Protecting Our Marine Environment - Ministerial Response - 10 January 2012

Findings

Comments

1

Manpower and resources within the Department  cannot  always  meet legitimate  stakeholder  aspirations, and  in  the  event  of  a  serious environmental incident the regular workload  of  the  Environmental Protection team is compromised

Partly accept. The Panel's and the Advisor's report correctly  state  that  the  manpower  and  financial resources  of  Environmental  Protection  team  (EP) remain extremely stretched. The EP of 13 officers delivers  an  increasingly  large  and  diverse  remit; including  pollution  prevention  and  control,  waste management  regulation,  management  of  water resources, drinking water quality regulation, plant protection and pesticide control. The regulation and monitoring of the marine environment, as focused on by the Panel's review, is only part of this remit. Due to insufficient resources EP need to routinely prioritise and adjust their work in order to continue to  deliver  identified  key  business  plan  objectives (for example proactive pollution prevention work, engagement with the farming community etc.), as

well as responding to unplanned and reactive work that may arise. This is achieved using a risk based approach that attempts to deliver the most beneficial environmental outcome given the constraints. In the event  that  this  is  unforeseen  or  re-active,  this inevitably takes resources away from other areas of work.

In the context of the Panel's comment, Stakeholders often adopt a hazard-based approach (i.e. a general concern  about  all  chemicals  entering  the environment), whilst EP, like the UK Environment Agency, adopt a risk-based approach (assessing the risk  and  targeting  resources  to  deliver  the  best environmental outcome based on the likelihood and severity  of  impact).  This  is  a  normal  tension between stakeholders and the regulator (as cited in P:56 of the Scrutiny Panel Advisor's report).

Notwithstanding this, and particularly as dialogue and engagement with stakeholders is a key aim for EP,  all  the  concerns  and  aspirations  of  the stakeholders are assessed, and providing that they satisfy  the  risk  based  approach  for  best environmental outcome they will be acted upon.

A serious environmental incident will add pressure on EP's manpower and time resource and again pull resources away from other areas of work. EP use a risk based approach when securing compliance with the  various  laws  that  it  administers  and  uses appropriate  enforcement  powers  including prosecution  as  an  important  mechanism  for achieving this Environmental safeguard.

In the context of the Panel's second point, a serious environmental incident involves extensive work and will always be prioritised. The criminal process for prosecution  requires  sufficient,  admissible  and reliable  evidence  that  the  offence  has  been committed,  that  there  is  a  realistic  prospect  of conviction  and  that  it  is  in  the  public  interest  to proceed.  This  will  involve  the  submission  of  a comprehensive  case  file  to  the  Law  Officers' Department. The decision to prosecute then lies with the Law Officers.

EP  uses  a  coordinated  team  approach  and,  when necessary,  re-allocation  of  resources.  For  the  last two case files requiring submission, the pulling of resources from other areas was not possible, due to the nature and complexity of the offences and this resulted in a delay in submitting a case file to the Law Officers.

2

While  some  aspects  of  European legislation  are  adhered  to  locally, resources  available  are  currently insufficient  to  permit  full compliance  with  wider environmental  directives,  such  as the  Water  Framework  Directive. There  is  potentially  some  lack  of clarity  amongst  the  public concerning  which  elements  are legally enforceable

Accept.  The  EU  Water  Framework  Directive (WFD)  and  the  EU  Marine  Strategy  Framework Directive  (MSD)  are  2  key  European initiatives/tools that set the future direction of travel and context for the delivery of a robust, holistic and recognised management and enhancement approach to  the  Island's  unique  freshwater  and  marine resource.

EP are therefore developing a strategy to assess and enable  the  necessary  elements  of  the  Water  and Marine  Strategy  Framework  Directives  to  be adopted  in  Jersey.  Since  the  Marine  Monitoring Scrutiny Review, EP (the regulator) and TTS (the Island's  sewerage  undertaker  have  commissioned WCA  (the  Scrutiny  Panel's  consultants)  to  scope out  the  data  requirements  to  classify  the environmental status of St. Aubin's Bay according to the Water Framework Directive. WCA are also scoping  similar  work  to  classify  the  Island's freshwater resource (surface and groundwater). Both the  Water  Framework  Directive  and  the  Marine Strategy Framework Directives are holistic in that they  consider  broader  ecosystem  functioning  in relation  to  the  aquatic  environment  and  this  will promote  and  necessitate  thematic  working  across States  Departments  and  engagement  with stakeholders.

