A Consensus Statement on the need for a freshwater fish policy review in Scotland

April 1999

Urgent action is required to address the inadequacies of current policies for one of Scotland's most precious natural resources - freshwater fish.

This statement is signed by a broad range of groups and creates a powerful case for change to improve fish conservation and management in Scotland. 

Introduction

The purpose of this statement is to demonstrate the strong consensus in favour of developing policies for the conservation, sound management and sustainable exploitation of freshwater fish (both migratory and resident) in Scotland. The range of organisations (proprietors, anglers, government agencies, and conservation groups) which have endorsed this statement indicates the extent of support for this common objective. This statement recognises the importance of existing management structures and seeks to build on, not replace, existing structures, policies and legislation. Furthermore, it recognises the particular importance of salmon and sea trout fisheries to the rural economy, as well as the contributions made by proprietors and fisheries management organisations to their management.

Rationale

Scotland's freshwater fish are a highly valuable resource of importance in economic, recreational, educational, and ecological terms. Despite this, they are under-valued and under threat. Freshwater fish, their fisheries and their management in Scotland have been the subject of increasing debate in recent decades and twice the Government has set up prominent committees to review the situation with regard to Salmon and, to a lesser extent, Trout. Unfortunately, neither the Hunter Report (1965) nor the Nickson Report (1997) recommendations have been significantly implemented. There is an increasing need to review the present management and legislation relating to these and other species of fish in fresh water in Scotland. In recent years, one fish species has become extinct, many populations of others have disappeared and stocks of valuable economic species have declined. Several alien aggressive species of fish have been introduced and are now spreading through Scotland. European Directives, government rural development policies, biodiversity action plans, and the advent of a Scottish Parliament create the opportunities for a new approach to freshwater and fisheries management.

The case for change

To demonstrate the case for change, a selection of relevant issues are discussed in more detail:

Species conservation

Introduction of alien species:

North American Signal Crayfish. This large and aggressive crayfish is now established in two rivers in southern Scotland. It feeds largely on other invertebrates and small fish and can cause severe damage to stream ecosystems. Significantly, no fish of any kind were found in a recent survey of one of the Scottish streams in which it occurs. This crayfish was brought in to ten areas for potential farming, apparently without being overseen by the government. Urgent action is required to prevent its spread and at a local level to eliminate it. At present, there is no responsible party to do this.

North American Arctic Charr. The introduction of alien stocks from Canada, (at least two stocks have been imported so far with quarantine licences), rather than the careful development of the native Arctic Charr resource, threatens the pristine status of Arctic Charr in Scotland. Scotland is one of the strongholds of this species in Europe and has about 200 native populations which have been isolated from each other since the last Ice Age, some 10,000 years ago. No legislation exists to prevent the importation of alien stocks of native species.

UK Biodiversity Action Plans

Freshwater fish are among the highest priorities for action under the UK Biodiversity Action Plan. The reintroduction of the Vendace, which took place in 1997 and 1998, is one of the Government's commitments to that plan. However, if these introductions prove successful, there is no fisheries management structure or policy in place to ensure the Vendace does not meet the same fate it did in the 1970s, when it became extinct due to eutrophication and other pressures.

Rural Development

The Government's rural development policies have given limited recognition to the immense value of freshwater fish to rural economies. Rod angling is estimated to be worth some £400 million to the Scottish economy. Yet this does not fully take account of the growing value of Brown Trout fishing, particularly in the most rural parts of the country where other economic opportunities are scarce. Nor does it value existing Rainbow Trout fisheries, or the potential to develop other fisheries, such as the growing national interest in coarse angling.

EU Water Framework Directive

This forthcoming directive offers opportunities to protect the physiochemical and hydro morphological conditions on which fish populations depend. Its principal objective is to protect aquatic ecosystems and to promote the sustainable use of water resources. The main implications for Scotland

will be the introduction of River Basin District Management Plans, with optional catchment level planning, a programme of measures to achieve good ecological status of surface and ground waters, and a system of data collection and monitoring. At present, monitoring of Scotland's freshwater fish populations, as well as aspects of freshwater fish policy and regulation are inadequate to meet the anticipated requirements of the Directive.

Data Collection

There are many examples where, if local information on alien species or disease had been communicated to a central location, it could have led to increased awareness and possible management action. Three decades ago, the rapid spread of disease in Perch went virtually unrecorded. Many of Scotland's most important Perch populations, with considerable economic potential today, have never recovered. More recently, the explosion of introduced Ruffe in Loch Lomond, which are now being transferred to other parts of Scotland, would not have been reported had it not been for local biologists. There is no legislation to control the movement of fish species other than Salmon and Sea Trout from one catchment to another and no national action is being taken to share data and information in order to prevent further introductions.

Funding

The obvious success of Fishery Trusts working in tandem with the District Fishery Boards relies on a partnership between two systems. The former employ biologists to give a sound base to any fishery management and have been successful in raising funds. The latter are funded by raising assessments on proprietors and carry out statutory powers and duties. Some of the larger Boards employ their own biologists. Both groups require further support - both financial and legislative -in order to fulfil their present roles as stewards of the sustainable management of salmonids, and in particular if they are expected to broaden out their work to include other species of fish and monitoring and management of the aquatic habitat in general.

