Review of

Bord Iascaigh Mhara

(BIM)

Completed as part of the Public Service Reform Plan

June 2012

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TABLE OF CONTENTS

Page

Chapter 1: Introduction 2

1.1 Background and Review Group Membership

1.2 Scope of Review

1.3 Review Process

Chapter 2: Overview 3

2.1 Seafood Sector in Ireland

2.2 Government Policy for Development of Seafood Sector

2.3 Seafood Structures and Roles

2.4 Role of Non-commercial State Agencies

2.5 BIM’s Evolving Role and Functions

2.6 Relevant International Service Delivery Models

Chapter 3: BIM Organisation 10

3.1 BIM Restructuring [2006-2012]

3.2 Savings and Efficiencies [2006-2012]

3.3 Current BIM Structure and Service Delivery

3.4 Current BIM Staffing and Costs

3.5 Seafood Sector Observations on Review

Chapter 4: Analysis of Considerations 17

4.1 Delivery of Government Policy

4.2 Transfer of BIM Functions to DAFM

4.3 Additional Savings and Efficiencies

4.4 Perceived Impact on the Seafood Sector

Chapter 5: Conclusions and Recommendations 20

5.1 Conclusions

5.2 Recommendations

Appendices 23

1. Terms of Reference for the BIM Critical Review Group

2. Submissions Received

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CHAPTER 1: INTRODUCTION

1.1 Background and Review Group Membership

In November 2011, the Government published its Public Service Reform Plan and

announced that “critical reviews” of certain agencies would be carried out, including

Bord Iascaigh Mhara (BIM). The specific purpose of the BIM review, as stipulated in

the Government’s plan, was to assess if the agency’s functions should be transferred to

the Department of Agriculture, Food and the Marine (DAFM). This review was to be

completed by June 2012.

In March 2012, the Minister for Agriculture, Food and the Marine, Simon Coveney

T.D., established a Review Group consisting of:

Dr. Noel Cawley (Chairman);

Mr. Lorcán Ó Cinnéide;

Dr. Cecil Beamish, Assistant Secretary, DAFM;

Mr. Philip Carroll, Assistant Secretary, DAFM;

Ms. Josephine Kelly, Principal Officer, Seafood Policy and Development

Division, DAFM;

Mr. Colm Hayes, Assistant Principal, Economics and Planning Division, DAFM;

and

Mr. Terry Jennings, Assistant Principal, Department of Public Expenditure and

Reform (DPER).

Mr. Nicholas Hoffman, DAFM, was appointed Secretary to the Group.

1.2 Scope of Review

Under the Terms of Reference (see Appendix 1), the purpose of the Group’s review was

to assess if BIM’s functions should be transferred to DAFM. To answer this question,

the Group reviewed BIM’s purpose, structures and processes; assessed the efficiencies

and organisational changes delivered by BIM in recent times; considered the

organisation’s current and future operational activities in the context of Government

policy for the sector (i.e., Food Harvest 2020), and evaluated BIM’s service provision,

along with the potential for further efficiencies.

1.3 Review Process

The Group had two independent, external representatives, Dr. Cawley (Chairman of the

Group) and Mr. Ó Cinnéide, and it included representatives from DAFM and DPER. It

met on seven occasions during the Review process. The Group met with BIM and also

received relevant information and organisational data from the agency. The Group

invited submissions from stakeholders in the seafood sector and other interested

organisations. Given the short timeframe allowed for the completion of the Review,

however, the Group was not in a position to meet with these parties. The observations

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received and issues raised were considered as part of the Review process. The Group

also reviewed information regarding the structures of State bodies and structures related

to the seafood sectors of certain other countries deemed to be of relevance to the

Review.

CHAPTER 2: OVERVIEW

2.1 Seafood Sector in Ireland

The Irish seafood sector is an indigenous industry that makes a significant contribution

to the national economy in terms of output, employment and exports. The total output

for the sector in 2012 is estimated by BIM to reach €738 million. Approximately

11,000 people are employed in the sector, mostly in coastal communities. The sector

supports ancillary industries such as net making, vessel repair, transport, and other

services. Because the seafood industry is dispersed around the Irish coastline, it plays a

key role in the sustainable development of the economic and social fabric of many small

coastal communities.

The clean, unpolluted seas around Ireland contain some of the most productive and

biologically sensitive areas in EU waters. Overall, Irish fisheries surveys have recorded

almost 400 fish and cephalopod species, ranging from inshore to deepwater varieties.

Pelagic stocks, such as blue whiting, herring, mackerel and horse mackerel, which are

widely dispersed, migrate annually to Irish waters to spawn. Non-migratory demersal

species, such as megrim, hake, cod, whiting, plaice and sole, also have distinct areas to

which they return during spawning season. Many of these species also use the waters

around Ireland as nursery areas for their juveniles.

The Irish seafood industry is complex and fragmented. It involves a commercial

catching sector, an aquaculture sector, processing and marketing, with operators spread

all around the coast. The catching sector consists of pelagic, demersal and shellfish

fisheries, while the aquaculture sector includes finfish and shellfish farming enterprises.

The sector comprises approximately 2,100 vessels, 2,000 aquaculture sites and 200

seafood-processing companies. More than 40 species of sea fish caught in Irish waters,

many of them in small volumes, and the fisheries are highly seasonal. Catches are

landed at six major fishery harbour centres (Killybegs, Castletownbere, Howth,

Rossaveal, Dunmore East and An Daingean), at 40 secondary ports and at a further 80

piers and landing places.

The sector is governed by an extensive policy, management and regulatory framework

enshrined in domestic and EU legislation. Most of the wild fish stocks in Irish waters

come under the remit of the Common Fisheries Policy (CFP). Ireland receives roughly

one fifth of the total allowable catch set by the EU each year for the Western Waters

area (i.e., ICES1 areas VI and VII), which includes waters around Ireland and west of

the United Kingdom. These waters are also fished by vessels from the UK, France,

Spain, the Netherlands, Belgium, Germany, the Faroe Islands and Norway. Under the

fishing opportunities agreement for 2012, the Irish fleet can fish up to 141,000 tonnes of

1 International Council for the Exploration of the Sea.

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pelagic and tuna quotas and 36,000 tonnes of whitefish. These quotas are worth an

estimated landing value of €250 million. Ireland also possesses valuable inshore

fisheries, particularly shellfish such as lobster, crab, whelk and scallop.

In 2011, Irish seafood exports had a value of about €420 million, an increase of more

than 13% over the previous year. The EU is the main export market destination,

receiving up to 80% of Irish seafood exports, with the remainder going to Russia, Africa

and Asia. The value of the Irish market for seafood in 2011 was just over €300 million.

2.2 Government Policy for Development of Seafood Sector

The market demand prospects for seafood, both at a global and European level, are

favourable, especially in the medium to long term. The world’s population is growing

strongly, and the consumption of fish products in the developed world is continuing to

increase. It is estimated than an additional 40 million tonnes of seafood per annum will

be needed globally by 2030.