The Panel's finding is correct. The current financial and manpower resource of EP are not sufficient to implement the WFD in its entirety. The Department will therefore submit a growth bid for two full time employee  (FTE)  posts  and  funding  to  enable delivery of the Directives by current EP officers. In the  event  that  the  growth  bid  is  fruitless,  a prioritised approach will be taken.

It is agreed that some lack of clarity exists among the  public  concerning  which  elements  are  legally enforceable (given the requirements of Protocol 3). However, for clarity, the Water Pollution (Jersey) Law 2000 states the Minister's General Objectives' and  Operating  Considerations'.  This  includes, amongst  other  things,  maintenance  and improvement of Water Quality and the conservation of the flora and fauna that are dependent on the aquatic environment. It also states that the Minister shall have regard for best environmental practice. The  WFD  provides  an  integrated  best  practice framework to deliver this. The EU Bathing Water Directive is well documented in Jersey (results and reports  uploaded  to  the  States  web  site).  It  is envisaged that the strategy for WFD and MSD will

include  involvement  of  various  non-governmental environmental  organisations  and  necessitate  close public engagement.

3

Knowledge of the chemical status of Jersey waters is limited. Existing discharges  and  continuing development  on  the  Island's coastline create pressures which are not  adequately  understood.  Some important priority pollutants are not included in current monitoring

Accept.  Chemical  status  of  marine  waters  is  not fully  understood.  This  is  due  to  the  historic emphasis of EP's monitoring on the freshwaters that flow  into  the  marine  environment  and  their importance  given  to  protecting  the  Island's freshwater drinking water supply. The lack of large industrial processes and industries in Jersey are also a consideration.

As part of the future planning application for the ash cell headland, and in line with requirements of the forthcoming Waste Management Licence for the La Collette  Waste  Management  Facility,  TTS  have undertaken a baseline water quality characterisation and proposed a future monitoring strategy for the site.

All major discharges into the marine environment are regulated through discharge permits issued by the Department under the Water Pollution (Jersey) Law 2000. The permit for the discharge into the Ramsar site from the EfW is conditioned to require monitoring of the discharge area by TTS.

The Department has a long-term data set of heavy metals  in  coastal  marine  biota.  Following  the Panel's review this has been increased to include 2 sites off La Collette and to include some priority pollutants (including mercury that was recorded in a recent sample at below the detection limit). Analysis for  PCBs  and  brominated  flame  retardants  in shellfish  flesh,  as  recommended  in  the  Advisor's report, has also been undertaken and concentrations below  the  level  of  detection  were  recorded. Screening for priority pollutants in the discharge of the  Sewage  Treatment  Works  will  take  place shortly.

Priority pollutants are identified within the Water Framework Directive and assessment of these will be  included  in  the  monitoring,  assessment  and subsequent classification of the environmental status of local marine and freshwaters under the system proposed by the Water Framework Directive.

4

Excluding a service level agreement with  the  States  Analyst,  out  of  a total  monitoring  budget  for  all environmental  purposes  of  only £10,000 per annum, only £3,000 is currently  available  for  monitoring and analysis of results from inland

Accept. The value of the service level agreement has not increased in line with cost of living since 2003. The current monitoring budget will need to be increased to enable the monitoring proposed by the Review.

The  scoping  documents  for  the  WFD  relating  to St. Aubin's  Bay  and  the  island's  freshwaters

and  marine  waters;  this  is insufficient  to  obtain  a  clear understanding of the main sources of marine pollution and its possible impacts

currently being prepared by WCA (Ref: Finding 2) will  identify  required  monitoring  costs.  These analyses are complex and expensive (for example endocrine disruptors).

The  Department  does  not  have  the  financial resources and this will be included as part of the growth bid (Ref: Finding 2). In addition, monitoring is also a time intensive activity.

