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Safeguarding Our Heritage
The Fair Isle marine resource: A community proposal for its sustainable management
 Appendix 2. Conservation objectives and
management recommendations in Monitoring the sea for birds - Fair Isle and adjacent
waters (Riddiford & Thompson 1997)
Conservation Objectives
1. Ensure the maintenance and protection of Fair Isle’s
internationally and nationally important seabird populations;
2. Maintain and, where appropriate, restore a natural marine ecosystem
on which the functions, distribution, abundance and long-term survival of these
internationally and nationally important seabird populations depend;
3. Maintain and, where appropriate, restore the quality of the
physical environment necessary to preserve the biodiversity and natural functioning of the
marine ecosystem.
Management Recommendations
1. Fisheries
1.1 Depressed fish abundance and fish community composition
1.1.1 Closure of the sandeel fishery within 5 km of the Fair Isle
coast (Zone 1 of the proposed protected area), as part of a strategic approach to the
entire Shetland sandeel fishery in relation to all designated and proposed SPAs for
seabirds in Shetland waters.
[The current Total Allowable Catch (TAC) for the Shetland area is set at 3000 tonnes
per annum (7000 tonnes in 1998, editor); this is largely taken from Mousa
Sound off South Mainland (P. Ellis, pers comm). However, in an area where the
species is such an important item in seabird diet, a management requirement should be for
a zero TAC to be implemented. This is for a number of reasons:
 | It will afford a refuge to support recovery and replenishment of stocks; |
| It is a logical precautionary measure given that the sandeel population still does not
appear to have recovered strongly; |
| The trophic position of sandeels lies close to the base of the marine food chain, giving
these species a key role in maintaining a balanced marine environment; |
| The establishment of a refuge area will provide a scientific control site. Monitoring
will provide independent evidence of the extent to which the Fair Isle sandeel population
relies on recruitment from elsewhere.] |
1.1.2 Provide a fisheries box refuge east and south of Fair Isle for
protection of a haddock nursery area (Figure 4). This recommendation has had the support,
in principle of the Shetland Fishermen’s Association in the past.
[Sandeels are not readily available to seabirds at all times of year. There are limited
data on the food requirements of seabirds in Fair Isle waters outside the breeding season.
However, heavy mortality linked to winter food shortages away from the Isle has been
recorded (e.g. the razorbill ‘wreck’ of 1983). The closure of some Fair Isle
waters to commercial fishing will benefit fish stocks in addition to addressing the
conservation objectives, although Norway pout indirectly protected would probably be of
more importance to wintering seabirds than juvenile haddock specifically (E. Dunn, in
litt).]
1.1.3 Continue research to identify species and size ranges which are
an important component of seabird diet, particularly those which influence breeding
productivity.
1.2 Shore collection (e.g. for limpets as bait)
1.2.1 Maintain a watching brief.
1.2.2 A voluntary code of practice should be an integral part of
management planning for the proposed protected area, if cost-benefit analysis suggests a
need.
1.2.3 The option to introduce bye-laws to limit shore collection,
though unlikely to be necessary, should be retained in case the voluntary code fails. If
controls are necessary in the future they must be consistent with the general island right
to fish.
1.3 Aquaculture
1.3.1 As a precaution the area should be identified as a Very
Sensitive Area for aquaculture by the Crown Estate. This would constitute a clear signal
to potential developers on the sensitivity of the area, in addition to any nature
conservation designations.
1.3.2 If proposals are put forward, a Framework Plan should be
prepared to guide siting and operation of any facilities. This should be based on a
strategic and project environmental impact assessment with particular emphasis on the
likely effects on the importance of the area for birds.
1.3.3 Consideration should be given to recommending Fair Isle for
Marine Consultation Area (MCA) status on environmental grounds. MCAs have been used to
facilitate consultation with the statutory agencies over whether and how any development
might take place, although the recommendations from SNH have only held voluntary status.
However, whilst a consultation procedure with the agencies and NGOs will be essential and
the value of defining the area as an MCA should be considered, in practice the logistical
constraints on aquacultural development at Fair Isle mean that this is not
necessarily the most effective system.
1.4 Changes in size distribution within fish stocks
1.4.1 Identify areas where damage is occurring and the scale of
any effect.
