobicdigestionandcomposting)
422 DevelopandimplementanewRegionalWasteManagementPlansthatwillguideourtransitiontoacirculareconomy
423 Developnewandexpandedenvironmentalleviestoencouragereducedresourceconsumptionandincentivisehigherlevelsofre-useandrecycling
424 Identifyopportunitiestostrengthentheregulatoryandenforcementframeworksandstructuresforthewastecollectionandmanagementsystem,tomaximisethecollectionofclean,segregatedmaterialsforreuseand/orrecyclingfromallhouseholdsandbusinesses,andtoincentiviseconsumerstoreduce,reuseandrecycle
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Ireland’s International Action on Climate Breakdown 19
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19. Ireland’s International Action on Climate Breakdown
19.1 IntroductionClimatechangeisaglobalchallengewhichrequiresaglobalresponse.Toachievethegoalsetbythe ParisAgreement,tolimitglobalwarmingto1.5°to2°Cabovepre-industriallevels,countriesmustreduceemissionstonetzeroassoonaspossible. Irelandiscommittedtorealisingthegoalsofthe ParisAgreement,championingprogressiveaction,andensuringthemostvulnerableareattheheart ofallourengagement.
Climatechangecontinuestoreshapetwenty-firstcenturyinternationalrelationsacrossdevelopinganddevelopedcountries.Astheimpactsofclimatechangebecomemoreintense,extremeweatherevents,foodinsecurity,degradationoflandandlossofnaturalresourcesincrease.Theseeffectsmultiplytheoccurrenceofhumanitariancrises,migrationanddisplacement,andfuelinsecurityandthepossibilityofconflictforthemostclimate-vulnerable.Forthesereasons,supportingandpromotingacollectiveglobalefforttoaddressclimatechangeisapriorityforIreland.
ClimateactionsupportsbroaderIrishdiplomaticpriorities,includingtherealisationofhumanrights,themaintenanceofinternationalpeaceandthesecurity,anddevelopmentofsustainablefoodsystems.Inourbilateralandmultilateralengagements,Irelandhasaroletoplayinsupportingandencouragingothercountriestoachievetheirtargets,includingbysharingtheexperiencesofourownclimateactionefforts.
ClimateactionalsoprovidesentrypointsforrealisingtheaimsofA Better World,ourpolicyforinternationaldevelopment.IthasenabledIrelandtouseitsstronginternationalpresencetosupportpeopleinLeastDevelopedCountries(LDCs)andSmallIslandDevelopingStates(SIDS).Ithasenabled ustoamplifythevoicesofthesecountriesinclimatechangedecision-making.Irelandwillcontinue tosupportLDCsandSIDSinpreparingforaclimateresilientfuture,standinginsolidaritywith countriesthathavedonetheleasttocontributetotheproblemofclimatechange,andyetfacetheharshest impacts�
Inmakingourcontributiontowardscollectivegoals,suchasthecommitmentbydevelopedcountriestoachieve$100billionperyearinclimatefinancefordevelopingcountries,wecontinuetoinfluenceinternationalclimateaction.
Tosupporttheseefforts,theGovernmentwilldevelopaClimateFinanceRoadmapandaClimateDiplomacyStrategybytheendofQ12022.ThisStrategyandRoadmapwillbedevelopedthroughaninterdepartmentalprocessandwillelaborateandexpandontheprioritiessetoutinthischapter.ImplementationoftheroadmapandstrategywillhelpinformannualupdatesoftheClimateActionPlan.
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19.2 State of Play
19.2.1 Policy DevelopmentsBuildingoninternationaldevelopmentpolicies,includingA Better World and Ireland’s Strategy for Partnership with Small Island Developing States,newregionalstrategiesforAfricaandAsiahavebeendevelopedandincludestronginternationalclimatecommitments.Ireland’s Strategy for Africa to 2025 commitstoworkingcloselywithAfricanpartnerstosupportimplementationoftheParisAgreement,andtoensurethatresourcestotackleclimatechangearemadeavailablewheretheyaremostneeded.
Ireland’sstrategyforAsiaPacific, Delivering in the Asia Pacific Region to 2025 acknowledgesthatmanyofourpartnersintheAsiaPacificregionareparticularlyvulnerabletoclimatechange,withconsiderablenumbersofpeoplelivingindenselypopulatedcoastalareas.ThisstrategyreiteratesourcommitmenttoincreaseoursupportforSIDsinthePacific,includingthroughtheprovisionof€12milliontothe‘IrelandTrustFund’,aspeciallydesignedfundattheAsianDevelopmentBanktohelpSIDsdeveloptheirresiliencetoclimatechangeandnaturaldisasters.
AswithotherGovernmentDepartments,theDepartmentofForeignAffairs(DFA)hasestablishedaClimateUnittounderpinandcoordinatetheDepartment’seffortsonclimatechangeandtohelpsupport,shapeandscale-upIreland’sclimatediplomacyandclimatefinancingatagloballevel.TheClimateUnitactsasahubforanetworkofclimatefocalpointsacrosstheDepartment’sUnitsandMissionsabroad.
TheDepartmentofFinancehasalsoenhancedtheorganisationalcapacityoftheClimateandInternationalFinanceDivision,andwillfurtherdeepenengagementonsustainableandinternationalclimatefinancethroughinternationalforumsincludingtheEuropeanUnion(EU)andMultilateralDevelopmentBanks(MDBs).
