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Back to the Future

As IOFGA celebrates 25 years, Cáit Curran looks at how the sector has progressed and examines some of the issues facing organic producers.

"We started out with the joys of spring and we were going to do great things" recalls organic farmer, Pat Mulrooney speaking about the beginnings of the organic movement in Ireland. Twenty five years later he still believes in the farming system he has devoted his life to. "We have proven that it works and we are pretty good at it; in many ways we have surpassed ourselves" he says. However, Pat is deeply disillusioned with the way farming has become. "Its frustrating that we've lost the plot outside the farm gate. Bureaucracy has taken over. The things outside my control are the things I find difficult to take" he says. Pat's feelings are mirrored by almost any of the organic pioneers you care to talk to.

On the one hand there is a deep sense of satisfaction and contentment with the farming lifestyle they have chosen but great disillusionment with what farming has become. As Anthony Kilcullen another organic veteran puts it "Farmers have become so buckled into the subsidy system; it has focused everyone in the wrong direction. People have forgotten how to produce crops in order to get their hands on subsidies".

Battling against the tide

Twenty five years after the Irish Organic Farmers and Growers Association was established it could be argued that very little has changed in terms of the development of the sector. Currently, there are 1,100 organic producers and that number is expected to increase when the next round of the Rural Environment Protection Scheme (REPS) comes into operation next year. A target of 3% land under organic production by 2006 was considered possible by the Organic Development Committee but this target date has now been revised to 2010.

The development of organic farming has been taking place against a backdrop of a declining agricultural sector that has lost 40% of its farmers since 1980. The simplest explanation for the slow growth of the organic sector is that it has coincided with a period of massive change in agriculture where mainly extensive and self sufficient methods of farming were replaced by a subsidy driven system of specialisation, intensification and reliance on agri-chemicals. "We have lost faith in the production of food. The notion of self sufficiency so strong in years past has been completely lost" says Anthony Kilcullen. "There is so much ignorance and fear of using traditional knowledge. Farmers are so tied into the agri-chemical system – they feel they dare not use them. They are borrowed up to the hilt. The risk of change is too big for people".

Growing financial prosperity and huge change in the ethos of farming has led young farmers to abandon full time farming in favour of a guaranteed income, nine to five lifestyle. Organic farming has struggled to face these challenges but much is likely to change. "Already with the single payment system it's beginning to click with farmers already that numbers and production are not an issue any more" says organic advisor Mary Lynch. "Farmers are going to have to do a lot more to get payments and environmental protection will be a big element of REPS 4".

The introduction of the first round of REPS led to an influx of farmers availing of the additional subsidies for the organic supplementary measures. Many quit organic farming at the end of the scheme complaining about lack of markets for their products. Mary Lynch feels that realistic expectations are essential for farmers availing of the organic option. "Many farmers settle in very well because they know what they are getting into" she says. "Farmers don't tend to become involved in organic farming issues or organisations these days and it's important to get out there and meet them. We should have much more emphasis on farm walks and social events". Pat Mulrooney thinks that a more radical change of attitude is required. "Farmers have to stop looking on organic as just another financial opportunity. The present system of farming is not sustainable. The mix in farming is not there anymore" he says. "Subsidies are just another sop to farmers to provide extra income".

Where's the beef?

State bodies charged with supporting organic farming have been involved with the sector for many years with limited success. The deep level of disillusionment and frustration at lack of progress felt by many of the long standing organic community is something that state agencies have failed to recognise. Action plan after report after survey has been carried out but little apart from an ever growing body of regulation has been implemented. Organic farming issues are essentially the same now as they were 25 years ago. They centre on the basic needs of anyone entering organic farming – information, education and training. After set up, access to technical support, research and market development are the areas of greatest need among farmers. At present the only available body of expertise remains within the organic community. Producers feel that little use is made of it and that no serious efforts are made by the relevant agencies to develop technical expertise where needed. "I feel that I've been left high and dry on the animal feed side" says Pat Mulrooney. "No effort has been made to help with grain growing and it's a sin to have to import organic grain. We need to develop rations for winter milk production and to encourage a mixed farm approach".

