Scottish Government

2 The Context

Blackmount Rannoch

Scotland has over 50,000 km of rivers and more than 31,000 lochs, lochans and ponds of 1 ha or greater in area, and almost all of these waters support populations of fish.

Background

2.1 Scotland has over 50,000 km of rivers and more than 31,000 lochs, lochans and ponds of 1 ha or greater in area, and almost all of these waters support populations of fish. Most of the water is of very high quality but the freshwater environment and the fauna it supports can be affected by a number of factors, many of them associated with human activities.

2.2 Atlantic salmon is widely regarded as Scotland's most iconic freshwater fish species. Fishing for salmon and its close relative sea trout takes place in almost every Scottish river. Angling for brown trout in both wild and stocked fisheries is widespread, fishing for rainbow trout is undertaken at stocked fisheries distributed throughout the country, and grayling is a popular angling species in many areas. Coarse fishing, which may be the fastest-growing sector, is practised largely in the Central Belt and South-West, although fishing effort is increasing in the Highlands and North-East.

2.3 Coarse and game angling in Scotland results in the Scottish economy producing (after displacement) over £100 million worth of annual output, which supports around 2,800 jobs and generates nearly £50 million in wages and self employment into Scottish households, many of which are in rural areas. The average annual number of angler days in Scotland is estimated to be almost 1.4 million. ⁵

2.4 Scotland is divided into a total of 54 salmon fishery districts which are defined in law. Of these districts, 42 have District Salmon Fishery Boards ( DSFBs) in place to protect and improve salmon and sea trout fisheries in their districts. ⁶ In many areas of Scotland, Fisheries or Rivers Trusts also exist. ⁷ Trusts have charitable status and are able to undertake a wide range of monitoring, fisheries management, water environment and biodiversity-related activities. They can also raise funds from a variety of sources, and increasingly undertake work on salmonid and non-salmonid fish species. Many Trusts and Boards have participated, through the Scottish Fisheries Co-ordination Centre ( SFCC), ⁸ in producing and using agreed standard methods for surveying, monitoring and storing information on the rivers and fish populations in their areas.

2.5 The Scotland Act 1998 makes special provision for the management of salmon and freshwater fisheries in the Border Rivers, the Esk and the Tweed. Historically, fisheries management in the Esk has been subject to English Law and in the Tweed subject to Scots Law. The Scotland Act 1998 (River Tweed) Order 2006 consolidated, codified and clarified the law relating to salmon and freshwater fisheries in the Tweed District. Since 1969, the Tweed Commission has had statutory responsibility for the protection and management of salmon and all freshwater fish species, and as such it serves as one potentially useful model for future fisheries management structures. The unique nature of the Border Rivers also raises legitimate questions as to whether they would or could become involved in whatever future management systems this Strategic Framework ultimately recommends for the rest of Scotland.

2.6 Traditionally fishery management has largely been in the hands of the owners or tenants of the fishing rights. Environmental imperatives agreed under EU legislation are increasingly important drivers in the management of water bodies throughout Scotland. Accordingly, the Scottish Freshwater Fisheries Forum has recognised that the future sustainable development of fisheries requires an integrated approach to management.

2.7 The salmon netting industry in Scotland has declined in size and effort significantly in recent years, which has helped to reduce exploitation levels on declining fish stocks. Netting effort in both the net and coble and fixed engine fisheries is now less than 10% of the level reported when records were first collected in 1952, but still account for 30% of the Scottish catch. The heritable title is still exercised at some 80 recreational and commercial netting stations and the fishermen make a positive contribution to river management and to the local economy, frequently in the more remote rural areas. Netting stations are now the only legal source of commercially-available Scottish wild salmon, the majority of which is exported.

2.8 The Steering Group recognises the polarised views with regards to mixed stock salmon fishing. It is aware of the advice of ICES that mixed stock fisheries pose particular difficulties for management as they cannot target stocks that are at full reproductive capacity. It recognises the importance of further discussion and the need to reach conclusions on all aspects of exploitation. (See Part 3 below.)