This presents a significant opportunity for the Irish seafood sector to grow in a

sustainable way and to increase the value of its output. The Government has recognised

this in the Food Harvest 2020 strategy, which aims over the next eight years to raise the

sector’s annual sales value to €1 billion, to expand the volume of aquaculture

production by 78 per cent, and to increase employment in sea fisheries and aquaculture

to 14,000.

The strategy calls for the sector to achieve these targets through developing new

fisheries, increasing processing activity, raising product quality, developing new

seafood products, and improving marketing. Seafood innovation and new product

development – together with the maintenance of Ireland’s international reputation for

wholesome, fresh and natural seafood, produced in the most sustainable and

environmentally friendly manner – are essential to the advancement and further

development of the seafood sector. State support for the sector is focused on initiatives

that endeavour to deliver these fundamental requirements while also seeking to increase

Ireland’s market share of the international seafood industry.

The Government and its agencies are pursuing some key strategies to grow the Irish

seafood industry and realise the potential identified in Food Harvest 2020. These are:

growing Irish aquaculture production to increase raw material supply to the

processing sector;

adding value to the industry’s raw product and improving the scaling of seafood

operations;

conserving fish stocks through effective control measures and sustainable

management practices;

encouraging foreign vessels to land more of their catches into Irish ports to be

processed by Irish operators; and

increasing the competitiveness of the processing sector.

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The Government is also working to safeguard the future of the Irish seafood sector

through its participation in the European Union’s current review of the CFP. This

review is of critical importance for the Irish industry, as it will shape the course of the

sector for the next decade, particularly in respect of operators’ access to resources.

Government policy is to ensure the revised CFP protects the future of the Irish seafood

industry on a sustainable basis.

2.3 Seafood Structures and Roles

The management of the seafood sector in Ireland is carried out on behalf of the State by

DAFM as well as three non-commercial semi-state bodies:

Bord Iascaigh Mhara (BIM),

The Marine Institute (MI), and

The Sea-Fisheries Protection Authority (SFPA).

DEPARTMENT OF AGRICULTURE, FOOD AND THE MARINE

DAFM has three divisions dedicated to carrying out functions in sea fisheries,

aquaculture and coastal infrastructure based at the National Seafood Centre in

Clonakilty, Co. Cork. It also has a corps of specialist technical staff based in regional

offices around the country. The core policy goals for these divisions are (1) to

maximise the contribution of the seafood sector to the economies of coastal regions, and

(2) to support and manage the sustainable use and development of Ireland's marine

territory. The divisions carry out a variety of functions, including: developing and

advising on seafood policy at both national and EU / International levels; representing

the State’s interests in the sector at national and international negotiations; developing

and monitoring funding programmes to support the sector; managing national sea

fisheries resources; developing fishery harbours and related facilities; registering,

managing and licensing sea-fishing boats; licensing aquaculture and related foreshore

activities; and corporate governance, monitoring and liaison with the State bodies

functioning in the sector.

BORD IASCAIGH MHARA

BIM was established under the Sea Fisheries Act 1952 as the state agency with primary

responsibility for developing the Irish sea fishing and aquaculture industries. BIM’s

mission is “to lead the sustainable development of a competitive, market-led, innovative

and quality driven Irish seafood industry, thereby maximising the returns to industry

stakeholders and the socio-economic contribution to communities in coastal regions and

Ireland as a whole.” BIM is focused on expanding the volume, quality and value of

output from the Irish seafood industry. It provides a range of advisory, financial,

technical and training services to all sectors on the Irish seafood industry. The agency

is governed by a non-executive Board, comprised of six directors, including the

Chairman, appointed by the Minister for Agriculture, Food and the Marine. BIM staff

members are located at the agency’s headquarters in Dun Laoghaire, the National

Seafood Centre in Clonakilty, Co. Cork, and in other locations around the coast.

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MARINE INSTITUTE

The MI is the national agency responsible for marine research, technology development

and innovation. It was set up under the 1991 Marine Institute Act “to undertake, to co-

ordinate, to promote and to assist in marine research and development and to provide

such services related to research and development that, in the opinion of the Institute,

will promote economic development and create employment and protect the marine

environment.” The Institute provides marine research services including fish stock

assessment, fish health services, marine food safety monitoring, environmental

monitoring, research vessel operations, seabed mapping, data management, and national

research and development funding programmes. The MI is governed by a non-

executive board of up to nine members, including the chair. The agency has staff

members located at the MI’s headquarters in Oranmore, Co. Galway, as well as at

offices in Dublin, in Co. Mayo, and in other locations around the coast.

SEA-FISHERIES PROTECTION AUTHORITY

The SFPA was created by the Sea-Fisheries and Maritime Jurisdiction Act 2006 to

operate as an independent body for the State’s sea fisheries and seafood safety law

enforcement functions. The agency was established on 1 January 2007. The SFPA’s

mission is to apply sea fisheries conservation and seafood safety legislation fairly and

consistently. It seeks to promote compliance with the law co-operatively with the sea

fisheries and seafood sectors with the overall objective of ensuring that the marine fish

and shellfish resources from the waters in Ireland’s Exclusive economic Zone (EEZ) are

exploited legally and consumed safely. The SFPA is governed by an Authority

consisting of one to three members, including the chair. Staff members of the SFPA are

based at the National Seafood Centre in Clonakilty, Co. Cork, and at a network of

regional offices around the coast.

2.4 Role of Non-commercial State Agencies

In the course of its review the Group considered the rationale behind the establishment

of State agencies. Government has employed such agencies since the foundation of the

State. Some agencies have had commercial functions, delivering public utilities such as

electricity and gas, airports, airlines and shipping, etc. Others have had non-commercial

functions. Some of the non-commercial agencies have been involved in aspects of

economic development, such as the IDA, Enterprise Ireland, Bord Bia, Teagasc, and –

in the case of the fishing industry – BIM.

In essence, a State agency is a body established under the aegis of a Government

Department to deliver some form of public policy. Agencies are commonly established

due to a combination of particular needs: specialisation in a particular field, flexibility

in service delivery, and a desire to devolve the delivery of services away from central

Government. This allows Government to focus on the broader policy framework while

powers of implementation are delegated to specialist bodies, suitably skilled to carry out

their particular functions. Agencies are usually placed under the direction of

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independent boards answerable to the Minister of the agency’s parent Department. The

Government Statement on Transforming Public Services, published in November 2008,

acknowledges that the creation of State agencies has in many cases allowed

Government to achieve the scale and recruit the specialist skills needed to focus on

particular priorities.

A study in 2005 by the Committee for Public Management Research (CPMR)2

explained the rationale behind the establishment of agencies and identified some key

functions of non-commercial agencies, including commercial development, research

and regulation. Commercial development was the main purpose behind the

establishment of BIM. BIM’s role complements the differing functions performed by

the other agencies under the Department’s umbrella, as described above, with the MI

performing the research role and the SFPA carrying out the regulatory enforcement role.