The plan to provide trained specialist advisors within the Teagasc organisation has not been implemented and at present only one specialist is available in the country. "Resources are always a problem" explains Ger Shortle of Teagasc. "We aim to designate 6-10 advisors country wide who will have a general familiarity with organic production". He views the setting up of organic demonstration farms as the most effective method of getting the organic message to farmers. The establishment of these farms is accepted by the organic community as one of the few positive developments over the past couple of years.

A limited research programme is being carried out by Teagasc at two centres. A trial to establish the most suitable breeds of beef for the organic market is taking place at Johnstown Castle in Wexford and will be carried out over a minimum of 5 years. An organic arable crop rotation trial is taking place at Oakpark in Carlow over a 7 year period. Even though the greatest demand is for horticultural crops no research is taking place in this area.

The availability of education and training for potential organic farmers has not progressed in recent years. At present Teagasc provides short introductory courses on demand but the only full time training available is in organic horticulture and provided by non government organisations and private individuals.

Thinking outside the box

The lack of markets for organic meat products is regarded by many as the single greatest barrier to development of the sector. The public perception of the benefits of organic meat, particularly red meat, is much less definite than for horticultural produce. Allied to that is the exorbitant price sought by supermarkets for organic meat products. Some of the blame for the slow development of the meat sector must be attributed to farmers themselves. "Almost 60% of organic beef produced goes for export" says IOFGA Symbol Scheme Manager, Pascal Gillard. "Organic farmers do not always support the sector in their buying patterns". The easy option for farmers converting from a conventional system with set market structures is to continue to bring their animals to the mart. "There is a history of seepage to the conventional market in the past" says Pascal. "Perhaps there is a case for penalties to be imposed where farmers do not make efforts to source an organic outlet for meat". The practice of finishing stock in the fall of the year causing a glut on the market will also need to be altered. "The possibility of finishing heifers off grass and feeding concentrates to spread production will have to be considered by farmers" he says. "We know that the lighter traditional breeds are best suited to organic production; they are easier to finish and the meat is considered to be tastier and healthier". But finishing stock throughout the year requires a ready source of affordable animal feeds which, as Pat Mulrooney points out, are not available without recourse to imports.

Growing imports

The marketing of horticultural produce on the other hand presents no such difficulties. There has always been a high level of public receptiveness to organic fruit and vegetables. Consumer demand far outstrips domestic production and the level of imports can be as high as 90% at particular times of the year. Indigenous production is shrinking and imports are growing. The belief has persisted among state agencies that the growth of the horticultural sector depends on the conversion of large scale conventional growers to supply the multiples. This is a development that is never likely to occur. A huge degree of rationalisation has taken place in recent years within conventional horticulture. Growers have become specialised and have invested heavily in plant and machinery to produce specific crops. A conventional grower would never consider the risk of moving to a system requiring rotational planting, and without reliance on herbicides and pesticides. Organic horticultural production in Ireland has tended to be on a small scale, intensive level incorporating high value protected crops. This model also works well in other EU countries, particularly Italy and Spain but has never received state support here. The difficulty of sourcing labour is one element constraining the development of horticulture but not the only one. "Many interested people graduating from horticultural training courses do not own or have access to land" says Mary Lynch. "REPS does not cater for small scale producers and realistically, capital grants of €10,000 to €20,000 should be available for start up". Jason Horner has seen at first hand the benefit that demonstration farms can provide. "There needs to be a whole support system in place to help people during those difficult first years" he says "and we need at least one dedicated organic horticultural advisor on the ground". Lorcan Bourke of an Bord Bia says there are plans to source a consultant with technical horticultural skills from abroad because the expertise is not available here. He believes that there is room for producers of varying scales and points to an Bord Bia's support for the development of farmers markets to encourage small scale growers. While the volume of organic produce being sold through so called 'farmers markets' has grown, Jason believes that it has not increased indigenous production. "What you have is more imported produce being sold and that may displace local production entirely" he says.

