Safeguarding Our Heritage

The Fair Isle marine resource: A community proposal for its sustainable management

2. Future Fair Isle: retaining, maintaining and enhancing its maritime values

2.1.  STATUS, RECOGNITION, PROTECTION AND MANAGEMENT

2.1.1 Status and Recognition

The value of Fair Isle’s natural environment is acknowledged through a welter of designations and awards. These include:

Diploma of the Council of Europe: entire isle, marine environment treated as integral part of the site attributes; Diploma recognises sites of outstanding natural quality where the resident human population lives in harmony with its environment; awarded for four years in 1985, renewed for further periods of four years thereafter.

Special Protection Area (SPA) and Natura 2000 site: same area as SSSI; designated in 1994 under the European Directive on the Conservation of Wild Birds to safeguard and enhance bird species with particular reference to Fair Isle’s nationally and internationally important breeding seabird species; formally integrated into the Natura 2000 network encompassing designated SPAs and Special Areas of Conservation (SACs).

Site of Special Scientific Interest (SSSI): approximately half the isle, comprising the Hill grazing, and the entire coastline and cliffs; first notified in 1963 (whole isle) and renotified with current revised boundary in 1984 for its biological and geological assets including, inter alia, its internationally important seabird colonies.

National Scenic Area (NSA): encompassing the entire isle; one of seven coastal landscapes in Shetland designated as of "outstanding scenic interest".

Scottish Crofting Township Environment Award: an annual award to crofting townships displaying commitment to and conservation of their environment; Isle nominated and recipient at its first attempt in 1995; award administered and sponsored by the Scottish Crofters Union and Scottish Natural Heritage.

Environmentally Sensitive Area (ESA): Fair Isle is part of the Shetland ESA area, where farmers and crofters are encouraged, through Scottish Office Agriculture, Environment and Fisheries Department (SOAEFD) payments, to plan and carry out management measures to maintain and enhance the landscape, wildlife and archaeological conservation features of their land; by 1998, approximately 70% of the isle’s terrestrial area was within the ESA scheme.

Scheduled Ancient Monuments: thirteen dispersed throughout the isle; one scheduled in 1987 and the others in 1997 by Historic Scotland; Ancient Monument notification is designed to conserve and protect archaeological sites of national importance.

Listed Buildings: there are 3 listed buildings of Special Architectural and Historic Interest on Fair Isle; all three, comprising the North Lighthouse, the South Lighthouse and The Auld Haa were declared listed in 1977.

Scheduled maritime archaeological site: the wreck, El Gran Grifon, protected under a lease to the Shetland Islands Council from the Crown Estates Commission, allowing the Council to control access.

In addition, a large and varied information base has been built up of the Isle’s environmental and cultural heritage by:

Long-term monitoring of terrestrial and marine bird populations by Fair Isle Bird Observatory Trust; continuously since 1948.

Long-term monitoring of Fair Isle weather by D. Wheeler, Fair Isle Meteorological Station.

Recent research into the isle’s rich terrestrial archaeological heritage by the Universities of Bradford and Birmingham, led by Professor J. R. Hunter.

Archiving and conserving the isle’s cultural history and artefacts through the island-initiated and run George Waterston Memorial Centre, a Museum with registered status under the Museum and Galleries Comission Registration Scheme - the most remote museum UK wide to have achieved this accreditation.

The work of the Fair Isle Marine Environment and Tourism Initiative established in 1997 to promote and protect the marine resource, in drawing together the many facets of information collected by the above and other bodies and individuals. FIMETI has been grant-aided by the Scottish Office through its Rural Challenge Fund, the National Trust for Scotland, the Royal Society for the Protection of Birds and the Scottish Cultural Resource Access Network (SCRAN), a Millennium Project.

2.1.2 Protection

The designations, awards and levels of research confirm the high environmental and heritage value of Fair Isle’s many assets; and the long term interests and investment in Fair Isle by the National Trust for Scotland demonstrate the importance given to it by Scotland’s largest conservation body. But to what extent does this interest lead to protection and conservation of these attributes? Not all of the recognition is intended to relate directly to conservation planning. For instance, the Scottish Crofting Township Award was in recognition of a positive relationship between the Island community and its environment, but laid down no future conservation requirements or recommendations. On the other hand the designations do set or imply conservation objectives. Though virtually all the designations relate to the land area, maritime issues impinge strongly on any conservation considerations. For instance, the conservation objectives of the SPA include a call to maintain and enhance Fair Isle’s internationally and nationally important seabird populations. The SPA is currently restricted to the land area which supports the seabird colonies. In Managing the Sea for Birds - Fair Isle and adjacent waters, Riddiford & Thompson (1997) argue for an extension of the SPA to the immediate marine area for the simple ecological reason that seabird colonies are sustained by their food resource, which for seabirds is derived virtually entirely from the sea. A balanced ecosystem is essential to the long-term conservation of Fair Isle’s seabirds, and thus the achievement of its SPA conservation objectives. The designation which currently comes closest to recognising the value of Fair Isle seas and the need for steps to be taken to ensure a balanced ecosystem is the Council of Europe Diploma. The Diploma Award is accompanied by specialist reports to the Council of Europe. These take a broad view which recognises the inter-relationship between the island population and its environment. Renewal of the Diploma has required an assessment of factors which may erode the high environmental quality which makes Fair Isle one of few sites in Europe to be holders of this prestigious award. Successive renewals have drawn attention to the marine area and its importance to both the environment and the island community. Unfortunately the marine environmental recommendations, which include regulation of commercial fishing, oil developments and shipping movements, have not been enacted by decision-making bodies and the Island community remains defenceless against the unregulated demand for resources.