5

Existing  laboratory  arrangements are a barrier to meeting stakeholder expectations  for  investigative monitoring,  and  any  significant additional work would need to be out-sourced.  Solutions  to  chronic microbiological quality issues will not  be  found  with  existing approaches and resources

Partly  accept  (answer  related  to  Finding  1).  The laboratory presently only receives water samples for microbiological  analysis  between  Monday  and Wednesday. This is due to the length of analysis time required that necessitates weekend work. The number of samples that the Analyst can process at any one time is limited to approximately 6.

However,  if  the  Department  recommended  that urgent  analysis  were  required  then  the  Analyst would arrange for the samples to be analysed at any time. The cost of this work would need to be met by the Department's limited budget (ref. Finding 4).

6

The Bellozanne Sewage Treatment Works (STW) fails nitrogen limits under the EU Urban Waste Water Directive

Accept.  The  latest  study  of  the  trophic  status  of St. Aubin's Bay was received from TTS at the end of the fourth quarter of 2010. This project replicated work  undertaken  in  1997  which  identified St. Aubin's Bay to be potentially eutrophic, thereby informing  decisions  when  drafting  the  original discharge permit in 2000.

Changes  to  the  scientific  methodology  used  to assess eutrophication led to the bay no longer being classified as sensitive' according to the EU Urban Waste Water Directive.

The Department informs the Attorney General (AG) in a quarterly report of all pollution instances and breaches  of  discharge  permits  operated  by  States Departments. This includes the exceedence of the Total Nitrogen condition for the sewage treatment works.

Two formal warning letters have been issued to TTS by the Department relating to the failure to comply with limits for nitrogen on the Discharge Permit. TTS  have  instigated  a  number  of  significant  and costly

Modifications/improvements designed to lower the discharge of nitrogen. Unfortunately, these have had little  impact.  The  Department  have  discussed  the matter with the AG and he recommended that a case file  be  submitted  for  his  legal  opinion.  This  is presently being finalised by the Department.

7

Public knowledge and access to the results of microbiological and other sampling  carried  out  by  different departments  are  currently  limited. The  transition  to  the  new  States website has made it more difficult for the public to access data held by Environmental Protection

Accept.  I  fully  support  the  public  being  able  to access all monitoring data. Unfortunately, the new States web site has limited the Department's ability to  upload  the  quantity  of  data  required  to  fully inform stakeholders.

Full  access  of  data  by  the  public  could  increase public awareness and engagement and decrease the time required by Department officers who presently respond to requests for information. Requests range from companies asking for data to inform desktop studies  for  contaminated  sites,  legal  requests  for information appertaining to property sales and data to  school  students  working  on  pollution  related projects.

8

There  is  currently  no  one-stop shop'  for  public  or  stakeholder enquiries  about  environmental  or public  health  data  relating  to  the marine environment

Accept. Environmental Protection already provides some  information  e.g.  the  EU  Bathing  Water Directive  and  associated  WHO  guidelines  (ref: Finding 7). However, the wider health of the marine ecosystem and public health are overseen by other sections  in  other  Departments.  Presently  officers coordinate  responses  and  pull  together  such information requests.

Closer working with Environmental Health and the joint identification of mutually beneficial strategic and operational objectives will help coordinate such enquiries. Cross departmental thematic working and the  holistic  approach  demanded  by  the  Water Framework  Directive  and  the  Marine  Strategy Directive will further assist.

9

More  investigation  is  needed  into the  metal  burden  entering  the Bellozanne  Sewage  Treatment Works  and  its  eventual  disposal into the marine environment

Accept.  This  is  regulated  through  the  Drainage (Jersey)  Law  2005  administered  by  TTS.  The Environment Department requested a report on the suitability of disposing of the leachate arising from partially filled and capped ash cells via the sewage treatment  works  (STW).  This  report  was  made available  to  the  Panel.  The  report  recommends future  monitoring  of  the  STW  which  TTS  are currently  undertaking.  The  Environment Department has further requested information held by  TTS  on  the  trade  effluent  consents  permitted under the Drainage Law to enter the STW. TTS are not currently obliged to consult with the Department concerning  trade  effluent  consents,  however  this aspect  will  be  conditioned  within  the  revised discharge  permit  as  all  such  discharges  can potentially flow into the marine environment and the Department need to have knowledge of these.