2.5 BIM’s Evolving Role and Functions

The 1952 Sea Fisheries Act established BIM as a replacement for the Irish Sea Fisheries

Association Ltd. (ISFA). The ISFA was incorporated in 1930 as a friendly society with

the object of developing Ireland’s sea fisheries. BIM inherited the functions of the

ISFA, but received an expanded range of powers for assisting the development of the

national seafood industry. Using these powers, the agency has evolved over the past six

decades, consistently developing, reorganising and refocusing its services to meet the

changing needs of the Irish seafood sector.

Initially, BIM engaged directly in commercial fishing activities, including processing

and distributing fish as well as the purchase, operation and construction of fishing

vessels. It operated a hire purchase scheme to enable fishermen to buy fishing vessels.

Gradually the agency disengaged from direct involvement in commercial activities,

focusing instead on fostering the expansion of the fishing fleet, encouraging better fish

handling and processing operations, promoting Irish seafood, producing bulk ice for the

fleet at fishing ports, and nurturing fledgling aquaculture enterprises. BIM provided

training services and technical and financial support to the industry to assist its

development.

Since the 1990s, BIM has concentrated on developing the industry’s catching,

aquaculture, processing and marketing segments supported by national and EU funding.

The role of BIM has evolved over time in keeping with the requirements of the sector.

In 2006 it restructured and reorganised its service units, reducing staff numbers and

cutting costs. BIM’s seafood marketing function was transferred to Bord Bia in 2009,

enabling the agency to refocus its services on business development and innovation

services. It also expanded its processing services to the industry and opened a Seafood

Development Centre in Clonakilty, Co. Cork.

Today BIM sees itself as a customer-focused and highly skilled organisation working

with the Irish seafood industry to realise the growth opportunities for seafood identified

2 McGauran Anne-Marie, Verhoest Koen, Humphreys Peter C.: The Corporate Governance of Agencies

in Ireland: Non-commercial National Agencies, IPA 2005.

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in the Food Harvest 2020 strategy. To achieve these goals, BIM provides advisory,

financial, technical, training and business development services to all segments of the

industry. BIM aims to expand the volume, quality and value of output from the sector

for the benefit of coastal communities. The agency seeks to drive growth, increase

competitiveness and create jobs in the sector, while alleviating constraints that could

impede development.

2.6 Relevant International Service Delivery Models

As part of the Review process, the Group looked at a number of other countries to

compare their management of seafood functions with those in Ireland. The countries

examined were Denmark, France, Norway and the UK. These countries were selected

because they represent the most relevant examples, within and outside the EU, for

comparison with Ireland due to the size or orientation of their seafood industries. While

exact comparisons are difficult to make, it is clear from these examples that other

countries have devolved seafood functions – including development – out of

government ministries and into specialist agency structures.

DENMARK

Denmark is the fifth largest exporter of fish and fish products in the world. About

20,000 people are employed in the Danish fishing and aquaculture sectors and their

related industries. The total annual catch value is approximately 3.0 billion DKR (€0.4

billion). The value of exported fishery products (including products based on imported

raw material) is 16.5 billion DKR (€2.2 billion).

The body with overall responsibility for sea fisheries and aquaculture functions in

Demark is the Ministry of Food, Agriculture and Fisheries. The Ministry deals with a

number of policy issues, including fisheries policy, and has 120 staff members.

Working under the Ministry are two bodies, the Veterinary and Food Administration,

which deals with food safety, and the AgriFish Agency.

The AgriFish Agency was set up in 2007 and has a staff of 1,200. It is run by a board

and works towards creating sustainable growth and development in all areas of the food

sector (including agriculture, horticulture, fisheries and aquaculture) as well as

enhancing the living conditions of the population living in rural and fishing areas in

Denmark. The agency’s work includes providing grants, development programmes and

guidance, as well as regulation and control functions. The agency has departments,

inspectorates and inspection vessels countrywide.

FRANCE

France is one of the EU’s largest producers of seafood from sea fishing and aquaculture,

with the industry employing some 25,000 people. The Ministry of Agriculture and

Agri-Food is responsible for setting policies for the management of fish stocks, fisheries

research and fisheries control. These areas are handled by the Ministry’s Directorate for

Sea Fisheries and Aquaculture (DPMA).

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The DPMA’s duties include setting regulatory controls for sea fisheries and

aquaculture; defining policy for fisheries resource conservation at national, EU and

international levels; defining sea fisheries control policy; representing France at

international fisheries negotiations; coordinating France’s participation in international

fisheries bodies; negotiating with the industry to establish fisheries management rules;

overseeing inter-branch organisations in the seafood sector; and managing state and EU

funding for the sector.

The direct management of France’s seafood products, however, is the responsibility of

FranceAgriMer. This national body was created in 2009 and comes under the aegis of

the Ministry. It is charged with the management of various agriculture sectors as well

as fisheries and aquaculture, including the development of the seafood sector. At

ground level, the services of FranceAgriMer are grouped together with the regional

offices for food, agriculture and forestry. The Fish and aquaculture sectors are

represented by a special committee within AgriMer, which groups together sector

stakeholders. This group makes proposals and gives advice, which is transmitted to the

administrative Council of AgriMer and to the Ministry.

NORWAY

Fisheries rank as Norway’s third most important export (after oil / gas and metal),

accounting for 5.7 % of total export value. In 2011 Norwegian vessels delivered 2.3

million tonnes of fish, crustaceans and molluscs with a landed value of NOK 15.9 (€2

billion), up 19% from 2010. Norway considers the sustainable optimum management

of fish stocks as the most important challenge facing the fishing industry. In 2011, just

over 10,000 people cited fishing as their main occupation.

The Ministry of Fisheries and Coastal Affairs is the central fisheries management

authority and it exercises administrative authority through adoption and implementation

of legislation and regulations. There is an array of fisheries-related bodies operating

under the Ministry’s overall policy direction, dealing with functions such as the

regulation of the fisheries and aquaculture sectors, the administration of ports and

seaways, research into fish stocks and marine ecosystems, marketing of seafood

products, providing advice to the Ministry and industry, applied research on seafood

nutrition, safety and production, etc.

A key body is the Directorate of Fisheries, which acts as advisory body to and executive

arm of the Ministry in fisheries and aquaculture matters. It has a vast range of

responsibilities from managing marine resources and aquaculture, advice to the Ministry

and responsibility for policy implementation. Some of its functions include

administering commercial fishing licences, allocating fishing quotas, regulating and

monitoring fishing activities, developing new fishing technologies and techniques,

monitoring and regulating aquaculture activities, and the commercial development of

coastal areas.

In addition to its head office in Bergen, the Directorate operates in more than twenty

local offices spread over seven regions. It has nearly 500 staff members nationwide.

The regional offices are responsible at county and municipal level for resource

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management, resource control, aquaculture management, aquaculture control and

coastal zone management.

UNITED KINGDOM

Fisheries management responsibilities in the UK are broken down into regional

departments in England, Scotland, Wales, Northern Ireland, and some of the islands.

The Department for Environment, Food and Rural Affairs (Defra) works directly in

England, but also works closely with the devolved regional departments. Defra

generally leads on negotiations in the EU and internationally.