Netting in Montrose Bay

Policy developments and other initiatives

2.9 The overarching aim of the Scottish Government with respect to salmon and freshwater fisheries is to create the environment in which sustainable fisheries for these resources can be enjoyed. ⁹ Policy development aims to: support a sustainable and vibrant freshwater fisheries sector; work with anglers and local communities to create a national freshwater fisheries policy that seeks to protect biodiversity and our environment as well as enhancing the economic benefit for our rural economy that results from angling; take forward the work of the Freshwater Fisheries Forum with a view to modernising the sector's management structures; and support the view that our rivers should be managed on a catchment area basis that includes all freshwater fish stocks and populations.

2.10 To this end, the Scottish Government, in association with Fisheries Research Services ( FRS), ¹⁰ works with the major stakeholder groups in Scotland representing the owners of fishing rights and those who utilise them. FRS, often in collaboration with local Fisheries Trusts and Foundations and other organisations, undertakes research and monitoring to provide the high-quality scientific information necessary to develop evidence-based policy.

2.11 Increasingly, the Scottish Government involves stakeholders directly in policy development. The Scottish Freshwater Fisheries Forum involves all the principal stakeholder groups as well as private individuals. A Steering Group serves the Forum and meets regularly to take forward the issues identified as necessary to maintain and improve Scotland's salmon and freshwater fisheries. Many of these issues have been addressed in the Aquaculture and Fisheries (Scotland) Act 2007.

2.12 The Forum and Steering Group then turned their attention to developing proposals for the integrated management of salmon and freshwater fisheries in Scotland. Stakeholders have recognised the need to develop and implement plans that accommodate the needs of not only fisheries, but also the fish upon which the fisheries depend.

2.13 The Tripartite Working Group ( TWG), ¹¹ comprising representatives of wild salmon fishery interests, the fish farming industry and the Scottish Government has been working towards ensuring both a healthy and sustainable wild fishery and salmon farming industry. The TWG has developed a system of Area Management Agreements ( AMA) implemented by Area Management Groups ( AMG) to address issues such as sea lice monitoring, management and control, containment of farmed fish, and minimisation of disease risks.

2.14 Scotland is represented as part of the UK team within the EU delegation to the North Atlantic Salmon Conservation Organisation ( NASCO), ¹² whose Council and Commissions meet annually to address issues relating to the conservation and rational management of salmon throughout their natural range, and specifically to set regulatory measures for the fisheries at West Greenland and the Faroe Islands. NASCO has been instrumental in reducing the fishing mortality of salmon at sea. NASCO has called for each jurisdiction to develop an Implementation Plan that will address the Organisation's overall objective of ensuring the conservation, restoration, enhancement and rational management of salmon stocks, and will be focused around the three main agreements developed at NASCO relating to fishery management, protection and restoration of habitat, and aquaculture and associated activities.

2.15 Conservation of fish stocks is seen as essential, and many sectors of angling have voluntarily adopted 'catch and release' practices. In some specific, local cases catch and release in salmon angling has been made mandatory by the introduction of Salmon Conservation Regulations. Coarse angling has been following the catch and release principle for many years, but it has now also become the predominant approach in salmon angling. Not all are in favour of the system, and therefore the voluntary adoption of catch and release remains generally appropriate. Nevertheless, it is on the increase in Scotland. Salmon netsmen have reduced exploitation levels particularly on the most vulnerable stock components, by delaying the start of their fishing season and reducing the number of nets fishing at most stations.

2.16 Those engaged in fishing activities are not the only users of water in Scotland. Good supplies of water are required for, amongst other things, potable supplies, hydro-electricity, agriculture, aquaculture, forestry, industry, and whisky production. In addition, our rivers and lochs are used by people engaged in a variety of non-fishing leisure pursuits. Sailing, motorised boat activity, windsurfing, canoeing, rafting and canyoning are all increasing in popularity.

Catch and release, River Dee

Canoeing

The issues

2.17 In the preparation of this document, the issues confronting freshwater fisheries which the Steering Group addressed were considered under the same broad headings as the guiding principles in Part One. The inter-relationships between the different parts of the sector were carefully considered, and the sector's relationships with external stakeholders were also debated. Freshwater fisheries involve economic activity, providing much-needed income to groups and individuals across Scotland. At the same time, they provide sporting and recreational fulfilment to a diverse range of people, from local residents to visitors. They rely on a healthy and well-managed aquatic environment, and this leads to the need to address all aspects of aquatic ecosystems in order to ensure sustainability.