The work currently being undertaken by WCA (Ref: Finding  2)  will  further  help  characterise  the composition  of  the  discharge  and  any  potential

impacts to the marine environment.

10

The Department's recent paper on trends  in  oyster  contamination throws  more  light  on  a  complex situation.  However,  in  the  time available  the  Panel  has  not  been able  to  test  its  findings.  An independent  review  of  these  is therefore desirable

Accept. The Panel is correct in stating that this is a complex situation. Not only with respect whether contamination levels are improving or getting worse but  also  in  respect  in  benchmarking  bed  grading results achieved in Jersey with those in the UK. The Department  drafted  a  preliminary  paper  to  assess whether  there  is  continued  deterioration  or  an improvement in bed quality. This will be reviewed by Professor Ron Lees (CEFAS).

Recommendations

To

Accept / Reject

Comments

Target date of action/ completion

1

We recommend undertaking a risk-based  assessment  of  the chemical  contaminants  most likely to be present in Jersey's waters,  and  the  estimated reasonable worst case loads of these  substances  in  the Bellozanne effluent and diffuse inputs  from  the  La  Collette reclamation  site.  This  should not  be  a  hazard  assessment. This would deliver a clear list of  potential  contaminants  of concern  and  evidence  to support  their  selection.  This exercise  should  then  be followed up with limited, but targeted  monitoring  of effluents and sessile biota close to these sites

Accept

The  Department  has commissioned  WCA  (the Scrutiny Panel's consultant) to provide  a  detailed  scoping study regarding the full water quality  and  biological  indices and  data  requirements  to enable  a  classification  of St. Aubin's  Bay  and  the island's  freshwaters  (surface and groundwater) according to the  EU  Water  Framework Directive  (WFD).  This  will include  all  priority  hazardous substances as required by the WFD. The work will initially centre  on  the  assessment  of chemical inputs to St. Aubin's Bay  (including  heavy  metals and endocrine disruptors from the  Sewage  Treatment  Works (STW))  and  be  supported  by the  recent  study  and  onward monitoring of the STW as part of  TTS  work  to  assess chemical loadings through the disposal  of  ash  cell  leachate via the STW.

TTS have recently finalised a baseline  water  quality  review and  an  operational  water quality monitoring plan for the La  Collette  Waste

Ongoing,  scoping work  already commenced.

Management  Facility.  This includes  an  assessment  and recommended  future monitoring  of  all  potential sources  of  pollutants  arising from  all waste activities.  The Environment  Department  has been  closely  involved  in  this work.  The  future  monitoring strategy  will  be  conditioned within  the  La  Collette  Waste Management License issued by the Environment Department.

Since  the  Review,  the Environment  Department  has augmented  the  existing monitoring  suite  of  heavy metals  in  marine  biota  to include  mercury,  PCBs  and brominated flame retardants as recommended  in  the  Panel's report). A monitoring strategy for  the  Island's  Ramsar  sites has also been drafted.

TTS  have  installed  a monitoring  point  for  the Cavern  discharge  –  EP  are awaiting  a  storm  event  to sample.

The  Environment  Department does not have sufficient funds to  undertake  all  of  the  long- term monitoring as required by the WFD. TTS have engaged with  and  funded  part  of  the initial  scoping  work. Additional  funds  will  be required to undertake this work (Ref: Finding 2).

2

Having  undertaken  the  above exercise,  longer  term monitoring can be refined and targeted  to  cover  only  key contaminants of concern, NOT all chemicals

Accept

This is in total agreement with the  principles  of  risk  based monitoring  strategy  that  the Department is working toward for all monitoring activities.

Commenced finalised key contaminants identified by June 2013.

3

The scope of marine chemical monitoring  around  Jersey should be reviewed to ensure that  analytical  data  are compatible with EU regulatory

Accept

Ref:  Recommendation  1.  The recommendation is entirely in line  with  the  principles  and envisaged  benefits  of  the Department's  proposed

Ongoing,  scoping work  already commenced.

requirements in order to allow effective  comparison  with international  standards.  This would  deliver  greater understanding of the status of waters, and provide confidence to  those  markets  reliant  upon Jersey's  resources,  such  as shellfish and tourism

implementation  of  the  EU Water  Framework  Directive and  the  EU  Marine  Strategy Directive.  The  scoping  work for this has started.