In 2009, the Marine Management Organisation (MMO) was established as an executive

non-departmental public body. It brings together within a single entity a number of

marine management activities from across a number of government departments. The

MMO is the government’s principal regulator, as well as its delivery body, for English

territorial waters and UK offshore marine areas (for those matters that are not

devolved).

The MMO is led and directed by an independent Board but Ministers remain

accountable to Parliament for the overall performance of the MMO. Given the wide

range of departments that have policy interests in the marine area, a cross-Government

Sponsorship Group was created to allow for the coordination of marine policy issues

between the MMO and interested departments.

The MMO has been given a broad range of tasks and functions that are intended to

allow the agency to take a comprehensive approach to marine management, including

conservation of marine species and habitats, provision of financial assistance to the

industry, management of fishing fleet quota and capacity, licensing of commercial

fishing vessels, monitoring and control of fishing activities, licensing of off-shore

activities and development of marine planning.

CHAPTER 3: BIM ORGANISATION

3.1 BIM Restructuring [2006-2012]

In 2006, BIM began a period of restructuring, aligning itself with priorities set by the

new national seafood strategy, detailed in the report Steering A New Course: Strategy

for a Restructured, Sustainable and Profitable Irish Seafood Industry 2007-2013, and

the introduction of the Sea-Fisheries and Maritime Jurisdiction Act 2006. Since then,

BIM has reduced its staff compliment from 176 to 128 full and part time staff members

(see Figures 1 and 2). The organisational structure also has been rationalised. One

service division was eliminated and its functions distributed across the remaining

service divisions. It is understood that the BIM Board has decided to phase out the

agency’s involvement in the provision of bulk ice to the fishing fleet. BIM has reduced

the number of ice plants it operates from 26 to seven, and it intends to end its

involvement in the operation of the remaining plants by the end of 2012.

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BIM continued its efforts to cut costs and reorientate its functions following the release

in 2009 of the Report of the Special Group on Public Service Numbers and Expenditure

Programmes. BIM refocused its services on promoting enterprise in the sector, which

is carried out in conjunction with Enterprise Ireland and Údarás na Gaeltachta.

Following the transfer of the seafood promotion function to Bord Bia, BIM’s former

marketing division was re-organised into a unit promoting business development and

innovation in the sector. BIM appointed four regional business development officers

and created the Seafood Development Centre in Clonakilty. New units at the agency

are dedicated to managing issues such as seafood economics and strategic planning.

FIGURE 1: BIM HEADCOUNT TREND, 2006-2012

0

20

40

60

80

100

120

140

160

180

2006 2007 2008 2009 2010 2011 2012

Nu

mb

er

Em

plo

ye

d

Note: The 2012 figure is an end of year estimate and does not include ice plant staff.

Source: BIM

3.2 Savings and Efficiencies [2006-2012]

As a result of reducing staff numbers, BIM brought its payroll costs down some 20% in

recent years, from €10 million in 2008 to less than €8 million in 2011. It also reduced

its costs for purchasing external services by about €750,000 in the past two years, an

overall reduction of more than 50%. This was achieved mainly through implementing

competitive bidding processes for these services, and by BIM staff undertaking more of

this work themselves.

Despite the decrease in the number of people working at BIM, the agency has

endeavoured to maintain its core services through efficiencies afforded by the flexibility

and productivity of its remaining staff members. BIM personnel are well qualified and

experienced, bringing a variety of skills to the organisation. This allowed BIM to work

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with staff to introduce cost-neutral changes in work practices and to undertake a process

of task prioritisation.

FIGURE 2: CHANGES TO BIM’S STRUCTURES AND COSTS, 2006-2012

BIM Structures and Costs (2006) BIM Structures and Costs (2012)

Division Staff

Numbers

Salary

Costs (€) Division

Staff

Numbers

Salary

Costs (€)

CEO 16 936,590 Sectoral Planning 10 625,768

Secretariat 22 1,246,613 Corporate

Services 13 851,032

Aquaculture

Development 29 1,677,151

Aquaculture

Development 30 1,930,475

Fisheries

Development 34 2,028,120

Fisheries

Development and

Training

42 2,637,059

Marine Services1 53 2,430,324

Business

Development and

Innovation

19 1,141,677

Market

Development2

22 1,450,814 Other3 13 407,635

Total: 176 9,769,612 Total: 127 7,593,647

Change from

2006: -27.8% -22.3%

1 Division eliminated and functions redistributed.

2 Division reorganised into Business Development and Innovation division following the

transfer of seafood marketing functions to Bord Bia in 2009. 3 Figures includes one health and safety officer and 12 staff working in the agency’s seven

remaining ice plants.

Source: BIM

3.3 Current BIM Structure and Service Delivery

BIM currently is organised into five divisions. Three of these divisions deliver services

directly to the seafood sector: Aquaculture Development, Fisheries Development and

Business Development. The other two divisions are units providing financial and

support functions: Corporate Service and Sectoral Planning. BIM shaped its structures

and services in order to deliver on the targets set out in Government strategies for the

sector, particularly Food Harvest 2020. It also has incorporated these targets into its

own plans, making them the agency’s goals for the near future.

The Fisheries Development and Aquaculture Development divisions seek to expand the

Irish industry’s raw material supply base through a number of initiatives. One scheme

looks to encourage foreign fishing vessels to land more of their catches into Ireland so

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Irish processors will have access to more raw material. In another effort, BIM is

working to resolve technical issues with the current aquaculture licensing regime in

order to facilitate the growth of the sector in the future. BIM has prepared and

submitted an application to DAFM for a licence to develop a pilot site in Galway Bay

for a deepwater fish farm. BIM estimate that the site could potentially produce up to

15,000 tonnes of organic salmon per year, adding €100 million annually to Irish seafood

exports and directly creating 350 jobs, with potentially another 150 jobs being created

indirectly.

The Business Development Division, along with the agency’s Seafood Development

Centre (SDC), is seeking ways to improve the Irish sector’s position in the marketplace.

For example, the collective route to market scheme coordinates joint ventures by

seafood operators, helping them to access foreign markets and build economies of scale.

Another initiative is the development of branding and certification programmes to help

Irish producers differentiate their products from those of competitors in the global

market. The SDC has been helping seafood companies to find ways of adding more

value to their products. BIM reports that since 2009 the SDC has assisted 300 seafood

businesses and facilitated the launch of 26 new products.

In addition to these services, BIM assists operators in the Irish industry with technical

issues and provides them with training aimed at improving their businesses. In the

aquaculture sector, there are ongoing efforts to help producers increase the quality and

volume of production through the development and implementation of new techniques

and technologies. In the catching sector, BIM has carried out trials of fishing gears in

an effort to help Irish fishermen avoid catches of unwanted fish and reduce discarding.

