Scottish Government

3 Realising The Vision

We will realise the vision by building on existing activities and progressing the new priorities for action

3.1 We would expect to realise the vision set out in Part One of this document by adopting the evolutionary approach identified in Part Two. In order to ensure that such evolution is based upon scientific evidence and broad consensus, much work remains to be done.

3.2 Much of what is already taking place within Scottish freshwater fisheries policy is contributing to the realisation of our shared vision and our understanding of the details of how the evolution should progress. Therefore, the work outlined in Part Three should be seen as:

• existing activities that have been identified as requiring a heightened effort;
• new priorities for action, that do not imply a reduction of effort in other areas of policy activity;
• priorities for action that will change in relative importance over time, as current challenges are effectively tackled, and new challenges emerge; and
• priorities for action that will require constant monitoring and review, so that progress towards realising the vision is obvious to all stakeholders.

3.3 We propose to undertake activities that will assist us to move towards the realisation of the vision in the following broad themes:

• Good Practice in Freshwater Fisheries Management
• National Initiatives in Freshwater Fisheries Management
• Freshwater Fisheries Management Resources
• Encouraging Participation
• Marketing
• Reviews
• Primary Legislation
• Research & Development

The priorities for action programme themes are considered in detail in Part Three, and some details about their organisation and implementation are discussed in Appendix 2.

Good Practice in Freshwater Fisheries Management

3.4 Fish and fisheries management at an appropriate scale and to a consistent standard, will be a central base upon which we will realise our shared vision for the sector. One of the principal aims of the Strategic Framework is to move towards the objective that management decisions affecting freshwater fisheries and fish species should be underpinned by scientific evidence. It is recognised that some issues such as habitat management should be localised, whereas other issues such as considering or mitigating for acid rain or climate change will have both local and national significance.

3.5 This Strategic Framework supports the view that recommendations should be made on how to define the scale of fish and fisheries management planning, both at local level and in the way that management planning regimes might be linked together to form larger units.

3.6 Fisheries management decisions are regularly made for individual water bodies. These involve undertaking certain works or practices that are thought to be required in order to enhance the fishery in the area. Over the years, many techniques have been tried, though not all have been scientifically evaluated. These extend beyond works on fisheries, and reach to habitat and works to increase juvenile production

3.7 The fundamental premise underpinning our shared vision is that future management regimes will only encourage increased exploitation where stock is shown to have capacity for increased exploitation. In order to make such decisions, it is important to know more about stock structure, distribution, abundance and dynamics. There is a need to ensure that we have the proper sampling/monitoring tools in place, and that they are available to the organisations and individuals undertaking the work.

3.8 Non-native fish species have been introduced to a number of Scottish water bodies in the past by various means. This is generally unacceptable if native fauna and biodiversity are to be protected. There are a number of provisions within the primary legislation which seek to address this issue, such as, those contained in the Import of Live Fish (Scotland) Act 1978, the Wildlife and Countryside Act 1981 and the Aquaculture and Fisheries (Scotland) Act 2007. Ongoing action and vigilance is required to prevent further spread of non-native species.

3.9 Still-water fisheries, where fish of interest to anglers are regularly introduced from hatcheries and fish farms, are a vital component of the sector. They provide good angling opportunities in reasonable proximity to population centres, and in many respects they serve to take pressure off wild fish resources.

3.10 Proprietors of such establishments might wish to explore future options for further development of their operations, and whilst such initiatives would be welcomed from an economic and social perspective, they must be managed carefully in terms of fish health and environmental considerations.

3.11 Biosecurity and 'boundary discipline' practices already operate in some fisheries, but we would consider formalising them in a consistent manner and expanding them to all still-water fisheries.

Electro fishing

Sampling freshwater vegetation

3.12 The Guide to Best Practice that is currently being developed by RAFTS/ ASFB will be used, if suitable, as a foundation for a Code of Good Practice for the management and administration of other fisheries management and angling bodies. Consideration will be given as to how the development of these Codes will be managed, accredited and audited, recognising meanwhile that costs must be kept to a reasonable level.