19.2.2 Climate DiplomacyIreland’sclimatediplomacyhasastrongfocusonadaptationandresilience,whichareimportantissuesforclimatejustice.Itexplicitlyfocusesontheneedsofcountriesandcommunities,whoareleastresponsibleforcausingclimatechange,havelimitedresourcestorespondandadapt,andwhohavemosttolose.Attheheartofourworkisacommitmenttodevelopmentprinciples,gender,andafocusonthosefurthestbehind.Prioritycontinuestobegiventolocally-ledadaptation,whichchannelsfundstocommunitiesonthefrontlinesofclimatechange,supportingajusttransitiontoclimateresilience.
Inaddition,Irelandhasanincreasingfocusonsustainableoceans,andontheeffectsofclimatechangeoninternationalpeaceandsecuritythroughourclimatediplomacyasoutlinedbelow.
Inourclimatediplomacy,particularlythroughourbilateralmissionnetwork,Irelandcansupport effortsonclimateactionbysharingtheexperienceofourowneffortstoachieveclimateneutrality no later than 2050�
New Areas of FocusRecognisingthesignificanceofoceansinregulatingtheglobalclimateandtheirimportanceinsupportingadaptationincoastalcommunities,sustainableoceansandocean-basedclimateactionisadevelopingpolicypriority.ThisbuildsonnationalcommitmentswithrespecttoMarineProtectedAreasandparticipationintheHighAmbitionCoalitionforNatureandPeople,whichaimstoprotectatleast30%oftheworld’slandandoceansby2030.
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Theimpactsofclimatechangeoninternationalpeaceandsecurityisanotherareaoffocus.AsamemberoftheUnitedNations(UN)SecurityCouncilandco-chairoftheInformalExpertGroup(IEG)ofMembersoftheSecurityCouncilonClimateandSecurityfor2021,Irelandplaysanimportantleadershiprole.TheIEGoffersaforumforSecurityCouncilmemberstobuildtheirunderstandingofhowclimatechangecontributestoinsecurityandhowclimateactionhelpstopromotesustainablepeace�
Multilateral ForaIrelandengagesstronglyinmultilateralforaonclimateaction.ThisincludesourworkthroughtheEU,theUN,InternationalFinancialInstitutions(IFIs),theOECDandothers.
IrelandisastrongsupporteroftheParisAgreementandtheUnitedNationsFrameworkConventiononClimateChange(UNFCCC)processasthemultilateralmechanismtodriveglobalclimateaction.IrelandengagesinnegotiationsundertheUNFCCCthroughitsmembershipoftheEU.Ireland’sNationalClimateDelegationtotheConferencesoftheParties(COP),organisedbytheUNFCCCeachyear,isledbytheMinisterfortheEnvironment,ClimateandCommunications,andcomprisesrepresentativesfromarangeofGovernmentDepartmentsandAgencies.TheDepartmentoftheEnvironment,ClimateandCommunications(DECC)asChairoftheNationalClimateDelegation,managesandcoordinatesIreland’spreparations.AspartoftheDelegation,DECCalsoleadsIreland’sengagementintheEUpreparations,representingIreland’sinternationalclimateprioritiesinthedevelopmentofEUpositionsfortheCOP.AnumberofDepartmentsandAgenciesarealsoactivemembersintheEUExpertandIssueGroups,rangingacrosskeypriorityissues,includingadaptation,finance,science,andagriculture.
TheEUcontinuestobeagloballeaderinclimateactionwithambitiousclimatepolicy,aswellassupportingotherPartiesthroughitsclimatefinanceinitiatives,andwillcontinuetochampionenvironmentalintegrityandprogresstheobjectivesofUNFCCCandParisAgreementinthenegotiations.In2020,theEUlaunchedtheEUAdaptationStrategy,whichalignswellwithIreland’sapproachtoclimatechangeaction.
IrelandisoneofjustthreedevelopedcountriestoholdaseatintheLeastDevelopedCountriesExpertGroup(LEG),theonlybodymandatedbyPartiestotheUNFCCCtoprovidededicatedsupporttoLDCs.TheLEGassiststhesecountriesintheireffortstodesign,planandimplementNationalAdaptationPlansandfacilitatesaccesstofinancialandtechnicalsupport.ToboostcapacityforgendermainstreaminginUNFCCCclimatenegotiations,IrelandfinancestheSecretariat,andsupportsanon-governmentalorganisationpartnertopromotefeministclimatejustice.IrelandisalsoanactivememberoftheIntergovernmentalPanelonClimateChangewhichprovidesscientificassessmentsusedtoinformclimate policy development�
Irelandparticipatesinanumberofclimatediplomacynetworksincluding:theEUClimateAmbassadorsGroup,aninformalregulargatheringofEUClimateAmbassadors;theEUGreenDiplomacyNetwork;theOECDDevelopmentAssistanceCommitteenetworkonclimateandenvironment,Environet; aswellasvariousforaonadaptation,climatefinance,andotherrelatedissues.Thesenetworks, alongwithinformalnetworkssuchastheNordic+climateenvoysgroup,areimportantforknowledgegatheringandsharing.IrelandworkswithIFIsandMDBstosupportinvestmentsinhigh-qualityenvironmentallysustainableprogrammesworldwide,andencouragetheseorganisations’alignment withtheParisAgreement.