BIM provides training and mentoring to Irish processors through its SeaPro (Lean

Manufacture) Programme, helping them to increase efficiency through raising capacity

and reducing consumption of water and energy in their operations. BIM reports that, in

2011, participating companies achieved a combined annualised cost savings of

€600,000. Food retailers and operators receive mentoring from BIM to help them

improve their handling, presentation and promotion of seafood. BIM also delivers

hundreds of courses each year to the industry at its facilities in Greencastle and

Castletownbere and through its Coastal Training Units. Courses range from

professional courses for deck and engineering officers to food safety for seafood

businesses.

BIM is the main delivery instrument for grant aid schemes under the Seafood

Development Operation Programme of the National Development Plan – European

Fisheries Fund (EFF). The programme consists of various grant aid schemes for the

fisheries, aquaculture and processing areas of the sector. In 2012, BIM – in conjunction

with Enterprise Ireland and Údarás na Gaeltachta – expects to evaluate and administer

more than €38 million in grants to about 200 enterprises.

3.4 Current BIM Staffing and Costs

BIM currently has 127 staff members working in five service divisions of the

organisation. BIM staff members are located mainly at the agency’s headquarters in

Dun Laoghaire and at the National Seafood Centre in Clonakilty, Co. Cork. Other BIM

personnel are based in offices in Castletownbere, Galway, Killybegs, Greencastle and

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other outlying locations. The current total headcount includes twelve BIM staff

members who are working in the seven remaining ice plants operated by BIM.

FIGURE 3: BIM STAFF AGE PROFILE TO 2015

20

25

30

35

40

45

50

55

60

65

1 6 11 16 21 26 31 36 41 46 51 56 61 66 71 76 81 86 91 96 101

Headcount

Ag

e (

ye

ars

)

Note: Excludes ice plant staff and potential retirees.

Source: BIM

FIGURE 4: DISTRIBUTION OF BIM STAFF QUALIFICATIONS

Note: The category “Training & Others” includes staff with the specific professional

qualification, including Master Mariners, required to deliver BIM’s training

programme.

Source: BIM

15

As noted above, BIM has reduced its staff numbers by more than 25% since 2006. As a

result, the organisation’s pay bill was also lowered from €9.7 million in 2006 to €7.5

million. It is understood that the BIM Board has decided to withdraw the agency from

operating the ice plants by the end of 2012, so these employees will be redeployed as

necessary. BIM expects to reduce salary costs by a further €327,000 when this happens.

Following retirements from BIM in recent years, the agency now has a staff age profile

that falls mainly between 35 and 55 years. The current age structure profile suggests

that staff numbers should be relatively stable for a period of years (see Figure 3).

The staff working for BIM are well qualified and experienced. Many are specialists in

technology, business and science (see Figures 4 and 5). Eighty percent of staff have

some type of third level qualification (certificate or higher). More than half have

achieved a primary degree or higher third level qualification. Thirty-four staff members

have qualifications at Masters level and nine have PhDs. The qualifications include

subjects such as business and training, but many of them are in specialised fields like

seafood technology, seafood business, seafood safety management and fisheries and

aquaculture science. In addition, many staff members worked in the private sector and

in the industry before joining BIM, bringing years of experience to the organisation.

FIGURE 5: LEVELS OF BIM STAFF QUALIFICATIONS

Note: This graph shows the portions of BIM staff that have reached each qualification

level.

Source: BIM

3.5 Seafood Sector Observations on Review

The Group requested observations from stakeholders and other organisations interested

in the Irish seafood sector, and nine submissions were received. A full list of the

organisations that made submissions, as well as summaries of the submissions, are in

Appendix 2. Copies of the submissions made to the Group will be made available on

the DAFM website.

16

While there was considerable diversity in the range of views expressed in the

submissions received, a number of themes emerged regarding BIM, which are

summarised in the following table.

Theme Observations

Majority

view

Transferring BIM’s functions to DAFM would have an adverse impact on

services available to the Irish seafood industry and on the industry itself.

Historic

impacts of

BIM

BIM has been a valuable support to the Irish seafood industry since its

establishment, providing vital assistance to operators and helping the sector

realise its potential.

The catch and aquaculture industries have benefited a great deal from the

agency’s projects and initiatives.

The agency has evolved with changes in the sector to meet the evolving needs

of the industry and to help it remain competitive.

BIM staff are highly skilled and have become an integral part of coastal

communities. They are valuable resource to those based in coastal areas.

Transfer of

BIM’s

functions to

DAFM

Any transfer of functions should only be undertaken if this would enhance the

services delivered to the industry.

BIM’s developmental functions should not be transferred to DAFM; doing so

would have a severely negative impact on the industry. It also would destroy

the strong link between the agency and the industry.

BIM brings a needed coordinating influence to a fragmented, diverse sector.

The continued operation of BIM will allow the industry to take advantage of

opportunities to increase output, trade and investment.

DAFM would not be an effective vehicle for the delivery of BIM’s

development functions. Such a role would be incompatible with the

Department’s policy and regulatory functions.

BIM as an organisation has an innovative, commercial focus that is essential

for development of the sector. There is a risk this focus could be lost if BIM’s

functions were transferred to DAFM.

Ongoing

functions of

BIM

There is a clear need for the State to provide the industry-focused financial,

technical and advisory services to the Irish seafood sector in order for it to

reach the targets set out in the Food Harvest 2020 strategy.

The support provided by BIM staff to operators in coastal areas is vital to the

continued survival of the industry.

The developmental services of BIM should not only be maintained, but also

strengthened to help the Irish seafood industry compete in the global market.

BIM’s development of an aquaculture site in Galway could lead to conflicts of

interest, particularly if BIM’s functions were transferred to DAFM.

There should be a clear division between policy / regulatory and operational /

development functions. Operational / development functions should be

allocated to a separate organisation to avoid conflicts of interest.

17

Nearly all the submissions received by the Group noted BIM’s positive impact of the

sector, helping it to develop steadily over the years by providing a coordinating

influence and promoting development and innovation amongst operators. Many felt

that moving BIM’s functions to DAFM would damage the sector and endanger the

industry’s chances of achieving the goals set out in Food Harvest 2020. Industry

groups said that retaining a development body dedicated to the needs of the seafood

sector is a central requirement for the sector to continue its development and to

capitalise on the expected future growth in the global seafood market.

A different view was expressed in submissions from environmental interests, where it

was indicated that the commercial functions of BIM, such as seafood marketing, have

already been transferred to other State bodies, and that BIM’s expertise, knowledge and

facilities could be most effectively utilised by redistributing them amongst a number of

other organisations, such as the MI, the SFPA and DAFM.

CHAPTER 4: ANALYSIS OF CONSIDERATIONS

In assessing whether or not the functions of BIM should be transferred to DAFM, the

Group examined considerations involved with such a transfer, including:

Impacts on the delivery of Government policy for the sector,

Implications of transferring BIM functions to DAFM,

Additional savings or efficiencies arising from any transfer, and

Impacts on the relationship with the seafood sector client base.

The Group examined these issues based on the assumption that the current suite of

development functions delivered by BIM would remain unchanged, whether they were

transferred to DAFM or remained with the agency.