3.13 Existing DSFBs do not have a mandate to consider all-species fish and fisheries management, although Trusts and Foundations do. In some parts of the country, where the Boards and Trusts agree to work together, all-species management is either being practised, or starting to emerge on a pilot scale. We believe this activity should be supported and extended, since it provides valuable guidelines for the future, and at the same time allows an evolutionary approach to what already exists in Scotland. The Tweed Commission does have statutory responsibility for salmon and freshwater fish species.

3.14 Figure 1 (next page) illustrates the proposed work programme for PFA Theme 1, and shows how it is proposed to break it down into a series of interlinked projects. These will all contribute to the objective of the PFA theme, which is to agree on 'good practice in freshwater fisheries management'. Timescales and targets have been identified for each project, and whilst they are ambitious there is a shared view that with sufficient resource, they are achievable. Funding support for fishery management plans is confirmed for a three year period from 2008/09 with Government funds running through RAFTS. Initial two year support (06/07 and 07/08) has allowed trusts to bring together available information and data to inform fishery management plans.

Evening angler on the River Tummel

PRIORITY FOR ACTION

THEME 1 GOOD PRACTICE IN FRESHWATER FISHERIES MANAGEMENT

National Initiatives in Freshwater Fisheries Management

3.15 We will encourage the development of a strategic plan for the further amalgamation of Scotland's statutory salmon fishery districts and the development of fisheries Trusts where there is clear benefit in doing so. There are three main project lines:

• Ongoing work on amalgamation where Boards exist
• Recommendations for approaches to be taken where Boards do not currently exist
• Development of Fisheries Trusts in those areas currently not covered by such organisations

The plan will give due consideration to the geographical and administrative relationship between Trusts and Boards and, where Boards do not exist, to the role of Trusts in such areas.

3.16 The Steering Group has identified gaps in the existing system of management to which stakeholders need to respond if they are to realise the shared vision. In considering how to evolve and develop the current system to address these challenges, we must take account of the following issues:

• Fish and fisheries management bodies are increasingly benefiting from public/private sector partnership initiatives. As fisheries management bodies evolve, they will need to conduct the following tasks: ensure the needs of anglers and proprietors are adequately met and represented; accommodate and discharge the responsibilities that are a requirement of partnership projects; act as regulators (following suitable amendment to legislation); develop their role as custodians of the environment; and use the strengths and resolve the weaknesses that the voluntary system creates. Each of these functions will need to be transparently and efficiently discharged if the management body is to benefit from full stakeholder support.
• As management bodies evolve, they should, wherever possible, utilise the existing professional and voluntary resources that lie within the Board and Trust structures.
• National consistency will be essential, but the different regional challenges to fish and fisheries management around Scotland must be recognised and the flexibility to meet these on a regional basis must be incorporated into any new management bodies.
• There are other regional 'management bodies' or 'stakeholder groups' operating around the country, such as sub-basin Area Advisory Groups (under our Water Framework Directive obligations), ¹³ and Area Management Groups (under the auspices of the Tri-partite Working Group). These groups also have an interest in fish and fisheries management, and their roles must synergise with fisheries management bodies.

3.17 Scotland has a deserved reputation as an excellent place for many types of fishing. The management, promotion and use of our fish and fisheries resources has an increasingly important contribution to make in an international forum with other major freshwater fishing nations. Co-operation and sharing of information at this international level, between countries with similar challenges and opportunities, will be increasingly important. Scotland should play a prominent role in this, whilst recognising that it must put its own modern fisheries management structures firmly in place first.

3.18 The Steering Group recognises the good work being undertaken by initiatives such as the Scottish National Angling Programme ( SNAP) ¹⁴ and various regional projects. The Strategic Framework envisages that one responsibility of future area and national management structures will be to identify how they might support or assist in the further development of similar activities, and to identify their own specific targets as part of their management development plan.

3.19 There should be, in the long term, a consideration of the value of developing a 'national angling and freshwater fisheries management centre', as a resource that might foster public understanding of the sector, and also serve as an educational and promotional tool. A more immediate option for enhancing access to information about angling and freshwater fisheries management is to consider a single 'web portal', linking into all other existing and new information sources.