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19.2.3 Climate FinanceIreland’spolicyforinternationaldevelopment,A Better World,recognisesclimateactionasamajorpriorityinlightofthethreatitpresentstotheachievementoftheSustainableDevelopmentGoalsandinfuellinghumanitarianneed.Ourinternationalclimatefinanceistargetedathelpingthepooresttoadapttoclimateimpacts,inthesectorsthatmostaffectthepoor-andinthepoorestcountries.
In2015,Irelandpledgedtoprovide€175millioninpublicfundingforclimatefinancemeasuresindevelopingcountriesovertheperiod2016to2020.In2018Irelandachievedthisgoal,andin2019providedover€93millionininternationalclimatefinance.Thissupportisnearly100%grant-basedandprioritisessectorsthatareofmostrelevancetothepoorest,includingagricultureandfoodsecurity,energyandsocialprotection.
Intunewithdevelopmentandhumanitarianneeds,Ireland’sinternationalclimatefinanceisprimarilyfocusedonadaptationaction.Basedontheneedsidentifiedbynationalandsub-nationalactors,Irelandsupportsactionstoaddressthe‘locked-in’effectsofclimatechangethatcannotbereversed,sothoseonthefrontlinescancopewithandbuildresiliencetotheseeffects.ThisrangesfrominsuranceagainstfloodingrisksintheCaribbean,todroughtresistantseeds,technologyforwaterharvestinginaridareas,andhumanitariansupportforcommunitiesaffectedbyclimate-inducedemergencies.
UndertheProgramme for Government,IrelandhascommittedtoatleastdoublingthepercentageofOfficialDevelopmentAssistancethatisspentoninternationalclimatefinanceby2030,increasingourcontributiontotheglobalfloorof$100billionperyear.Toenablethis,wewilldevelopaClimateFinanceRoadmap.Werecentlycommittedtoincreasingourannualclimatefinancecontributionto€225millionby2025.LevelsofsupportwillcontinuetobemeasuredinIreland’sannualClimateFinanceReport,andamethodologytostrengthenclimate-proofingofallOfficialDevelopmentAssistancewillalsobedevelopedin2021.
19.2.4 Phasing Out of Fossil Fuel Extraction and Hydraulic FracturingIrelandhasrecognisedtheimportanceofthephasingoutoffossilfuelextractionatadomesticlevelwiththeendingofissuingnewlicencesforhydrocarbonextraction.Inaddition,theGovernmentpublishedastatementontheimportationoffrackedgasinMay2021.Irelandwillworkdiplomaticallytoencourageafullphaseoutoffossilfuelextractionbymeansofhydraulicfracturingataninternationallevelwithinthewidercontextofthephasingoutoffossilfuelextractionglobally.
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19.3 ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
425 Makeeffortsthroughourdiplomacytoensurethatclimatechangeisrecognisedasadriverofinstabilityandclimateactionisanopportunityforpeacebuildinginmultilateralforawhereappropriate,includingpreparingaClimateDiplomacyStrategy
426 Placeclimateaction,especiallyforLeastDevelopedCountriesandSmallIslandDevelopingStates,attheheartofalldevelopmentcooperationandpolicypartnerships,aswellasourengagementinmultilateralprocesses
427 ConstructiveparticipationinnegotiationsonanewUNConventionontheLawoftheSea(UNCLOS)ImplementingAgreement
428 Double,atleast,thepercentageofODAspendingonclimatefinanceby2030,and report on our expenditure each year
429 Developandimplementapproachestoclimate-proofallODA,andcontinuetoincludeclimateasacorethemeinstrategydevelopmentinthecountrieswhereIrelandhasasignificantdevelopmentcooperationprogramme
430 Promotethedevelopmentofthesustainablefinancesectorinternationally,includingpreparingaClimateFinanceRoadmap
431 TheGovernmentwillworkwithlike-mindedEuropeanStatestopromoteandsupportchangestoEuropeanenergylaws–inparticulartheupcomingrevisionoftheEuropeanUnion’sGasDirectiveandGasRegulation–inordertoallowtheimportationoffrackedgastoberestricted
432 TheGovernmentwillworkwithinternationalpartnerstopromotethephasingoutoffrackingataninternationallevelwithinthewidercontextofthephasingoutoffossilfuelextraction
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Sustainable Development Goals 20
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20. Sustainable Development Goals
20.1 Introduction TheactionssetoutinthisPlanarealsoareflectionofIreland’scommitmenttoachievingthe2030AgendaforSustainableDevelopment.The17SustainableDevelopmentGoals(SDGs)areasetofglobaldevelopmenttargets,agreedbytheUnitedNationsin2015,toachieveamoresustainablefutureforallby2030.Thegoalsareallinterconnectedandaddressenvironmental,economic,andsocialchallenges.
SDG13istotakeurgentactiontocombatclimatechangeanditsimpacts.Itisattheheartofthisplan.However,manyoftheactionsalsocontribute,bothdirectlyandindirectly,totheprogressofotherSDGs.Fromahigh-levelperspective,itisclearthattheclimateactionsandinitiativessetoutinthisplanprimarilypromotefiveotherkeySDGsandrelatedgoals(inadditiontoSDG13):
20.2 SDG 7 – Affordable and Clean EnergySDG7linkstotheobjectivesofChapters6and7–JustTransition;Chapter11–Electricity;andChapter13–BuiltEnvironment,inwhichthekeyclimatechangeobjectivesoffairlyreducinggreenhousegas(GHG)emissionsareaddressedbysubstantiallyincreasingaccesstorenewableenergyandenergyefficiencymeasures,withafocusonthoseatriskofenergypoverty.ParticularSDGtargetsbeingpromotedthroughthisplanare:
• SDG7.2:increasingtheshareofsustainableenergyintheglobalenergymix• SDG7.3:doublingtheglobalrateofimprovementinenergyefficiency
IncreasedenergyefficiencyalsohelpstopromoteadditionalSDGsincluding:improvinghealth(SDG3)throughreducedairpollution;creatingnewjobs(SDG8);andtacklingclimatechange (SDG13).