4.1 Delivery of Government Policy

A fundamental consideration for this review was the potential impact that transferring

BIM’s functions to DAFM would have on the achievement of Government policy

objectives for the sector. BIM was established by the Government for the purpose of

developing the national seafood industry and enhancing the economies of communities

around the coast of Ireland. BIM has evolved over the years, revising structures and

refocusing programmes to better meet the needs of the Irish seafood industry. Since

2006, the agency has reorganised itself in order to better deliver current Government

priorities, such as saving on public sector costs and developing better business and

enterprise in the seafood sector. BIM has incorporated the targets set out in the latest

Government strategies for the sector (particularly those in the Food Harvest 2020

document) into its own planning, so that they now constitute the agency’s goals for the

near future.

BIM's staff members have the experience, commercial focus and technical expertise

required to carry out their duties. They have an intimate understanding of the industry

and are integrated in the coastal communities that they endeavour to help. The agency

18

has built up a recognised legitimacy and standing which is in itself an intangible but

vital asset in meeting the development needs of the sector. This may be difficult to

replicate in another structure such as DAFM.

Assuming that the scope of BIM’s development functions are maintained if they are

transferred to DAFM, then – in theory – such a transfer will have no impact on those

functions. In fact, any transfer of BIM’s functions to DAFM will need to be

accompanied by a transfer of the staff carrying out the functions. DAFM then would

have, within its own direct control, access to the specialist skills and knowledge

required for the successful operation of those functions. Given this, one could expect

that the delivery of Government policy for the development of the seafood sector would

remain unchanged. It seems possible, however, that it could deteriorate over time. The

risk would be that the current emphasis on improving and developing the seafood sector

could be diluted and then lost due to lack of focus.

In its deliberations, the Group could not see any advantage for the Government or for

the general seafood sector in achieving very limited cost savings or efficiencies through

a transfer of BIM’s functions. Indeed the Group could not see a single developmental

advantage to the sector that could not be delivered by leaving the current structure in

place. The Group agrees that the current service model, which separates policy from

development functions, should continue.

4.2 Transfer of BIM Functions to DAFM

BIM is organised into five divisions, three focused on delivering development services

to the seafood sector and two “core” support areas dealing with financial and

operational issues. In considering a transfer of these divisions to DAFM, there is in fact

little or no overlap between the developmental functions of BIM and the policy and

regulatory functions of DAFM. Therefore, if the developmental services of BIM

continue as they are, the structure of the three service divisions – dealing with fisheries,

aquaculture and business – would likely be retained by DAFM.

In the short term, it is likely that the current distribution of BIM’s developmental staff,

at various offices around the country, would be maintained by DAFM following any

transfer. However the staff members in BIM’s two core support divisions would need

to be redeployed somehow as their functions – involving areas such as human

resources, communications, reception, accounts, procurement, etc. – are taken on by

relevant units in DAFM already performing these tasks.

With the transfer of BIM’s functions to DAFM, there might be some small scope for the

redeployment of staff from other areas of the Department into the former BIM units if

required. There is also the possibility that, as part of a larger organisation, any gaps that

might exist in the current BIM skill base would be covered by other areas of DAFM

(although under the Employment Control Framework, the scope to do this already

exists). Also, DAFM has units looking after general services, such as human resources,

information technology, etc., and the support provided by the larger organisation might

be more comprehensive than could be achieved in a smaller agency.

19

Some BIM tasks, such as its proposed deep sea aquaculture project, simply would not

be able to be carried out by DAFM as they would involve mixing regulatory and

operational roles in the one organisation, which could create a conflict of interest.

Therefore another organisation would be needed to carry out these tasks. A question

might also arise concerning the ability or advisability of DAFM administering and

operating highly specialist technical functions such as running fishing gear trials,

technological development and training in areas such as improved fishing practices,

safety and engineering.

Many of the submissions received by the Group mentioned this concern, warning that

moving the functions of BIM to DAFM could lead to conflicts of interest, particularly in

relation to the deep sea aquaculture project. These submissions urged that the current

separation of operational and developmental functions (BIM) from policy and

regulatory functions (DAFM) be maintained. Some submissions also made the point

that developmental functions could suffer if they were placed into a Department focused

mainly on its policy and regulatory roles.

4.3 Additional Savings and Efficiencies

As discussed above, BIM has already undergone a rationalisation programme in the

years since 2006, reducing its work force and cutting salary costs while striving to

maintain its services to the sector. The Group therefore considered if any additional

savings and efficiencies could be achieved if BIM’s functions were transferred to

DAFM.

The Board of BIM represents one possible source of savings, as it would no longer be

required in the event of a transfer of functions. BIM reported that in 2011 the Board

received just over €41,000 in fees and more than €14,000 in expenses, thereby offering

a potential savings of nearly €56,000. The Group weighed this possibility against the

added value that an independent board provides. The Group felt that the BIM Board

structure is a worthwhile asset that comes at a modest cost. The Group agreed that the

small savings that could be realised do not justify the loss of such an asset.

As stated above, the Group has assumed that if the functions of BIM were transferred to

DAFM, its development services to the seafood sector would be maintained by the

Department. This means the fisheries, aquaculture and business development divisions

– along with the staff in those areas – would be retained as work units within DAFM.

Therefore, as far as staff costs are concerned, the transfer of these functions to DAFM

would be a cost neutral exercise.

Transferring the functions of the two remaining core support divisions – Sectoral

Planning and Corporate Services – would provide an opportunity to achieve some

limited savings. Most of the functions carried out by these divisions – communications,

human resources, information technology, accounts, procurement, etc. – are already

handled by analogous units in DAFM. The Group identified potential savings of not

more than €700,000 in this area. The Group recommends that BIM explore the

possibility of making shared services arrangements with DAFM or other agencies with

a view to achieving maximum value through this approach.

20

Post transfer, most if not all of the offices currently occupied by BIM staff members

would have to be retained, at least in the medium term, to house the staff of the

development divisions. In addition, these divisions would still need a senior manager to

lead them within the DAFM structure. This could mean the CEO position of BIM

would simply be exchanged for a senior manager within DAFM, with no resultant

saving.

4.4 Perceived Impact on the Seafood Sector

BIM has a long history of helping all areas of the seafood sector with technical and

financial support. By working with industry operators over decades, the agency has

forged a bond with the sector. Many submissions received from sector stakeholders

said BIM staff members are considered an integral part of coastal communities. The

agency has a good reputation, and is trusted by those in the seafood community. If

BIM’s functions were transferred to DAFM, it could be difficult for the Department to

achieve the same connection with the seafood community in the short term.

Submissions received from industry stakeholders indicate that they firmly believe that

transferring BIM’s functions to DAFM would have a negative impact. They see the

agency as a vital resource, the only State body capable of providing the support and

technical expertise they require for the continuing development of the sector. Such a

transfer could remove a key co-ordinating function from the sector, and cause the loss

of the current focus on innovation and development. This could damage the industry

and hamper its attempts to develop and harness future opportunities.

CHAPTER 5: CONCLUSIONS AND RECOMMENDATIONS

5.1 Conclusions

The Government's Critical Review process set out guiding principles for the

consideration of agency rationalisation under the following headings: citizen focus;

policy formulation; clear democratic and / or cost benefit; specialist bodies,

streamlining; service sharing; agency life-cycle, performance focus and respect of staff

interests.