3.20 Mixed-stock salmon fishing impacts on management, in that by definition it takes fish from a number of different river stocks. Whereas anglers can practise 'catch and release' in order to preserve vulnerable stocks or stock components, net fisheries are carried out with the purpose of harvesting fish. On some occasions, where salmon have been taken in fixed engines and thus remain free swimming until removed, netsmen released fish as a conservation measure. However, those netsmen who are members of the Salmon Net Fishing Association of Scotland have preferred to delay the start of their season to allow the agreed most vulnerable stock component free access to freshwater. It is acknowledged that netsmen's rights to catch fish are just as much enshrined in heritable title as those of anglers. We intend to set up a committee to look at all aspects of mixed stock exploitation, especially its impact on good management as well as on stocks. It will develop a strategy to conserve vulnerable stocks of a species listed within an Annex of the European Habitats Directive, and to meet our other international obligations, such as to NASCO. We would also propose to study all the existing and emerging science that is pertinent to this subject, and develop recommendations which could be fed into policy development for Scotland.

Salmon harvest

3.21 The interaction between aquaculture and the salmonid freshwater fisheries sector is seen as critically important by many groups, and Scotland leads the world in addressing this interaction by way of the Tri-Partite Working Group ( TWG), set up by the Scottish Government. Other new controls on this interaction have recently come into being as a result of the provisions of the Aquaculture and Fisheries (Scotland) Act 2007. We propose to retain and enhance the involvement of the Steering Group of the Freshwater Fisheries Forum in the TWG process, by ensuring ongoing direct representation on the TWG Plenary Group.

3.22 In recent years, a number of organisations have become involved in developing industry-specific training tailored to the requirements of employers and employees. Appendix 5 provides further information concerning all the current activities.

3.23 Training is fundamental to the successful evolution of Scottish freshwater fish and fisheries management, since it will provide a sufficient body of competent people to work together towards the realisation of our shared vision. These training imperatives, to be certificated by the Scottish Qualifications Authority ¹⁵ where possible, cut across several facets of the activities within the sector, including:

• fisheries management training at SVQ Levels 2 & 3, available as distance learning or as partial residential courses at colleges such as Barony ¹⁶ and Inverness;
• bailiff training to SVQ standards, developed by the Institute of Fisheries Management and ASFB;
• fisheries proprietors and owners, for whom some additional and enhanced awareness of fisheries management issues might prove helpful;
• business, personnel and general management training, for those employed professionally within the evolving freshwater fisheries management structures;
• ghillies and guides, who are in many ways the 'shop window' for fishing in Scotland;
• instructors and coaches, who ensure that rewarding and fulfilling technical proficiency is developed amongst those participating in the recreation and sport of angling;
• other service providers associated with the sector, such as hoteliers and restaurateurs, whose potential to enhance the Scottish angling experience should not be underestimated; and
• volunteers, whose targeted and well-informed and managed efforts should add to the success of future freshwater fish and fisheries management in Scotland.

3.24 Figure 2 (next page) illustrates the proposed work programme for PFA Theme 2.

European eel / Salmon parr

PRIORITY FOR ACTION

THEME 2 NATIONAL INITIATIVES IN FRESHWATER FISHERIES MANAGEMENT

Freshwater Fisheries Management Resources

3.25 Currently, most freshwater fisheries management expenditure results from money raised through DSFBs which is generated by the salmon economy. Most of this funding (approximately £3.5 million per annum) is spent on work that is increasingly focused on river and habitat management. This will often be of benefit to other fish species and the wider environment, but the work of the Boards is inevitably and constitutionally salmon-focused. Boards also give considerable financial support to Fisheries Trusts which have all-species, environmental and general fisheries management objectives. As charities, RAFTS and the individual Fisheries Trusts have the ability and further potential to raise significant extra resources from donations, charitable and grant-making sources. These sources of funding to the Trusts are particularly critical to those areas of Scotland which do not have DSFBs in place. The DSFB funding for salmon-related management must be protected, and should not be required to cross-subsidise management of other species any more than it is currently doing. Therefore, if we are to manage other fisheries and fish stocks and develop the sort of ideas being generated in this Strategic Framework, it will be essential to develop our thinking about how this might be funded.