These examples demonstrate the need for change in Scotland's freshwater fish policy. The basic principles would be:

Any new scheme should cover all of Scotland.

Comment: the present piecemeal approach leads to problems ranging from declining stocks, increase in disease and parasites, to the spread of alien fish species; and at times to no management at all.

All species of freshwater fish in Scotland should be covered by any new scheme.

Comment: Special attention should be given to native species, especially those of economic importance. In the case of migratory species, coordination of high seas management, particularly in domestic waters is of concern. There is some debate over the definition of native species of freshwater fish. Any new policy should seek to define the terms native', 'naturalised' and 'alien'. In any case, all species, native or alien, of economic or cultural value, rare or common, require management.

Any new scheme must take account of all types of fishing.

Comment: There is a range of fish species and anglers' interests in Scotland. In some catchments, game fishing for Salmon and Sea Trout will dominate, while in other areas angling for Brown Trout or coarse fish will have importance. The interests of private and commercial stillwater fisheries must also be respected.

Management should be local and vested in catchment-based fishery boards and their associated trusts.

Comment: This builds upon the present movement towards these already taking place through the formation of successful, science-based Fishery Trusts and foundations and the discussion about amalgamation of smaller Boards.

There is a requirement for an appropriate form of central support for local management, research, and data collection.

Comment: Local expertise and policies based on local conditions should be the dominating factors and any central focus should serve and not direct the Fishery Boards and Trusts. Central support is required for national aspects of management, such as the provision of national statistics and other data, advice on legislation, assistance with monitoring, dissemination and encouragement of best practice, conflict resolution, and provision of financial support.

The collation of data and the coordination and collaboration of research and management are essential to identify and assess the status fish populations nationally and regionally.

Comment: Coordinated monitoring, making use of existing data coordinating facilities such as the Scottish Fisheries Coordination Centre (SFCC), needs to be given a higher priority. Support for such initiatives will help identify national trends or regional variations.

Comment: The legitimate rights and aspirations of both owners and anglers are not properly met at the moment, the transfer of alien fish into Scotland and across catchments continues unabated, and the public interest in the stewardship of freshwater fish is not secured.

Comment: Existing fishery owners and organisations cannot be expected to expand their interests and activities to cover other species and habitats without significant additional funding. For example, the protection of rare native fish, and contributions to meeting government obligations in terms of monitoring and data collection are in the public interest and should be recognised as such.

The development and implementation of new policies to protect freshwater fish should involve all stakeholders in the resource.

Conclusion

There is a strong consensus among a range of fishery interests in favour of a Scotland-wide policy, with adequate powers and resources, for all freshwater fish. These interests have come together in this way because of their strong belief in the urgent need for action and a recognition that the status quo is not serving either their own interests or this valuable resource. Nor does the current situation satisfy the people of Scotland, on whose behalf this precious resource is managed.

This consensus statement is intended to change this situation and raise the profile of fisheries, fish conservation and management in Scotland, as well as to serve as a basis from which any new policies could develop.

Who is calling for a change to freshwater fish policy?

The following organisations with an interest in freshwater fish and fisheries support this statement. These organisations are highly organised, professional bodies that are prepared to help develop, maintain and support the appropriate national framework, legislation and policies for freshwater fish protection and conservation.

Association of Scottish District Salmon Fishery Boards a national organisation whose membership is drawn from District Salmon Fishery Boards and the River Tweed Commissioners. The objectives are to promote, safeguard and protect the interests of the salmon fisheries in Scotland.

Association of Scottish Stillwater Fisheries the trade association for all commercial trout fisheries at all levels in Scotland. Its role is to promote member fisheries at all levels throughout the UK and beyond and to raise the professional standards of trout fisheries in Scotland.

Association of West Coast Fisheries Trusts a liaison organisation for seven West Coast Fisheries Trusts whose principal objectives are to conserve and enhance West Coast rivers and lochs and their fisheries.

Atlantic Salmon Trust an organisation to encourage and give practical assistance to the conservation of Atlantic Salmon and Sea Trout.

The Grayling Society, an international society promoting awareness, conservation and fishing for Grayling.

Institute of Fisheries Management (Scottish Branch) an organisation for persons sharing a common interest in the modern management of recreational and commercial fisheries, dedicated to the advancement of fisheries management in all forms.

Salmon and Trout Association an organisation representing the interests of game anglers, the species for which they fish and the environment in which those species are found

 Scottish Anglers National Association is the governing body for game angling in Scotland. It seeks protection and enhancement of the aquatic environment to ensure the future sustainability of fish populations and of rod fishing.

Scottish Federation of Coarse Anglers the governing body for coarse angling in Scotland.

Scottish Environment Link Link draws together the voluntary environment movement in Scotland. It provides a liaison forum and network for its 39 member organisations.

Tweed Foundation a charitable Trust, established by the River Tweed Commissioners to promote the development of salmon and trout stocks throughout the Tweed catchment, including monitoring, research and habitat enhancement.

The following government agencies have indicated support for these principles through, eg, responses to the Scottish Salmon Strategy Task Force Report, their corporate strategies, and other responses to relevant government consultations.

West of Scotland Water Authority

Additional signatories from individuals and organisations are welcome