The Group has considered these principles and adhered to its specific terms of reference

as detailed in chapters 1 to 4 above and concluded:

1. There is a clear distinction of functions among the main State bodies

responsible for the seafood sector in Ireland. BIM is a State agency established

under the aegis of a Government Department to promote the commercial

development of the Irish seafood sector. As such, it falls in line with

established practice for the creation of such organisations.

2. BIM has a clear mandate for the future. It is working with industry to deliver

the goals set out in the Government’s Food Harvest 2020 strategy.

21

3. BIM has a long history of changing and evolving in order to meet the needs of

the Irish seafood industry effectively. Today BIM sees itself as a skilled,

customer-focused organisation assisting the Irish seafood sector with realising

the growth opportunities for seafood identified in the Food Harvest 2020

strategy.

4. In comparing Irish seafood management structures with those in a number of

other countries, it is clear that it is normal and usual to devolve functions –

including development – into specialist agency structures for a variety of

reasons.

5. Significant restructuring of BIM has taken place. It has actively worked in

recent years to achieve greater efficiencies and reduce costs, including payroll

and services expenses, while endeavouring to maintain its delivery of services

to the Irish seafood sector. This restructuring has facilitated efficiencies and

assisted BIM with refocusing its core strategy towards promoting enterprise,

business development and innovation.

6. Given the scale of cost reductions already achieved and planned, the financial

justification for transferring BIM’s functions to DAFM is limited.

7. BIM is actively assisting Irish operators to develop their seafood businesses and

be more competitive in the international seafood market.

8. BIM provides a wide range of services to the Irish seafood sector. The scope

and complexity of these are such that another organisation would face real

challenges in attempting to deliver the same set of services to a comparable

standard.

9. Given the kinds of services it provides, BIM requires staff with particular skills,

qualifications and experience that are not always easily available within Civil

Service structures. As an agency, BIM has recruited the specialist personnel

needed and has trained its own staff for the range of functions it carries out.

10. From the submissions received, it is the clear belief of the seafood industry that

BIM should continue to deliver services considered important to the sector as a

separate entity.

11. BIM is a specialist body requiring specific expertise and independence of

function. Transferring BIM functions to DAFM would not improve the

potential for achieving the State's development objectives for the seafood sector

and might possibly hinder them. There is no apparent advantage for the

Government or for the general seafood sector in achieving very limited cost

savings or efficiencies through a transfer of BIM’s functions to DAFM. The

current service model, separating policy from development functions, should be

left in place.

12. While it is technically possible to transfer most of BIM's functions to DAFM,

the practical, technical and legal issues that would arise in some areas would

present significant obstacles.

22

13. Some additional savings and efficiencies could be realised through a transfer of

BIM’s functions to DAFM, however these are limited. They can also be

achieved through the development of shared services independently of any

transfer of functions.

5.2 Recommendations

The Group recommends that:

1. BIM should continue as a separate entity under the governance of the Minister

for Agriculture, Food and the Marine.

2. BIM should continue to refocus its strategy to deliver the goals set out under

Food Harvest 2020. In its role leading the commercial development of the

sector, BIM should focus on the goals as set out in the Strategy:

Supporting innovation, restructuring and added value,

Improving competiveness, and

Developing environmentally sustainable fishing and aquaculture production

and management.

3. BIM should continue to work in partnership with its customers and other

relevant State agencies to develop the seafood sector in Ireland. The customer

and citizen should be central to the work of BIM, which should engage fully

with its client base in carrying out its function. BIM should strive to continually

and demonstrably enhance its relevance and service to the sector that it serves.

4. BIM should seek to make further efficiencies. Operations should be further

streamlined wherever possible and opportunities for sharing services should be

sought 1) with the Department and the other marine bodies and 2) with the

public service generally by engagement with the proposed shared service

initiatives in the Government’s Public Sector Reform Plan.

23

APPENDIX 1: TERMS OF REFERENCE FOR THE BIM CRITICAL

REVIEW GROUP

In November 2011 the Government announced its plans for reforming the Irish public

service in the document Public Service Reform. This reform provided for certain

agencies to be critically reviewed by June 2012. In the context of BIM, the purpose of

the review is to assess if the BIM functions should be transferred to the Department of

Agriculture, Food and the Marine.

A Critical Review Group will be established to undertake the review and advise the

Minister.

The Group will operate under an independent Chairman.

The Group will review and recommend whether or not the BIM functions should be

transferred to the Department of Agriculture, Food and the Marine.

The Group’s review will include:

1. An overview of BIM’s purpose, structures and processes with an assessment of

changes and efficiencies delivered in recent times;

2. An assessment of current and future operational activities and service delivery

within the context of Government policy for the sector (Food Harvest 2020),

and

3. An evaluation of BIM’s service provision together with an assessment of the

potential for further efficiencies in the provision of those services.

The Review Group is to conclude its work by 16 May 2012.

It is planned that the Review Group will include two external representatives:

Dr. Noel Cawley (Chairman) and

Mr. Lorcán Ó Cinnéide.

The Group is also to include four representatives of the Department of Agriculture,

Food and the Marine:

Dr. Cecil Beamish, Assistant Secretary,

Mr. Philip Carroll, Assistant Secretary,

Ms. Josephine Kelly, Principal Officer, Seafood Policy and Development

Division; and

Mr. Colm Hayes, Assistant Principal, Economics and Planning Division.

Mr. Nicholas Hoffman will act as Secretary to the Group.

24

APPENDIX 2: SUBMISSIONS RECEIVED

The BIM Critical Review Group requested observations from organisations that have an

interest in the Irish seafood sector. Submissions were received from the following:

Federation of Irish Fishermen

IFA Aquaculture

Irish Fish Processors and Exporters Association

The Environmental Pillar

Irish Fishermen's Organisation

Irish Seal Sanctuary Sea Fisheries Advisory Group

Irish South and West Fish Producers’ Organisation Ltd.

Killybegs Fishermen’s Organisation Ltd.

Save Bantry Bay

The following are summaries of the observations made regarding BIM in the

submissions received by the Group from various stakeholders and interested parties.

Federation of Irish Fishermen

BIM is a dedicated development agency with specialist skills and programmes.

It is central to the development of the seafood sector and to ensuring the targets

set out in the Food Harvest 2020 strategy are realised.

A transfer of BIM’s functions to DAFM would severely impair the industry and

could hamper any attempt to realise the huge potential growth in the sector.

Since 1952, BIM has played an integral part in helping the Irish seafood industry

adapt to challenges in the sector and deliver on its potential.

BIM is the only State agency with the skill set and knowledge base to address

the fragmented sales structure of the Irish seafood industry.

BIM is a development agency that has staff with commercial and technical skill

sets built up over years. If BIM is transferred to DAFM, there is a danger this

commercial development focus could be lost.