Related Goals
Sustainable Development Goals
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20.3 SDG 15 – Life on Land, and SDG 2 – Zero HungerSDG15seektoprotect,restoreandpromotethesustainableuseoflandsandforests,inadditiontohaltingbiodiversityloss.SDG2istoachieve‘zerohunger’.KeyactionsrelatedtothesegoalscanbefoundinChapter7–JustTransition;Chapter16–Agriculture;andChapter17–LandUse,LandUseChange,ForestryandtheMarine.ParticularSDGtargetsbeingpromotedthroughthisplaninclude:
• SDG15.1:theconservationandsustainableuseofterrestrialandinlandfreshwaterecosystems• SDG15.2:managingforestssustainably• SDG15.3:restoringdegradedland• SDG2.4:ensuringsustainablefoodproductionsystemsandimplementingresilient agriculturalpractices
MakingagriculturalproductionmoresustainablehelpspromoteadditionalSDGsincluding:improvedwatermanagement(SDG6);andeconomicgrowth(SDG8).
Related Goals
20.4 SDG 11 - Sustainable Cities and CommunitiesSDG11isfocusedonmakingcitiesandcommunitiesmoresustainable.ItissupportedbymeasuresinChapter10–CarbonPricingandCross-cuttingPolicies;Chapter13–BuiltEnvironment;Chapter15–Transport;andChapter18–TheCircularEconomy.ParticularSDGtargetsbeingpromotedthrough this plan include:
• SDG11.2:providingaffordableandsustainabletransportsystems• SDG11.3:ensuringinclusiveandsustainableurbanisation• SDG11.6:reducingtheenvironmentalimpactofcities
MakingcitiesandcommunitiesmoresustainablehelpspromoteadditionalSDGsincluding:goodhealthandwell-being(SDG3);buildingresilientinfrastructure,promotinginclusiveandsustainableindustrialisation,andfosteringinnovation(SDG9);andreducingmarinepollution(SDG14).
Related Goals
Sustainable Development Goals
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20.5 SDG 12: Responsible Consumption and ProductionSDG12aimstoensuresustainableconsumptionandproductionpatterns.ActionstosupportthisgoalareinChapter12–Enterprise;andChapter18–TheCircularEconomy.ParticularSDGtargetsbeingpromotedthroughthisplaninclude:
• SDG12.4:managingwasteresponsibly• SDG12.5:sustainablyreducingwastegeneration
ConsumingandproducinggoodsresponsiblyhelpspromoteadditionalSDGsincluding:providing cleanwaterandsanitationforall(SDG6);generatingaffordableandcleanenergy(SDG7);and buildingresilientinfrastructure,promotinginclusiveandsustainableindustrialisation,andfosteringinnovation(SDG9).
Related Goals
20.6 Policy Coherence Policycoherenceisakeyobjectiveofthe2030Agenda62.ItisintendedthatfutureiterationsofthisClimateActionPlanwillmapthenationalclimateactionsagainsttheSDGindicators,toclearlyidentifywherethesynergieslieandwheretheremaybepossibleconflictsorgaps.ThismappingwillsupportenhancedreportingandmonitoringofSDGimplementation.
ImplementationoftheSDGsinIrelandisdrivenbyIreland’sSDGImplementationPlan.
62 SDG 17�14: enhance policy coherence for sustainable development
Sustainable Development Goals
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Adaptation 21
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21. Adaptation
21.1 What is Climate Adaptation?Adaptationistheprocessofadjustmenttoactualorexpectedclimateanditseffects63� It is not a one-timeemergencyresponse,butaseriesofproactivemeasuresthataretakenovertimetobuildtheresilienceofoureconomyandsocietytotheimpactsofclimatechange.Thiscanultimatelyhelpminimisetheemergencyresponsethatisnecessarywhensevereweathereventsoccur.
Unlikeclimatemitigation,thereisnosinglemetricformeasuringthesuccessofadaptationto climatechange.Asaresult,thepolicytargetsforadaptationatglobalandEuropeanlevelsaremorevariable.Successfuladaptationgenerallyrequiresitsconsiderationtobeintegratedintodecision-makingandpolicies(mainstreaming),acrossmanysectoralpolicieswhichmightbevulnerabletoclimate changeimpacts.
Workundertakenintheareaoffloodriskmanagementtodateprovidesagoodillustrationofthisprinciple.Floodriskpreventionstrategiesoftenmakeuseofassessmentsoflong-termchangesinfloodintensityandfrequencybasedonclimateprojections.Thiscanbuildlong-termresilienceintoflooddefencestocopewithconditionsthatmayariseinthefuture.
Adaptationmeasurestakemanyshapesandforms,dependingontheuniquecontextofacountry,region,community,businessororganisation.Adaptationseekstominimisethecostsandmaximisetheopportunitiesarisingfromclimatechange.Adaptationactionsrangefrombuildingadaptivecapacity(e.g.increasingawareness,sharinginformationandtargetedtraining)throughtopolicyandfinancebasedactions.Adaptationactionsshouldberisk-based,informedbyanunderstandingofprojectedclimatechange,aswellastheexistingvulnerabilitiesofoursocietyandsystems.