3.26 However, as a precursor to such considerations, it will be important to ascertain what the resource needs will be for future freshwater fisheries management. This will only become clearer once some of the other PFA theme work being considered in this Strategic Framework has produced outcomes. We should also recognise that a great deal of activity, much of it involving voluntary effort, currently takes place in freshwater fisheries management, and it is important to try to assess that effort.

3.27 Figure 3 below illustrates the proposed work programme for PFA Theme 3.

PRIORITY FOR ACTION

THEME 3 FRESHWATER FISHERIES MANAGEMENT RESOURCES

Encouraging Participation

3.28 There are a number of specific activities around that provide resources on freshwater fisheries and the freshwater environment to schools. 'Fish in the classroom' ¹⁷ is one good example. The limited and regional nature of this sort of educational activity could be extended to include more comprehensive geographical coverage. However, we should recognise that many of these regional activities are very successful, and we should ensure that any expansion of this work nationally does not interfere with what already occurs. We should also recognise that educating adults about freshwater fisheries and the freshwater environment is equally important, and we should explore opportunities to encourage this.

3.29 Coaching is essential in any competitive sporting activity, and also serves to instil confidence in all participants, whether they are interested in competition or not. There is already significant coaching activity in Scottish angling, and the Sports Governing Bodies and other organisations are very much involved. The SNAP initiative has been successful in making a start on regional clusters of excellence.

3.30 Freshwater fisheries can provide an easily-accessible, safe and enjoyable experience for older people, women, young people, and the mentally and physically disabled. However, these user groups may require specific facilities to ensure this and information on how to make freshwater fisheries more accessible to such groups will need to be promoted. More widely, there is a perception that participation in angling is a rewarding and positive activity for all parts of society. Enhanced effort to encourage participation is a worthwhile undertaking.

3.31 Figure 4 opposite illustrates the proposed work programme for PFA Theme 4.

Harling

PRIORITY FOR ACTION

THEME 4 ENCOURAGING PARTICIPATION

Marketing

3.32 Scotland offers an exceptional range of fishing opportunities to suit all types of angler and all budgets. Subject to the implementation of practical management policies, we believe that there is a considerable opportunity to develop sustainable angling tourism in Scotland in regional, national and international markets.

3.33 We must, at the same time, recognise that existing anglers in Scotland should also benefit from the overall evolution of freshwater fisheries management. Resources will be required, and existing anglers may be required to accept that costs of angling will increase. However, there is currently underused capacity that will ensure that sufficient access opportunities remain.

3.34 Figure 5 below illustrates the proposed work programme for PFA Theme 5.

PRIORITY FOR ACTION

THEME 5 MARKETING

Reviews

3.35 The Scottish Government statistical bulletin reports salmon and sea-trout catches each year for the previous year. ¹⁸ The time-series is over 50 years in length, which is one of the longest formal national catch records for migratory salmonids in existence. We will explore options for enhancing the presentation of the bulletin as an aid to improving the understanding and knowledge of the public in trends and current status of stocks.

3.36 Protection orders (see Appendix 4.7) are important in terms of providing a mechanism to help promote increased access to angling and to seek to resolve conflicts between different angling opportunities. They have not been created for all freshwater systems in Scotland. Indeed, there are only 14 such Orders in force, and there is no legal obligation for individual proprietors to become part of a local Order where one does exist. There is some concern that Protection orders have not increased angling access in all cases.

3.37 It is possible that as new fisheries management structures evolve, and as new legislation is considered, individual Protection orders might also be transformed into some other mechanism. However, during the transition to any new regime, it is important to continue to oversee the effectiveness of the Protection order system, and to take guidance for the future from our appraisal of the existing mechanism.

3.38 It is important to evaluate how far this Strategic Framework's aims and objectives are being achieved on an ongoing basis, and this will be done by examining each priority for action and gathering the necessary evidence to see what has been achieved.

3.39 In the future, the economic study entitled The economic impact of game and coarse angling in Scotland may be refreshed. If the aims and objectives in this Strategic Framework are met, then it is anticipated that the industry will play an increasingly important role in creating output and jobs in the economy. However, the first priority will be to evaluate if the Strategic Framework is achieving its aims.