Bodies such as BIM, Bord Bia and Enterprise Ireland need to operate separately

from their parent Departments because those Departments are focused on policy

and regulation and therefore are not in a position to deliver development

functions.

25

BIM has evolved with the needs of the industry and consulted with the industry

to provide services that are relevant to the needs of the sector.

BIM has helped the industry to anticipate and adapt successfully to changes in

the seafood sector.

The training service provided by BIM is vital, given that fishing is such a

dangerous occupation. The training provided is tailored to the needs of the

industry.

The demand for seafood products will grow in coming years, and Ireland should

try to capitalise on this increasing demand. Without a dedicated seafood agency,

however, this will not happen, as there is no other agency or Government

Department that has the required expertise.

The sector development function should be kept separate from the policy

implementation function in order for the industry to operate effectively.

BIM staff are an integral part of coastal communities and a valuable resource to

those in peripheral coastal areas. Such support is vital to the continued survival

of the industry.

BIM’s functions should not be transferred to DAFM. BIM needs to retain its

autonomy to ensure its mission of supporting the industry is carried out.

IFA Aquaculture

BIM has for many years been a supportive and useful advisory agency for the

Irish seafood sector. The wild and farmed fish and shellfish industries have

benefited a great deal from the agency’s projects and initiatives.

It is vital to have a State development body to support, innovate and advise

producers. The industry needs an active development body to sustain and

improve job provision and exports.

BIM should review its progress towards meeting the objectives for farmed

seafood in the Food Harvest 2020 strategy.

BIM can help producers to reduce costs by compiling regular data on costs in

the sector.

Any move of BIM functions into the Department should only be taken if it will

enhance the services and support provided to the industry.

It is difficult to assess what savings, if any, would be achieved by transferring

BIM’s functions to DAFM. But there must continue to be an industry-focused

service that provides technical support, financial backing, development

assistance and independent advice to the sector and to the State’s licensing and

policy functions.

Irish Fish Processors and Exporters Association

BIM’s service provision to the fishing and aquaculture industries in Ireland is a

long-standing and effective operation. The range of these services has been

extensive, from assisting the expansion of primary production to assisting the

26

processing and distribution sectors with generating quality products and

competing in the marketplace.

BIM’s development services should not only be maintained, but should be

strengthened to meet the current competitive market conditions facing Irish

producers.

The development functions of BIM should not be transferred to DAFM. The

continued operation of these functions in BIM would ensure greater flexibility to

pursue opportunities for assisting the fishing and aquaculture industries to

increase output, trade and investment.

BIM brings a coordinating influence to bear on a diverse, dispersed industry.

Environmental Pillar

The report of the Special Group on Public Service Numbers and Expenditure

Programmes said absorbing BIM into other organisations could save about €7.3

million annually.

Many commercial functions of BIM (seafood marketing, export promotion,

seafood business development) should be or already have been absorbed by

other agencies (Bord Bia, Enterprise Ireland, Seafood Development Centre).

BIM’s expertise, knowledge and facilities would be most effectively utilised by

redistributing them amongst a number of other organisations, such as the Marine

Institute, the Sea Fisheries Protection Authority and DAFM.

BIM’s mission statement and customer charter say it is committed to promoting

sustainable development and responsible environmental practice. This

commitment is poorly reflected in BIM’s activities as these are concerned with

driving the exploitation of natural resources and the promotion of the industry at

all costs.

BIM proposes to become an aquaculture licence holder for a number of large-

scale finfish operations. This arrangement might lead to conflicts of interest as

the licence holder and the regulator would be too closely aligned, particularly if

BIM’s functions were transferred to DAFM. There should be a clear separation

of operational and regulatory functions.

Irish Fishermen’s Organisation

BIM has worked with the industry in the past, distributing grant aid and training,

which were badly needed in the industry.

Irish Seal Sanctuary Sea Fishery Advisory Group

BIM have left their core activities behind and the agency should return to these:

providing training to the fishing industry and the marketing and promotion of

seafood products.

27

Irish South and West Fish Producers’ Organisation Ltd.

BIM is the sole State agency dedicated to the Irish seafood industry and is the

only body with the specialist development skills and experience to help the

industry realise its full potential.

Transferring BIM’s functions to DAFM would have an adverse impact on the

services provided to the industry and on the industry itself.

BIM provides essential training services to the industry that are developed and

delivered in line with what the industry requires.

BIM’s Seafood Development Centre is an invaluable tool for the industry. The

SDC and BIM staff are working with the industry to “add value” to seafood

products. The SDC provides seafood businesses with a safe way to develop and

try out new products.

The commercial focus on innovation and development that BIM has could be

lost if its functions are transferred to DAFM.

Other State agencies, such as Bord Bia and Enterprise Ireland, operate separately

from their parent Departments because those Departments – due to their policy

and regulatory roles – are not in a position to deliver development type

functions.

BIM is the only State agency with the skills and knowledge to address the

fragmented domestic sales structure of the industry.

BIM has supported the industry with mentoring and financial assistance.

There is a real danger that if BIM’s development functions were transferred to

DAFM, there could be an adverse impact on them.

It will be hard for the industry to capitalise on increasing global demand for

seafood without a dedicated seafood development agency.

BIM staff have unique expertise and support the industry “on the ground”,

attributes which are vital for the continued survival of the industry.

The current separation between development functions (BIM) and policy

functions (DAFM) should continue.

BIM must retain its autonomy and its functions should not be transferred to

DAFM.

Killybegs Fishermen’s Organisation Ltd.

A developmental role for DAFM would be incompatible with its existing policy

and regulatory functions.

BIM is a dedicated development agency with specialist skills and programmes.

It is central to the development of the Irish seafood sector.

Transferring BIM’s functions to DAFM would damage the Irish seafood

industry as well as Ireland’s chances of capitalising on potential future growth in

this sector.

28

BIM has consistently helped the complex Irish seafood industry to face

challenges and to evolve along with changes in the market.

BIM is more than a provider of financial assistance. It has specialist skills, an

understanding of the sector, and it provides advice and programmes the industry

needs.

BIM has evolved with the needs of the industry. It has consulted with those in

the industry to ensure its programmes remain relevant to the needs of the sector.

BIM has helped the industry achieve an excellent reputation internationally for

quality seafood products.

BIM has provided vital training to thousands of fishermen over the years. The

training is tailored to the needs of the industry.

Any change to the current model of delivering services to the industry could set

the sector back decades.

The demand for seafood is set to increase in the coming years, but without a

dedicated seafood agency the Irish industry will not be able to capitalise on this.

No other agency or Government Department has the expertise to support the

industry.

Development functions and policy functions should be kept separate to ensure

the sector operates effectively.

A move of BIM’s functions to DAFM will destroy the link BIM staff have with

the coastal communities and the industry will suffer.

Save Bantry Bay

DAFM administers aquaculture licensing and regulates the activities of licence

holders. BIM is aiming at becoming an aquaculture licence holder. Therefore

moving BIM’s aquaculture functions under the Department’s remit would be a

conflict of interest. There should be a clear separation of operational and

regulatory activities, and these should be kept in separate organisations.