1.4.2 Assess likely impact on the importance of the area for seabirds.
1.4.3 Consider the establishment of a refuge to study recovery and
replenishment of surrounding areas. Beyond territorial waters, ‘boxes’ to limit
types of gear and level of effort could be introduced under the EU Common Fisheries
Policy.
1.5 Damage to benthos
1.5.1 Identify areas where damage is occurring; and the scale of
any effect.
1.5.2 Assess likely impact on the importance of the area for seabirds.
1.5.3 Consider the establishment of a refuge to study recovery and
replenishment of surrounding areas. Beyond territorial waters, ‘boxes’ to limit
types of gear and level of effort could be introduced under the EU Common Fisheries
Policy.
[Recommendations concerning Maintenance Dredging and Capital Dredging Works are also
relevant to this issue.]
1.6 Net and line mortality
1.6.1 Research programme should be conducted to ascertain the
impact of this hazard. An important first consideration should be the impact in the
immediate vicinity of seabird colonies.
1.6.2 If results of research programmes indicate problems for
seabirds, voluntary agreements or, if necessary, bye-laws should be introduced to prohibit
the laying of set nets in zones around colonies or feeding concentrations at appropriate
times of year. Beyond territorial waters, fisheries boxes could be used.
1.6.3 Locally based fisheries management to ensure that measures
reflect local circumstances as well as national needs and to enable flexible and on-site
response.
2. Shipping and Navigation
2.1 Accidental discharges - oil
Following the MV Braer incident at the southern end of Shetland Mainland, there
is a case for excluding large vessels carrying oil and other potentially dangerous cargoes
from the Fair Isle Channel, for instance by re-routeing them away from land to the north
of Shetland. This scenario should be modelled (e.g. identifying new ‘pinch
points’ created as a result), and the alternatives and their impacts explored. If the
Fair Isle Channel remains the preferred option for these vessels, comprehensive and
effective measures need to be enacted and/or enforced to ensure that further disasters are
prevented. These include:
2.1.1 Radar surveys to assess compliance of vessels with existing
voluntary Area To Be Avoided (ATBA) exclusion zone.
2.1.2 If the voluntary provisions are found to be failing, a
compulsory ATBA, for ships carrying polluting cargoes within at least 16 km of Fair Isle
(Zones 1 and 2) should be implemented.
2.1.3 Contingency planning measures covering the entire protected
area, incorporating additional relevant information as it becomes available.
2.1.4 Radar coverage to cover the entire Fair Isle Channel, north and
south of Fair Isle. This may require siting of a radar facility on the island.
2.1.5 An emergency salvage tug to be stationed permanently in
Shetland.
2.1.6 Restrictions on the activities of commercial trawlers in Fair
Isle’s immediate waters up to 16 km from the shore (Zone 2).
2.1.7 Fair Isle Bird Observatory should maintain and publish data on
oiled birds on Fair Isle.
2.1.8 Consider site in strategic assessment of UK coastline and waters
for the identification of Marine Environmental High Risk Areas (MEHRAs).
2.2 Alien species
2.2.1 The IMO voluntary code concerning exchange of ballast water
in oceanic waters should be promoted to vessels using ports in Northern Isles waters (not
relevant to Fair Isle itself), as should any subsequent measures agreed by the IMO, as
part of general good practice.
2.3 Deliberate discharges - oil, garbage, chemicals
2.3.1 A detailed monitoring scheme of garbage and other waste
washed up on Fair Isle beaches, and assessment of quantities and sources, will give a
better indication of the problem as it relates to Fair Isle. The availability of a good
data set for Shetland gives opportunities for comparison. Maximum publicity for the
results should be sought - this has the potential for major impact because it will
demonstrate that even one of the UK’s remote islands is not exempt from this form of
pollution.
2.3.2 Continued provision of Marine Safety Agency’s anti-dumping
campaign materials to ship masters for display on vessels.
2.3.3 Target aerial surveillance within and adjacent to the area for
systematic detection of pollution incidents.
2.3.4 Advice to mariners to be especially vigilant for slicks in the
protected area and to report these immediately.
2.3.5 Guidance to Procurator Fiscal on seriousness of pollution and
recommended suitably punitive scale of fines for incidents within protected areas.
2.3.6 An assessment and certification of the adequacy and ease of use
of waste reception facilities in Northern Isles ports, by the Marine Safety Agency.