4

Additional resources and more flexible  arrangements  for aqueous  microbiological sampling  and  testing  on  the island  are  essential  to  meet reactive  monitoring  demands and  stakeholder  expectations. A  policy  review  of  delivery capability  for  long  term reactive  monitoring  is necessary

Accept

Ref:  Finding  4.  An  informal agreement  to  enable  out  of hours work with the States of Jersey Official Analyst exists. This  will  be  made  more official within the revision of the service level agreement in early 2012.

The  Department  has  held initial  discussions  to  see whether  the  laboratory  at Jersey  Water  can  assist  and undertake certain analyses. The Department  will  continue  to investigate the cost and benefit of  forwarding  samples  to  the UK for analysis.

SLA and policy review by March 2012.

5

Structured  microbiology monitoring  surveys  should  be undertaken to characterise the sources and pathways of faecal pollution.  These  surveys  will need to be significant in size and scope to be effective and will require external laboratory services

Partly accept

The  Department  remains committed  to  identifying  and preventing  all  forms  of  point and  diffuse  pollution.  As correctly  mentioned,  the surveys  identified  in  the advisors  report  represent  a major cost and undertaking by the  Department.  Accordingly, the Department needs to ensure that  the  methodology represents  the  best  available science  that  will  deliver  the results  required  to  enable practical  solutions.  The Department  also  needs  to assess  whether  a  significant problem  exists  or  whether occasional bad results are due to  environmental  factors characteristic  of  densely populated and heavily utilised coastline; problems which are harder  to  solve  (for  example wash down of general diffuse

Initial views of UK experts by March 2012. Further work time-tabled according to report recommendations and funding.

pollutants during rain events).

The views of two UK experts in  this  field  Professor  Ron Lees  (CEFAS)  and  Professor David  Kay  (CREH)  will  be sought  by  the  Department  to inform this issue.

6

Monitoring data from sites of public  interest  such  as Bellozanne  should  be  more readily  available.  The establishment  of  public registers in a similar manner to the  UK  Environment  Agency would  help  create  a  more informed  dialogue  with stakeholders and remove some of the prevailing suspicion

Accept

Ref: Finding 8.

A  Departmental  approach  is required for all monitoring data

Strategy for public register by June 2012.

7

The use of external providers should  be  considered  to address  shortcomings  in  on- Island  monitoring  and analytical  resources  for  the purposes  of  additional  survey work  (as  recommended  in  1 and 5 above)

Accept

This is entirely in line with the current  work  of  the Department.  The  EP  team deliver an extremely wide and diverse  remit  in  comparison with  specialist  colleagues  in the UK Environment Agency.

External  providers  who  are familiar with the island and the Department are able to provide quick and informed advice. It was  for  this  reason  that  the Department  used  the  Panel's Advisor  to  discuss  the  future progress  of  these recommendations.

Ongoing. External providers identified as and when required.

8

Departmental resources should be  increased  to  enable  more emphasis to be given to marine monitoring

Accept

Ref:  Recommendation  1.  A growth bid will be submitted in 2012.

Growth  bid submitted  by February 2012.

9

A  position  statement  clearly defining  aims  and  objectives for  improving  water  and shellfish  quality  should  be prepared  in  consultation  with stakeholders and brought to the States for approval

Accept

Grade  A  beds  only  occur  in waters  of  pristine  quality. Jersey  has  2  Grade  A  beds compared  with  one  in  the whole of the UK. The UK are aspiring to meet at least Grade B  standard.  This  helps  farms plan  for  required  depuration units etc.

A  similar  position  statement for Jersey was discussed with

Marine  review  of industry completed  by January 2012.

stakeholders  during  the Department's  recent Aquacultural  Strategy workshop.  It  will  be  further discussed  as  part  of  the forthcoming  Departmental strategy  for  the  wet  fish  and shellfish industries.