Organic advantages

The value of raising public awareness about organic food when production is at such a low level is a question that has been debated for some time. There is general agreement that consumer education is a vital component in developing organic production. Consumers should know how their food is produced and why organic food apparently costs more to produce. The first ever national organic week was run by an Bord Bia in late 2004. A national press and radio advertising campaign caused general disappointment within the organic community when all it said was that organic production methods were 'different'. Many feel that sufficient data is now available to make more definite claims. "There are very split opinions on the issue of health and taste and that is why we preferred a more general campaign" says Lorcan Bourke. "We focused on the issues we could stand over and we had a very short turn around time to organise that campaign". Jason Horner thinks that the campaign might have been premature. "What do we really have to promote at present" he asks. "Perhaps the money could have been better spent on getting growers into production".

Many in the organic community feel that asking an Bord Bia to promote organic food puts the organisation in an invidious position. Because it already promotes conventional production, recommending organic food could be regarded as a slight on conventional methods. "Bord Bia is in a bind" says Mary Lynch. "Conventional production is their area and we should have a separate promotion agency for organic food, properly funded".

How organic farming develops in the future depends on several factors but Jason Horner feels that one issue above all others will bring a return to local production. "We are hearing more and more about peak oil production" he says "and when stocks run out in 20 years time that will change how we produce our food". Our government seems no better prepared for this eventuality than it to convert Ireland into a genuinely green food island. To borrow from one of the less inspired political slogans of our time 'very little done; much more to do'.

What's the plan?

The organic community can justifiably say they are one of the most surveyed sectors in Ireland.

The Western Development Commission spent a great deal of time and financial resources on producing the first major plan for organic farming – Blueprint for Organic Agri-Food Production in the West in 2001. None of its major recommendations have been implemented.

The Department of Agriculture set up an organic development committee that produced an Action Plan in 2002. A summary of the main recommendations of the plan are given below together with outcome. Arising from the committee a steering group was set up to oversee the implementation of the plan. The steering group has two sub-committees – one on marketing and another on education and training.

Recommendations and Outcome

The Department of Agriculture to make national regulations for organic produce - Made in 2004
Teagasc to carry out commercial appraisal of the organic food sector - Not done
A full range of courses to be established for the organic sector - Only Teagasc short courses to date
Demonstration farms to be identified - 12 farms designated to date
Organic publications to be developed - No progress
A Teagaasc advisor to be appointed in each county supported by a team of trained specialists - Not done
Advisory and information service to be developed and facility to support organic horticulture to be established - Not done
Consumers should be informed about the reasons for the cost of organic food - Not done
Wide ranging research to be carried out - Limited research being done
Organic discussion groups to be set up.
A national label for organic food to be designed - Project abandoned
Quality assurance scheme for organic food to be set up - Not done
Feasibility of developing new distribution channels for small scale producers to link to central distribution - Not done
Promotion of organic food to focus on Irish products - Not done
Export markets to be developed - Not done
Main farming organisations should give due priority to organic farming and assist with marketing - No progress
Financial supports under REPS to be increased - Some put in place
Funding to be made available to assist with supporting organic sector - Limited funding available
Funding to be provided to assist research, training and advisory partnerships - Very limited progress

Where the money goes

As a proportion of an overall budget of €2.7 billion, the money spent by the Department of Agriculture on promoting organic farming is small. Even so, the uptake of aid under Grant Aid for the Development of the Organic Sector is poor. The bulk of aid paid out has gone to large scale enterprises and small scale producers have complained about difficulties encountered in qualifying for assistance.

A total of €468,000 was paid in grant aid to the organic sector in 2005. The figure for 2004 was €167,000. The setting up and funding of the Organic Development Committee has cost €497,000 to date.