2.3.7 Advice on the correct means for disposal of waste to be posted
at North Haven (Fair Isle’s harbour).
2.4 Disturbance - shipping
2.4.1 General Codes of Conduct exist asking recreational craft to
avoid disturbance to birds. These should be developed into specific advice for the area.
Any material that is provided should make it clear that there is no intention to limit
access during emergencies.
2.4.2 The situation should also be monitored, e.g. by Fair Isle Bird
Observatory keeping a log of incidents of disturbance to nesting birds and rafts of
seabirds by vessels. This information should be passed to the licensing authorities and/or
management group who should try to resolve the issue before it becomes a major problem.
2.5 Maintenance dredging
2.5.1 Maintenance dredging works should require prior consultation
with SNH and the management group to ensure that the operation is conducted within
environmental safeguards.
2.5.2 An environmental impact study may be necessary, including the
identification of appropriate measures for safe disposal of the spoil.
2.6 Capital dredging
2.6.1 Maintain a watching brief.
3. Water quality and pollution control
3.1 Plastics (other than ship-sourced inputs)
3.1.1 Assessment of input (sources and quantities) of plastic
debris and impact on seabirds.
3.1.2 Develop public awareness campaign on disposal of litter.
3.1.3 Advice on the correct means for disposal of litter/cast netting
should be posted at North Haven.
3. Other water quality issues
3.2.1 Maintain a watching brief.
4. Mineral and energy extraction
4.1 Oil and gas - exploration and production
4.1.1 The area should be promoted as unsuitable for oil and gas
exploration and production. The means by which this could be achieved should be subject to
debate by the management group.
If drilling does go ahead:
4.1.2 Presumption against exploration and production drilling at
locations in the proposed protected area where spilled oil from the drilling site is
likely to come ashore within 24 hours. This gives the minimum time necessary for
contingency plans to be initiated in the event of an oil spill.
4.1.3 The criteria for withdrawing blocks or placing conditions on
licences should be put on public record, along with reasons for withdrawal of specific
blocks.
4.1.4 Environmental Impact Assessments (EIAs) should be mandatory for
exploration and development drilling proposals within the proposed protected area. EIAs
should also be mandatory for drilling proposals outside the proposed protected area where
such drilling is likely to have a significant effect. Operators preparing EIAs for
exploration and development should consult with interested organisations. EIAs should
inform decisions on whether or not to allow drilling and on the conditions that should be
applied to licences.
4.1.5 Oil spill contingency plans should be prepared, and their
implementation considered.
4.1.6 A review should be made of the currently licensed blocks with a
view to placing environmental considerations on the existing licences. This should be
based on much fuller environmental information and take into account the Government
responsibilities towards the EC Wild Birds Directive and Council of Europe conditions that
relate to Fair Isle.
4.2 Aggregate extraction
4.2.1 Maintain a watching brief.
5. Coastal Development
5.1 Land claim
5.1.1 Maintain a watching brief.
5.1.2 Apply the same requirements as exist for the current terrestrial
SPA.
5.1.3 Ensure that the likely implications of development proposals on
the marine environment are taken into account.
5.1.4 Revisions to the development plan should define Fair Isle’s
coast as ‘Isolated’, in accordance with recent Scottish Office guidance on the
coast (NPPG 13).
6. Recreation
6.1 Disturbance
6.1.1 Isle Bird Observatory Trust; consider enlargement if
necessary.
6.1.2 Dissemination of the need for care and safety through
information boards or leaflets and a written code of conduct.
6.1.3 Monitoring of activities potentially damaging to birds and other
wildlife.
[See also recommendations under Shipping and navigation - Disturbance from shipping.]
7. Other issues
Research and Monitoring
The only recommendation relating to the hazard is:
7.1.1 Ensure that likely implications of research proposals on seabird
interest taken into account.
The following recommendations relate to the opportunities that should be developed as
part of the management of the proposed protected area:
7.1.2 Develop new programmes and continue existing ones, particularly
in relation to issues highlighted in Chapter 3.
7.1.3 Use the marine protected area as a control site to assess the
effects of an undisturbed area on fish stocks and seabird breeding productivity.
7.1.4 Publish an occasional series reporting on research and
monitoring.
7.1.5 Promote wildlife observation and interpretation activities.
7.1.6 Disseminate information to the general public on a regular basis
about research findings and the protected area.
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