Part III: FUTURE FOR FRESHWATER FISHERIES MANAGEMENT
Chapter Twelve: Possible Management Structures for Freshwater Fisheries
Introduction
104. The Report of the Scottish Salmon Strategy Task Force, published in 1997, examined in some detail the structure in place in Scotland for the management of fisheries for salmon and sea trout, and specifically looked at the District Salmon Fishery Board ( DSFB) system. It was beyond the remit of the Task Force to consider management of other species of freshwater fish. Nevertheless, the Task Force concluded that whereas there was a need to take account of other species when considering the management of salmon, there were important issues concerning funding, the interactions between fisheries for different species, and the representation of different species interests on any management body.
105. The report Protecting and Promoting Scotland's Freshwater Fish and Fisheries: A Review, (The Scottish Executive, SNH; 2000) concluded that:
'The management of freshwater fisheries in Scotland lies in the hands of a number of bodies ranging from central government to private individuals. The Scotland-wide, river-by-river salmon fishery district system for the management of salmon fisheries has existed for more than a century, although there are still a number of districts where DSFBs have not been formed. In recent years, a number of Fishery Trusts have been established to provide DSFBs with scientific advice. However, there is no equivalent structure for the management of other freshwater fish. There is a growing awareness of the need for a more holistic approach to management, encompassing not only all of the fish but also the freshwater environment in general.'
106. The document Scotland's Freshwater Fish and Fisheries: Securing Their Future, (Scottish Executive 2001), set out a number of proposals developed to address the observations made by stakeholders in response to Protecting and Promoting. . . . This document acknowledged some of the issues associated with widening the powers of DSFBs to take in the management of other fish species, and outlined some possible alternative structures, such as that proposed by the stakeholder group 'Angling for Change'.
107. In 2004, the Scottish Freshwater Fisheries Forum was established to consider what steps are necessary to promote access to salmon and freshwater fisheries resources in Scotland, while ensuring that these fisheries are managed in a sustainable way. The Scottish Executive has chaired the Forum, and the Management Sub Group established to look more deeply into the issues raised.
108. The sub-group analysed the various options put forward for future structures for freshwater fisheries. The options studied in detail were:
- Retention of the status quo
i.e. various combinations of District Salmon Fishery Boards, Fisheries Trusts, Liaison Committees, Angling Associations, etc. interacting in different ways in different localities. Data collection, where it takes place, generally co-ordinated via the Scottish Fisheries Co-ordination centre;
i.e. Establish new catchment-level management bodies which take responsibility for the management of freshwater species, acting in parallel with District Salmon Fishery Boards;
- Unitary Authority structure
i.e. Abolish District Salmon Fishery Boards. Create entirely new catchment-based umbrella bodies to take responsibility for the management of all species and all waters in the relevant catchment;
i.e. Create a public body to assume a fisheries management role in Scotland analogous to that held by the Environment Agency in England and Wales;
i.e. Identify and publicise minimum standards and best practice from current structures. Create incentives (e.g. through conditions for granting protection orders, access to project funding, etc. which encourage/oblige fishery owners seeking public funding or statutory protection to adopt appropriate management structures and practices;
- Expanded Salmon Fishery Boards
i.e. Extend the remit of District Salmon Fishery Boards to encompass the management of all species and all waters in the relevant catchment; and
i.e. Take all fisheries, freshwater and migratory, into direct State control.
109. The work undertaken by the Sub Group has shown that the most favoured structure would be a 'Unitary Authority' model covering both salmonids and coarse fish. The Executive is embarking on further work to supplement the initial good work undertaken by the sub-group and to assist in the development of new management structures.
The work required to develop this approach - particularly taking account of the legislative implications of replacing District Salmon Fishery Boards - will take longer than the timescale available for this Bill.
110. The Executive has recently commissioned independent research to undertake a comprehensive assessment of the options available to achieving the Unitary Management of freshwater fisheries in Scotland. The research will also provide approximate costs for the implementation of funding such a management structure. The resulting report will be published by the Executive in the New Year.
111. The sub-group also agreed that whatever management structure finally emerges from this process, it should be an important guiding policy that any fisheries management body would have to adhere to the overarching principle that socio-economic benefits must be optimised. That is to say access to fishing must be maximised within the parameters of sustainability. Just conserving fish stocks would not be sufficient - increased fishing availability would have to be promoted wherever the fish stock situation allowed. The new Unitary Authorities would have the purpose of increasing fishing without compromising stock sustainability.