Althoughtheimportanceofadaptationisincreasinglyrecognisedglobally,atEuropeanUnion(EU)andnationallevels,multiplereportshighlightthelackofpreparedness64.Reportsofextremeweathereventsandtheirimpactshaveanalmostconstantpresenceinthemedia,andtheincreasedintensityandfrequencyofweathereventsduetoclimatechangeisagrowingfeatureinglobalpolicymaking.
21.2 Global and EU PositionTheIntergovernmentalPanelonClimateChange(IPCC)SixthAssessmentReport,publishedin2021,notesthatmanychangesintheclimatesystemsignificantlyincreaseindirectrelationtorisingglobaltemperature.Theseincludeincreasesinthefrequencyandintensityofhotextremes;marineheatwaves;heavyprecipitation;agriculturalandecologicaldroughtsinsomeregions;intensetropicalcyclones;andreductionsinArcticseaice,snowcoverandpermafrost.Continuedglobalwarmingisprojectedtofurtherintensifytheglobalwatercycle,includingitsvariability,globalmonsoonprecipitation,andtheseverityofwetanddryevents.
63 IntergovernmentalPanelonClimateChange(IPCC),FifthAssessmentReport(AR5)64 AdaptationGapReport2020,GlobalCommissiononAdaptationreportsAdaptNowandStateandtrendsinadaptation2020
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Climate-relatedriskstohealth,livelihoods,foodsecurity,watersupply,humansecurity,andeconomicgrowtharealsoprojectedtoincreasewithglobalwarmingof1.5°Candwillincreaseevenfurtherifwereach2°C.In2020-oneofthethreewarmestyearsonrecord-theglobalaveragetemperaturewas1.2°Cabovethepre-industrialbaseline.Physicalclimaterisks,whentheymaterialise,canerodephysicalassets,andcausebusinessdisruptionandlabourmigration,withpossibleadverseimplicationsbothforassetvaluationsandbroadereconomicoutcomes.Between1980and2017,forexample,economicdamagesof€453billionwererecordedasaresultofnaturaldisastersintheEuropeanEconomic Area65�
TheEUrecentlynotedthattheworldhasjustconcludedthehottestdecadeonrecord,duringwhichtherecordforthehottestyearwasexceededeighttimes66.Haltingallgreenhousegas(GHG)emissionswouldstillnotpreventtheclimateimpactsthatarealreadyoccurring,andthatwillcontinueoverthecomingdecades.OureffortstoreduceGHGemissionsarenecessarytopreventtheworstimpactsofclimatechangebutwewillstillneedtoadapttotheimpactsthatareinevitablenomatterhowsuccessfulglobalmitigationeffortsare.
TheIPCCWorkingGroup1ContributiontotheSixth AssessmentReportmakesanumberofhigh-levelprojectionsforEuropeasawhole,andofmorespecificrelevanceintheIrishcontext.AnumberoffurtherprojectionsaremadefortheNorthernEuroperegion.Thereportprojectsthattherewillbe:
• Anobservedincreaseinpluvialfloodingattributedtohumaninfluenceandprojectedtofurtherincreaseatglobalwarmingof1.5°C(medium confidence)and2°Candabove(high confidence)
• Aprojecteddecreaseinriverfloodingatglobalwarmingof2°Candabove(medium confidence)• Aprojectedincreaseinseverewindstormsatglobalwarmingof2°Candabove(medium confidence)
TheEuropeanGreenDeal,theEU’sgrowthstrategyforasustainablefuture,isbasedontheconceptthatthegreentransformationisanopportunityandthatfailuretoactonclimatechangehasahugecost�
TheEUlong-termvisionisthatin2050theEUwillbeaclimate-resilientsociety,fullyadaptedtotheunavoidableimpactsofclimatechange.Thismeansthatby2050,whentheEUaimstohavereachedclimateneutrality,itwillalsohavereinforceditsadaptivecapacityandminimiseditsvulnerabilitytoclimateimpacts,inlinewiththerequirementsoftheParisAgreementandtheproposedEuropeanClimateLaw67�
TheEuropeanClimateLawprovidesthefoundationforincreasedambitionandpolicycoherenceonadaptation.Itsetsboththeframeworkforachievingclimateneutrality,andtheambitiononadaptationby2050,byintegratingtheinternationally-sharedvisionforactionintoEUlaw(i.e.theglobalgoalonadaptationinArticle7oftheParisAgreementandSustainableDevelopmentGoal13).ItcommitstheEUanditsMemberStatestomakecontinuousprogresstoboostadaptivecapacity,strengthenresilienceandreducevulnerabilitytoclimatechange.
TheEuropeanGreenDealalsopointstotheneedforadditionaladaptationactionspecficallythroughthedevelopmentofanewEUAdaptationStrategy68� Forging a climate-resilient Europe –theEUStrategy
65 FinancialStabilityReview2021:I(centralbank.ie)66 EUhttps://ec.europa.eu/commission/presscorner/detail/en/IP_21_66367 EuropeanClimateLawCOM/2020/80final68 EUStrategyonadaptationtoclimatechangeCOM(2013)216final
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onAdaptationtoClimateChange,waspublishedinFebruary2021inrecognitionofadaptationasacrucialcomponentofthelong-termglobalresponsetoclimatechange.