Despite the various designations and awards, opportunities have been missed to recognise and afford protection to the marine area. For instance, Fair Isle is outstanding for its littoral and sub-littoral sea caves, which are endlessly varied, spectacular and supportive of sea life. A few were investigated by Howson (1988), but there are numerous others along the entire coastline, some with impressive underwater features such as the huge blocks of collapsed rock at Kirn o Skroo, etc. Fair Isle also has important reefs. Both are considered of sufficient importance in the European context to be listed as "special marine habitats" under the EC’s Habitats Directive. Fair Isle missed out during the process of designating Special Areas of Conservation, with Papa Stour being selected as representative of Shetland for those habitats. With regard to sea cave and reef habitats, Fair Isle may also be considered an unspoiled representative example worthy of Special Area of Conservation (SAC) status.

In conclusion, designations and recommendations, with regard to the marine area, do not equate with protection of that area and its values.

2.1.3 Management

It is the failure of conservation awards and designations to lead, as one might suppose, to the implementation of measures to respond to their requirements and objectives which has prompted this document. This is why we, the Fair Isle community, feel the time has come to take the initiative and become actively involved in trying to protect the marine resource for the future. The first step was taken in 1997 by the establishment of the Fair Isle Marine Environment and Tourism Initiative by equal partners, the Fair Isle Community, Fair Isle Bird Observatory and the National Trust for Scotland. This was quickly followed (January 1998) with the creation of the Fair Isle Marine Partnership, an advisory group incorporating all users and bodies otherwise involved in the Fair Isle marine area. The complexities of management of the marine environment need to be overcome. By involving all interested parties in the Fair Isle Marine Partnership, it is hoped to achieve this and establish a common approach to the sustainable, long-term management of Fair Isle waters.

Fair Isle is famous for its birds. The seabirds, especially, are highly visible, impressive for the size of their populations, afford excellent views amongst spectacular scenery and are, of course, extremely popular with all who see them, thus sustaining the Isle’s tourist economy. The objective to enhance and maintain Fair Isle’s seabird populations will require sensitive management of those aspects of the environment directly supporting the seabirds (i.e. fish) and this will afford protection to other indirectly or unrelated organisms and communities. These were some of the arguments used in Managing the Sea for Birds (Riddiford & Thompson 1997) in discussing management measures which could be taken to ensure sustainable long-term protection. These measures were set out as a series of recommendations under the headings Fisheries, Shipping and Navigation, Water Quality, Mineral and Energy Extraction, Coastal Development, Recreation and Research and Monitoring, recommendations repeated in Appendix 2 of this report.

The birds are just one asset which promotes tourism to the isle. There are many more and they too would benefit from applying sustainable management measures to the seas around Fair Isle. These include:

Support and protection of the island community’s cultural maritime activities and traditions

Protection of Fair Isle’s rich maritime environment (physical processes, ecological processes and biodiversity)

Provision of a protected nursery area for fish stocks

Establishment of a "control" site which may be used to compare population dynamics with those from unprotected sites (e.g. for fish stocks)

Protection of the very important marine archaeological resource

Landscape protection

Provision of a rich resource for education spanning all aspects of the curriculum

Promotion of environmental and cultural tourism

Establishment of public approval

Establishment, through an integrated approach to management, of a standard in marine protection and interpretation which will provide a model for marine sites at the national and international level.

The aim of this report is to emphasise every aspect of the marine environment and demonstrate the importance to the island community of safeguarding these aspects through sustainable management. It is reasonably simple to design a management programme which addresses all the issues together. A programme based on the recommendations presented in Appendix 2 may be the starting point as, in conjunction with the small number of additional measures outlined below, it takes into account statutory objectives (e.g. the SPA), community well-being, maritime law, and above all the environment itself on which the other objectives are founded.