Environmental issues

2.18 Scottish landscapes, wildlife and freshwater fisheries are internationally renowned and of high quality. They underpin a certain quality of life and are a cornerstone of the Scottish rural economy. Scotland supports a valuable array of freshwater fish species and fisheries, and fisheries managers have an important role to play as custodians of the environment.

2.19 Fish need clean waters and healthy habitats to thrive. In order to maintain and improve the quality of our freshwater environment, a number of issues need to be considered, including:

• Sectors that interact with the aquatic environment:
• Angling
• Netting
• Fisheries management
• Forestry
• Agriculture
• Aquaculture
• Hydro power
• Industry
• Recreation
• Engineering schemes
• Flood alleviation
• Water supply
• Types of effects on the aquatic environment:
• Acidification
• Addition or loss of nutrients
• Pollution
• Water transfer
• Abstraction & impoundment
• Fish introductions - of any kind, but including non-local strains
• Introduction of non-native species
• Predation

2.20 These issues can interact in different ways in various parts of Scotland to affect fish populations. Freshwater fisheries must be managed by using the best available information, and be sustainable for the species of fish concerned. Such management avoids over-exploitation, the inappropriate introduction of non-native species or strains, the spread of disease and parasites, and damage to the genetic integrity of wild stocks. Maintenance and restoration of biodiversity is an essential objective of management. We need to acknowledge that biodiversity and conservation objectives must be considered before implementing specific fisheries management activities. Many of the issues under water quality, physical habitats and other users are being addressed through the implementation of the Water Framework Directive ( WFD), through regulation and incentive. One of the key actions under WFD is the production of River Basin Management Plans ( RBMPs) and fisheries managers will contribute both to their production and delivery.

2.21 Gyrodactylosis is a notifiable disease caused by the parasite Gyrodactylus �alaries ( GS), which, if introduced into Scottish salmon rivers, has the potential to cause widespread losses in the valuable stocks of wild Atlantic salmon. In addition, if the decision to use chemical treatment has to be made, consideration will have to be given to the possible impacts on other aquatic wildlife and activities that rely on fresh water. The Scottish Government and a wide group of stakeholders have developed a Contingency Plan against the possibility of GS being introduced to Scotland. This Strategic Framework fully supports the ongoing activities of the GS Task Force.

Economic issues

2.22 Scottish freshwater fisheries is an important sector of the economy, delivering angling and other exploitation opportunities that are of the highest quality. We believe that there is sufficient physical, environmental and fisheries resource capacity in Scotland to enable the sector to grow at a controlled rate whilst remaining sustainable. Economic growth/development in the sector would provide the benefits of:

• increasing and sustaining employment, especially permanent and skilled employment, in all relevant areas and particularly in rural areas;
• increasing the capital value of Scottish freshwater fisheries resources to enable greater investment in sustainable fish and fisheries management;
• increasing and diversifying domestic and visitor demand in Scotland, and the benefits of higher revenue to angling-related businesses, by encouraging more angling tourism especially in areas where there is at present a lack of information and marketing of opportunities;
• increasing the utilisation of existing resources and opportunities, within their capacity for exploitation;
• increasing the development of new locations and opportunities for sustainable angling for specific species sectors; and
• increasing angling opportunities for existing enterprises by extending diversification of species whilst protecting environmental and native biodiversity.

Greenspace

2.23 These aspirations, which must be achieved within the parameters of this Strategic Framework document, will enable Scotland to optimise the benefits of a successful freshwater fisheries sector. This must include the appropriate management of angling and non-angling exploitation of migratory fish.

2.24 The growth envisaged will be contingent on the sector's ability to demonstrate that it is responsive to the needs of all fishermen. It should operate in a fair and transparent manner, basing its management decisions upon current scientific understanding, and an awareness of environmental and sustainability considerations. This approach will engender public support for the sector, and its aspirations for the future will therefore be supported by the entire community.