3.40 It is also believed that there may be an opportunity to gain more frequent indicators of angler numbers from databases that are currently compiled and maintained by other agencies.

3.41 Figure 6 overleaf illustrates the proposed work programme for PFA Theme 6.

Roach

PRIORITY FOR ACTION

THEME 6 REVIEWS

Salmon parr

Primary Legislation

3.42 There will be a requirement to consider regulation arising from the provisions within the Aquaculture & Fisheries (Scotland) Act 2007. An example would be the details of implementation of Section 35 movement controls for freshwater fish.

3.43 Scotland must consider provisions arising from the implementation of European legislation, for example the Fish Health Directive 2006/88. ¹⁹ Specifically it will be important to consider: health surveillance; registration of commercially-stocked fisheries; authorisation of hatcheries. Consideration also needs to be given to the provisions of the Water Framework Directive to ensure that stocking does not result in deterioration of status of waters.

3.44 The evolution towards new freshwater fish and fisheries management structures in Scotland will in due course require some fundamental changes in primary legislation, for example: powers and duties; property; employment; revocations; and financial obligations. The introduction of a new Freshwater Fisheries Bill will be necessary in due course if new, statutory management bodies are to be established.

3.45 Figure 7 below illustrates the proposed work programme for PFA Theme 7.

PRIORITY FOR ACTION

THEME 7 PRIMARY LEGISLATION

Freshwater pearl mussel

Research & Development

3.46 Whilst some elements of the Priority for Action topics discussed above necessitate study that could be described as research, we have chosen to identify more conventional 'research' topics under their own heading within the Strategic Framework. Freshwater fish and fisheries are biological systems, and the health of fish populations and high environmental or ecological status of our freshwaters are of overriding importance to Scotland. If we cannot maintain the generally high standards of freshwater ecosystems currently found within Scotland, then our vision for sustainably-managed fisheries will be threatened. Research should take place across the full spectrum relating to our need to ensure sustainability, i.e. it should include social, economic and environmental issues. In addition, research programmes should be, at least in part, informed and directed by, management objectives and management-based priorities. It is essential that research undertaken helps us to both better understand and better manage our fish and fisheries.

3.47 Some of the key concerns identified by the Steering Group whilst developing this Strategic Framework include:

• For salmon and sea trout, there is a widespread view that what happens to the fish during their stay in the marine environment is not always scientifically understood. Changes in the marine environment in recent years may be having an adverse effect on all diadromous fish species (including, for example, salmon and eels). If this is the case, then there are implications for the sustainability of both netting and angling. Of Scotland's 26 native fish species which occur in fresh water, 17 rely on the marine environment for a significant part of their lives or occur there as subspecies/races. Especially important are transitional waters (estuaries and brackish waters) through which many fish have to pass to gain access to fresh water.
• Climate change has the potential to affect freshwater fish and fisheries in a number of ways, ranging from changes in availability and/or seasonality of prey organisms to changes in the way that different species of fish are likely to thrive in bodies of water in Scotland and in the marine environment. Altering climate change is outwith the scope of this Strategic Framework, but the threats or opportunities that might arise from it need to be well understood by fisheries biologists and managers.

Salmon eggs

• Predation on fish, particularly by some species of birds and both grey and common seals, is a major concern for many anglers and netsmen in Scotland. The assertion is that birds such as cormorants and sawbill ducks, protected under the provisions of the Birds Directive, have increased in number significantly over recent years, and are responsible for preying on key fish species to the level that fish populations have suffered to the extent that fisheries are compromised. This is a complex area, and whilst there is a significant literature base available, it does not seem sufficiently accessible to prevent passionate and often public debate. The legal obligations of the Competent Authority are clear, and any major changes in the current licensing regime for predator control in Scotland are unlikely to take place without a Europe-wide reassessment of the situation.
• The recreation of angling is excluded from all legislative provisions concerning general animal welfare, not just nationally but also internationally.

3.48 A consideration of relevant research topics is included in Appendix 3. Figure 8 below illustrates the proposed work programme within this theme.

PRIORITY FOR ACTION

THEME 8 RESEARCH AND DEVELOPMENT