ThestrategyaimstoincreaseandacceleratetheEU’seffortstoprotectnature,peopleandlivelihoodsagainsttheunavoidableimpactsofclimatechange.Buildingontheworkalreadycarriedoutasaresultofthe2013EUAdaptationStrategy,thenewStrategyoutlinesalong-termvisionofcreatingaclimate-resilientEUby2050bymakingadaptationsmarter,moresystemicandswifter,andbysteppingupinternationalaction.
ThestrategyidentifiesthatthefrequencyandseverityofclimateandweatherextremesacrosstheEUisincreasing69.Thishascausedasurgeinthefrequencyandseverityofdisastersoverthelasttwodecades70.TheseextremesrangefromunprecedentedforestfiresandheatwavesrightabovetheArcticCircle,todevastatingdroughtsintheMediterraneanregion;andfromhurricanesravagingtheEU’soutermostregionstoforestsdecimatedbyunprecedentedbarkbeetleoutbreaksincentralandeasternEurope.Slowonsetevents,suchasdesertification,lossofbiodiversity,landandecosystemdegradation,oceanacidification,orsealevelriseareequallydestructiveoverthelong-term�
WatershortagesintheEUhaveaffectedeconomicactivitiesasdiverseasagriculture,aquaculture,tourism,powerplantcooling,andcargoshippingonrivers.Itaffectsnotonlytheeconomy,butalsothehealthandwell-beingofEuropeans,whoincreasinglysufferfromheatwaves(globally,thedeadliestdisasterof2019wastheEuropeanheatwavewith2,500deaths).Itisalsoposingriskstofoodsecurity,worseningexistingsocialinequalities,andthreateningculturalheritage.
Economiclossesfrommorefrequentclimate-relatedextremeeventsareincreasing.IntheEU,theselossesalreadyaverageover€12billionperyear.Conservative,lower-boundestimatesshowthatexposingtoday’sEUeconomytoglobalwarmingof3°Cabovepre-industriallevelswouldresultinanannuallossofatleast€170billion(1.36%ofEUGDP71).
21.3 Policy Measures for IrelandObservationsshowthatIreland’sclimateischangingintermsofsealevelrise,increasesinaveragetemperature,changesinprecipitationpatternsandweatherextremes.Temperatureshaveincreasedbyabout0.9°Covertheperiodfrom1900to2019-anaverageofabout0.075°Cperdecade.Theoveralltrendisupwardsandconsistentwithglobalpatternsofchange.
Climatechangeisexpectedtohavediverseandwide-rangingimpactsonIreland’senvironment,societyandeconomicdevelopment,includingonmanagedandnaturalecosystems,waterresources,agricultureandfoodsecurity,humanhealthandcoastalzones.ThemostimmediateriskstoIrelandfromclimatechangearepredominantlythoseassociatedwithchangesinextremes,suchasfloods,droughtsandstorms�
Ireland’sprimaryadaptationpolicyresponsetothesechallengesissetoutinourfirststatutoryfive-yearNationalAdaptationFramework(NAF)72,whichwaspublishedinJanuary2018.TheNAFidentifies12key
69 https://www.eea.europa.eu/highlights/soer2020-europes-environment-state-and-outlook-report70 https://www.undrr.org/news/drrday-un-report-charts-huge-rise-climate-disasters71 https://ec.europa.eu/jrc/en/peseta-iv/economic-impacts72 NationalAdaptationFramework
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sectorsrequiringsectoraladaptationplans.TheseplanswereapprovedbyGovernmentandpublishedinOctober2019.Thesectoraladaptationplansaregroupedunderfourthemesassetoutinthe followingtable.
Table 21.1 – Sectoral Adaptation Plans and Themes
Theme Sector Level Lead Department for Sectoral Adaptation Plans
Natural and Cultural Capital
SeafoodDepartmentofAgriculture,Food
andtheMarineAgricultureForestry
Biodiversity DepartmentofHousing,LocalGovernmentandHeritageBuiltandArchaeologicalHeritage
Critical Infrastructure
Transport Infrastructure Department of TransportElectricityandGasNetworks DepartmentoftheEnvironment,
ClimateandCommunicationsCommunicationsNetworks
Water Resource and Flood Risk Management
FloodRiskManagement OfficeofPublicWorks
Water Quality DepartmentofHousing,LocalGovernmentandHeritage
Water Services InfrastructurePublic Health Health DepartmentofHealth
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Thecompletedsectoralplansdescribeandassesstheextentoftheriskspresentedbyclimatechangetoasector,andpresentcontingencyplanstoaddresstheserisksandensureclimateresilience.Theyincludeactionstomainstreamadaptationintopolicyandadministrationatsectorallevel,aswellastoimprovecooperationandcoherencewithinandacrossothersectors.