2.25 It is essential that the management of freshwater fisheries is well-resourced. To be increasingly successful, the sector will require:

• a fisheries management planning regime that fosters sustainable, long-term development;
• government support for fisheries management to deliver public benefits, particularly in fish stock recovery and areas that are disadvantaged in terms of income generation; and
• new sources of funding for management of the sector.

Autumn on the river

Social issues

2.26 Freshwater fisheries represent an important social resource for Scotland's people that should be developed and promoted further, within the discipline of ensuring sustainability of the fish stocks.

• Fishing as a recreational activity can contribute to the Scottish Government's ambitions to improve the health and wellbeing of the nation.
• Fishing as a recreational activity can help educate and raise awareness of rural and environmental issues, and reconnect people with the countryside.
• Education about the importance of freshwater fish and fisheries to Scotland's rich cultural and natural heritage should be further promoted, particularly the need to sometimes limit exploitation.
• Training in fishing, fish and fisheries management, and in the conduct of and infrastructure relating to the sport, needs to be further developed.
• Voluntary effort is a major feature of the sector, and this effort must be encouraged and developed.
• Delivery of access to fishing is essential to realise the above benefits.
• A key part of delivery of access is ensuring there is comprehensive information about angling opportunities.
• There is a perception that access to fishing is limited in some places. This perception must be tested and where failures of access are identified, solutions need to be found whilst ensuring that stocks are not over-exploited.
• There is concern that too few people, especially the young, are coming into angling. Positive action to address recruitment is required.
• Angling can provide personal development opportunities for disadvantaged groups in society. Positive action to promote such programmes should be taken.
• Development of angling as a traditional rural affordable recreational activity should be promoted, thus enhancing the culture of Scottish country communities.
• Other outdoor leisure activities share freshwater resources with anglers and netsmen. Interactions between these user groups must be managed.

Young biologists

Stewardship issues

2.27 Freshwater fisheries are already managed and regulated under the various legislative and other policy provisions described in this section. The Steering Group, in considering the shared vision of the sector, identified that current fisheries management structures need to evolve and respond to the new challenges of managing Scotland's freshwater fisheries resources in a sustainable way. Particular emphasis will be required on: catchment-based management of all freshwater fish species; the development of sustainable funding streams and appropriate legislation to ensure this work can be done effectively; and the evolution, co-ordination and streamlining of existing bodies into structures that can discharge these responsibilities effectively. As ideas are developed to address these challenges, the following issues will need to be considered:

• the best means to develop existing management structures, staff and funding streams;
• the best means to incorporate the voluntary goodwill and effort engaged within the sector;
• a consistent approach to ensuring that appropriate skills and experience are available to ensure that fisheries management bodies are managed effectively and their business is conducted in an open and transparent manner;
• a consistent approach to professionally staffing such structures, with due regard to regional differences and challenges;
• how to support and encourage the continuing programme of rationalisation of existing fisheries management boards so that they occupy areas that are large enough to have a critical mass but small enough to be locally accountable and responsive to local needs;
• how to develop new funding streams to support future fish and fisheries management initiatives that augment existing funding sources;
• the development of a capability at a national level to help ensure consistency of approach to management, to help co-ordinate the work of fisheries management bodies (both technical and management), and to disburse public sector funding, where it might become available, in an accountable and effective way; and
• the changes that might be required in legislation, and the need for a new freshwater fisheries Bill in due course.

The Steering Group recognises that further work is required in many areas before firm recommendations for all-species fisheries management can be made. Work areas are discussed in more detail in Part Three of the Strategic Framework, and specific Priorities for Action identified.

Risk

2.28 The Strategic Framework acknowledges that risk, and its assessment and management, cannot be overlooked when considering our shared vision. Risk to freshwater fish and fisheries might come from a number of sources.

Acceptance of risk implies a need to adopt a Precautionary Approach, which requires:

• consideration of the needs of future generations and avoidance of changes that are not potentially reversible;
• prior identification of undesirable outcomes and of measures that will avoid them or correct them;
• initiation of corrective measures without delay, and these should achieve their purpose promptly;
• priority to be given to conserving the productive capacity of the resource where the likely impact of resource use is uncertain; and
• appropriate placement of the burden of proof by adhering to the above requirements.

Angling on the Don