10

Jersey should adopt all relevant sections of the European Water Framework  Directive  to enhance  the  protection  of  all local  waters  (both  inland  and coastal)

Accept

Ref:  Finding  2.  The implementation  of  the  EU Water  Frame  Directive  will provide  for  the  holistic protection  of  the  island's inland and marine waters. The Department has already scoped out  some  of  this  work.  It remains  that  financial  and manpower  resource  will  be required. The Department will submit a growth bid to enable this.

Ongoing,  scoping work  already commenced.

11

Jersey  should  also  adopt  and comply with the provisions of the Marine Strategy Directive as a framework for protection of the marine environment

Accept

As  above  –  The  EU  Marine Strategy  Directive  provides  a holistic and cross departmental initiative  that,  like  the  WFD, will  help  secure  buy-in  and participation by Environmental non-governmental bodies.

Ongoing, implementation dependant  on outcome  of growth bid.

12

A  dedicated  section  of  the States website (or a standalone site)  should  be  created  as  a public register for easy access to all available environmental data. This should also feature relevant  information  from other  departments  such  as public  health  data  on  the results  of  monitoring  of commercial species for public consumption

Accept

Ref: Finding 7.

Strategy for public register  by  June 2012.

13

There should be a presumption that  all  data  held  by  States departments on environmental matters  (other  than commercially  sensitive information relating to specific stakeholders) should be freely available to the public

Accept

All Department data relating to water  quality  is  publicly available.  The  only  exception is  data  relating  to  ongoing criminal  investigations.  The Department  will  work  toward informing  the  public  on  the information that it collects.

Strategy for public register  by  June 2012.

14

Effluent  monitoring  data  to

Accept

TTS  already  forward

January 2012

include  relevant  information on  heavy  metal  content, coliform counts and details of any  exceptions  and  overflow events  should  be  provided automatically  to  the aquaculture  industry,  with  a failsafe system put in place to communicate urgent warnings

information  on  overspills  to stakeholders. The provision of an  early  warning  system  will be discussed with TTS.

15

Additional laboratory capacity is  required  to  permit microbiological samples taken throughout  the  week  to  be analysed.  Incidents  can  occur 24/7  and  laboratory  services should be available to meet the needs of the industry

Accept

Ref: Finding 5. This is outside the remit of my Department.

n/a

16

A  task  group  involving  both regulators  and  industry representatives  should  be  set up  to  coordinate  action  on water quality. This should be separate  from  the  Ramsar Management  Authority, although  that  group  could  be represented

Partly accept

The  Department  endorses  the need for open and transparent dialogue  with  the  public  and NGOs.  However,  the Department  already  sits  on various  groups  including Fisheries  Panel,  Aquaculture Panel  and  Ramsar  and  these provide  effective  forums  for joint discussion.

n/a

17

A  review  of  the  terms  of reference  and  working  of  the Ramsar  Management Authority should be carried out in  consultation  with stakeholders  and  other interested parties

Accept

This will be undertaken during the  appointment  of  a  new Chair for Ramsar.

January 2012

18

To ensure the robustness of its findings, the paper Long-term trends  of  bacterial contamination  in  Oysters (Crassostrea gigas) cultured in South-East  Jersey'  should  be submitted for independent peer review

Accept

This  is  central  to Recommendation  5  (Ref: Finding 10). The paper will be reviewed  by  Professor  Ron Lees (CEFAS).

January 2012

19

A  full  explanation  of  the circumstances  of  the  alleged environmental  incident  at  the Energy  from  Waste  plant construction site at La Collette in  April  2009,  together  with the steps taken to investigate it

Unable  to  agree  or  disagree. The Department is committed to transparency and adhering to legal protocols. The release of information  pertaining  to criminal cases is dependant on the legal advice received from

According to the AG's advice. Matter being chased by the Department to bring this to a conclusion.

should  be  published  without delay

the  Attorney  General.  EP  are guided  by  legal  principals  as set out in the Enforcement and Prosecution  Policy'.  The Department  are  in  regular contact with the Law Officers' Department  to  determine  the possibility  of  release  of  this information.  The  Department hopes to be able to inform the Panel of their advice shortly so that  this  matter  can  be resolved.