Box 21.1 - Potential Impacts of Climate Change in Ireland
SomeoftheimpactsofclimatechangethatcouldpotentiallyimpactprioritysectorsinIrelandinclude:
• Precipitationextremesandflooding,resultingindisruptionoftransportservices,unsafedrivingconditionsandgradualdeteriorationofinfrastructure
• Increasedwaterdemandasaresultoftheincreasedfrequencyofheatwaves,leadingtofurtherstrainonwatertransmissionanddistributionnetworks,aswellasonsupply(abstractionandstorage)
• Projectedincreasesinthefrequencyofextremeprecipitationeventsmayresultinmorewater-bornedisease(e.g.E.coli)fromcontaminationofdrinkingwaterasaresultofoverlandflowsofpollutants.Projectedincreasesinannualaveragetemperature,combinedwithwetterconditions,mayresultinenhancedenvironmentalconditionsforbacterialgrowthandviralsurvivalwithapotentialincreaseinfood-bornedisease
• Projectedincreasesinsealevelsandstormsurgewillresultinincreasedfrequencyofcoastalfloodinganderosion,withsignificantimpactsforcoastalandheritagesitessituatedinproximityto the coast and on estuaries
• Projectedincreasesintheintensityofwindstorms,andinthedurationofthegrowingseason,mayresultinincreasedwind-throwleadingtodamagetooverheadpowerlines
• Projectedincreasesinthefrequencyofheatwaveswillresultindegradationofcommunicationsinfrastructure(e.g.streetcabinets),potentiallyleadingtoanincreasedrequirementforactivecooling
• Projectedchangesintemperatureandprecipitationwillresultinthearrivalofinvasivespeciesmoresuitedtochangedclimateconditions,someofwhichmayhavenegativeimpactsontheeconomy(e.g.viaimpactsonfarmingandfisheries)
• Projectedincreasesinthefrequencyofextremeprecipitationeventswillresultinincreasedlevelsofrun-offandpotentialwaterqualityissues,withimplicationsforslurrystorageandlandspreading
• Projectedincreasesinthefrequencyofheatwavesanddrought,resultingintheincreasedfrequencyofwildfiresdamagingforestsstands
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21.3.1 Whole-of-Government ResponseTheNAFrecognisestheimportanceofawhole-of-Governmentresponsetoclimateadaptation,whichincludesallgovernmentdepartments.While‘climateproofing’Irelandisacollectiveresponsibilityforbothgovernmentandcivilsociety,governmentcan:
• Leadandcoordinatetheadaptationeffort• Ensurethenecessaryinformationandincentivesareinplaceforindependentadaptationactionsby
private actors• Beproactiveinaddressingmarketfailures
WewillcontinuetoworkwithallstakeholderstodelivertheNAF,aswellastheobjectivesofthesectoraladaptationplansandlocaladaptationstrategies.
21.3.2 Local Adaptation StrategiesTheNAFclearlyidentifiesthecriticalroletobeplayedbylocalauthoritiesinbuildingclimateresilience.Fourgovernment-fundedlocalauthorityClimateActionRegionalOffices(CAROs)supportthepreparationoflocaladaptationstrategiesinall31localauthorities,drivingclimateactionatlocalauthoritylevel.Buildingontheirsuccess,theCAROshavebeengivenanenhancedclimaterolecoveringmitigation,adaptationandcitizenengagementundertheClimateActionandLowCarbonDevelopment(Amendment)Act2021.
21.3.3 Climate Impact Information for IrelandMet ÉireannClimatemodellingisacoreactivityofMetÉireann,andithascollaboratedwithUniversityCollegeDublinandtheIrishCentreforHigh-EndComputing,tocontributetothedevelopmentofanewglobalclimatemodel(EC-Earth)whichcanprovideanalysisoftheimpactsofglobalclimatechangeonIrelandtoinformpolicy-making.
Global Climate Observing SystemTheGlobalClimateObservingSystemNationalCommitteeforIreland(GCOS-Ireland),involvingMetÉireann,theEnvironmentalProtectionAgency(EPA)andtheMarineInstitute,coordinatesandpromotestheGCOSobservingprinciplesrelatingtoessentialclimatevariablesofrelevancetoIreland.TheGCOS-Irelandreport‘ClimateStatusReportforIreland2020’provideshighqualityevidencetosupportthedevelopmentofappropriateclimatemitigationandadaptationsolutions.
Climate Ireland‘ClimateIreland’isournationalweb-basedresourceofup-to-dateandfit-for-purposeclimateandadaptationinformationandtools.Itprovidesthisserviceforlocal,regionalandsectoraldecision-makersinlinewiththepublishedadaptationstrategydevelopmentguidelines.ClimateIrelandalsoplaysakeyroleinincreasingawarenessofandbuildingcapacityforadaptationplanningthroughone-to-onesupport,andtheprovisionoftailoredadaptationplanningworkshopsandseminars.
Office of Public WorksTheOfficeofPublicWorks’nationalfloodinformationportal:https://www.floodinfo.ieprovidesaccesstohistoricalandprojectedmapsoffloodextentsandplansforIreland.Thismapandplanviewerwebsiteisanimportantresource,tosupportplanning,emergencyresponseplanning,andtoempowerpeopleandcommunitiestorespondtofloodrisk.
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21.4. ActionsThedetailedimplementationmapsforactions,includingtimelinesandresponsibleorganisations,aresetoutintheaccompanyingAnnex.
Action Number Action
433 DeliverClimateIrelandasthenationalplatformfordata,informationanddecisionsupportsonclimateimpactsandadaptation
434 BuildlocalandregionalresiliencetotheimpactsofclimatechangethroughdeliveryofLocalAuthorityAdaptationStrategiesasrequiredundertheNationalAdaptationFramework
435 ReviewNationalAdaptationFramework
436 Commencepilotprojecttoidentifyasuitableapproachfortheuseofclimatechangeadaptationindicatorsatnationallevel
437 FurtherdevelopIreland’snationalclimatechangeriskassessmentcapacitytoidentifythepriorityphysicalrisksofclimatechangetoIreland
438 Ensurethatsix-yearlyreviewoftheFloodRiskManagementPlanswillbeinformedbythemostup-to-dateresearchandprojectionsofclimatechangeonfloodingandfloodrisk;andincludeothersector-ledadaptationmeasuresbeingimplementedundertheNationalAdaptationFramework
439 Assessappropriateadaptationmeasuresforthoseexistingfloodreliefschemes,whereclimatechangemayintimeimpactthecurrentstandardofprotection
440 UndertakeaSchemeAdaptationPlanduringthedetaileddevelopmentofnewfloodreliefschemes,settingouthowclimatechangehasbeentakenintoaccountduringthedesignandconstruction,andwhatadaptationmeasuresmightbeneededintothefuture
441 Providefortheinclusionofpotentialincreasesinflooddamagesaspartoftheeconomiccost-benefitanalysisforfuturefloodreliefschemes
442 Ensurethatpotentialfuturefloodinformationisobtainedand/orgeneratedthroughaFloodRiskAssessmentthatisthenusedtoinformsuitableadaptationrequirements,withintheplanninganddevelopmentmanagementprocesses,inlinewiththeGuidelinesonthePlanningSystemandFloodRiskManagement
443 ContinuetoenhanceknowledgeandcapacitywithregardstoNature-basedCatchmentManagementSolutions,andassesstheirpotentialtobepartoffuturefloodreliefschemes.
444 BuildonGroundwaterFloodMappingdeliveredbyGSI
445 Expandthegroundwatermonitoringnetworkforanalysisofclimatechangeeffects
446 Maintainandfurtherdevelopnationallandslidemappingrelatedtoclimatechangeandlanduse
447 Developandpublishcoastalvulnerabilitymappingandcoastalerosiondatabasesfor the east and south coasts of Ireland
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Action Number Action
448 Continuetodevelopfloodforecastingcapability,includingthedevelopmentofcoastalandmarinemonitoringandpredictivecapability
449 ContinuetoimprovetheunderstandingofandthecommunicationaroundIreland’schangingclimateandtheco-creationanddeliveryofclimateservices
450 ContinuetoimproveIreland’snationalclimatemonitoringcapabilitiesthroughthedeliveryofadvanced,sustainable,andlong-term,climateandenvironmentalmonitoringprogrammes
451 ContinuetosupportNationalEmergencyManagementduringextremeweatherevents
452 PublishanewandstrengthenedRiverBasinManagementPlanfortheperiod2022-2027
453 ExploreoptionsforthedeliveryofaNationalImplementationStrategyforNature-basedSustainableUrbanDrainageSystems
454 DevelopinterimguidanceonbestpracticeonNature-basedSustainableUrbanDrainageSystems
455 ReviewoftheSectoralAdaptationPlanfortheWaterQualityandWaterServices Infrastructure sectors
456 AdoptthefourregionalplansunderIrishWater’sNationalWaterResourcesFrameworkPlan
457 Develop clear leadership across the health sector
458 Identify,reviewandmobiliserelevantcross-sectoralmechanismstohelpensurethataHealth-in-All-Policiesapproachisapplied
459 DevelopabetterunderstandingofthehealthimpactsofclimatechangeinIreland
460 Ensureeffectivehealthserviceplanningforclimateresilience
461 Identifyandbuildcollaborativerelationshipswithkeystakeholderstoguideimplementationofhealth-relatedclimatepolicies
462 Developanewpublichealthheatwaveplanandseektoensuremoreuniformsystem-wideplanningforsevereweather
463 Conductamajorsurveyofhealthinfrastructureresiliencetosevereweatherevents:windevents,heatwaves,flooding,andextremecoldsnaps
464 AssessimplementationoftheNationalSkinCancerPreventionPlanwithfocusonactionsrelevanttoclimatechange
465 AssesstheadequacyofUV-relatedcancerregistrationandepidemiologybasedonemergingclimatechangerequirements
466 Reviewthecurrentandemergingbuildinginfrastructureanditspotentialassociationswithclimate-sensitiveUVhealthimpactsintheindoorandoutdoorarchitectural environment
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Action Number Action
467 BuildandrefineIrish-specificclimatechangeepidemiologyrelatingtoairpollutionandidentifyriskgroups
468 Improvepubliceducationforvulnerablepopulations(asthma,andCOPD)ontheuseoftheEPA’sAirQualityIndexforHealth–inrelationtothecausesofairpollutionandaeroallergens,andwhatcanbedonetoreduceexposure
469 Undertakeclimatechangeadaptationresearchintheelectricityandgasnetworkssector
470 Continuetobuildonadaptationmeasuresintheelectricityandgasnetworkssector already in place
471 Mainstreamclimatechangeadaptationintogeneralenergypolicy,andstrategicobjectivesto2050
472 Harmonisethecollectionofbaselinedataonthecoststobusinessandthepublicarisingfrompastextremeweathereventsintheelectricityandgasnetworkssector
473 Identifyareasvulnerabletoimpactsofclimatechangeintheelectricityandgasnetworkssector
474 Identifymeasuresrequiredtoadapttoclimatechangeimpactsonvulnerableinfrastructureintheelectricityandgasnetworkssector
475 Continuetodevelopandimprovetimelycommunicationstocustomersduringweatherevents,includinginformationprovisiontousersonthestatusofelectricityandgasnetworkinfrastructure,howtheywillbeaffected,andwhennormalserviceswillberestored;andincreasepublicawarenessofthebenefitsofthemeasuresbeingtakentoensureresiliencetobuildpublicsupportforclimateadaptationmeasures
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Department of the Environment, Climate and Communications V0.2