Cultural maritime activities and traditions

Work is being undertaken by FIMETI to inform conservation and management planning for aspects of cultural heritage through a procedure of survey (mainly desk-based), analysis, evaluation of significance, conservation policy, consideration of threats and formulation of management strategy. Management procedures should take into account and allow for traditional Fair Isle maritime activities to continue, though these should be subject to codes of conduct (already applied unofficially in many cases, e.g. shellfish size). Measures should take into account recreational, social and historical elements related to maritime activities as well as the possibility of reviving a sustainable locally based and operated fishing industry. They should also take account of the aspiration of current users and the potential for evolution or change. Cultural activities and traditions also benefit from measures called for in Appendix 2.

Maritime environment

Benefits automatically from all measures called for in Appendix 2. By encompassing specific measures management will also promote national responsibilities for the protection of the considerable range of priority plant and animal species and habitats occurring at Fair Isle and its adjacent waters, as identified in the UK Biodiversity Action Plan.

Protected nursery area

Achieved automatically with measures called for in Appendix 2, particularly fishery management proposals. The Scotland Inshore Fisheries Act (1984) which allowed trawling within 3 miles of Scottish coasts was introduced after a study demonstrated substantial quantities of commercial fish in inshore waters (SOAEFD information). This resource has now been lost, certainly around Fair Isle. The findings of the study suggest that the previous law which stood for over 100 years, the Herring Fisheries Act (1883), benefited commercial fish stocks in inshore waters. There are also case studies in various parts of the World (e.g. New Zealand) where fish stocks have grown in relatively small no-take areas to the benefit of commercial fisheries nearby (e.g. Ballantine 1991). The Shetland Fishermen’s Association has proposed the establishment of a fisheries box south-east of Fair Isle to safeguard a haddock nursery area. Islanders have frequently observed and expressed concern at the by-catch of juvenile fish of commercial species taken by trawlers in Fair Isle waters. Maintenance or restoration of a balanced marine environment in Fair Isle waters will require these issues to be addressed.

Control site

Requires introduction of measures called for in Appendix 2. Thereafter, will require specific monitoring and scientific studies. Capabilities to achieve this exist on the isle (members of the island community, FIBOT) preferably working in partnership with research bodies already with an interest in the area (e.g. North Atlantic Fisheries College, SOAEFD Fisheries Research Department). The island community is prepared to show its commitment by taking an active part in such measures (through FIMETI it is already recording and collating a range of fishing data). One example could be a monitoring study of Fair Isle lobsters, particularly in partnership with the North Atlantic Fisheries College which has recently introduced a lobster re-stocking programme. The size of control areas and cost of these measures would need to be established in consultation with relevant research bodies and support agencies.

Marine archaeological resource

Benefits automatically from measures called for in Appendix 2, but would also benefit from additional measures (e.g. code of conduct relating to diver activities, unregulated removal of artefacts, etc.).

Landscape protection

Benefits automatically from measures called for in Appendix 2.

Education

Benefits from measures called for in Appendix 2. These benefits should be maximised by ensuring that the development of education programmes is included as a major and integral part of management planning.

Tourism

Benefits automatically from measures called for in Appendix 2. Same comments apply as for education above. Management measures should not lose sight of the community aspect. There is no doubting the value which visitors place on the island community and on the importance of the community to the well-being of the place.

Public approval

Benefits automatically from measures called for in Appendix 2. Public awareness of marine environmental issues has increased rapidly in recent years. A local community addressing those issues and a common approach to environmental conservation are a combination likely to attract wide public approbation. Approval will be extended to all involved, including supportive statutory and administrative bodies.

Model for marine sites

Benefits automatically from measures called for in Appendix 2. Local community involvement and an holistic, ecosystem approach, as proposed here, set a standard to which other communities can relate. The opportunity is here to establish a model which integrates long-term protection and sustainable management of the marine environment, pilots an approach based on Coastal Zone management experience and applies it in the context of a small isolated island, creates new employment possibilities linked to natural and cultural heritage management and green business development based on local products and tourism, establishes an integrated strategy for sustainable development of the island and surrounding seas and pioneers a participatory approach, involving local and external interests.

2.2 PLANNING FOR THE FUTURE

The aim of this report is to express Fair Isle community aspirations for the establishment of a management regime sympathetic to the long-term needs of the marine environment and its users, most particularly the island community for whom a healthy, protected marine environment is a social, economic and cultural prerequisite. The work of Riddiford & Thomson (1997) demonstrated that there are few legal constraints on establishing a management regime for the marine area under current legislation. The community and its partners believe that co-operation and negotiation with all users is the immediate way forward but that voluntary agreement should be reinforced with statutory recognition. The need to establish a sustainable management scheme is seen as urgent. It is FIMETI’s firm view that not only is the agreement of all who use the sea vital to success but that, if the perceived complexities of achieving statutory protection slows the process, then there is nothing to stop them seeking that agreement, even without statutory powers.

2.2.1 The Community perspective

Though commercial fishing no longer takes place, island folk are quick to take to the boats on a calm day and fish remains a welcome component of the island diet. Moreover, a desire for a return to the days of larger fish and wider variety remains, and with it the thought of a small, sustainable commercial fishery based on the isle. This is a maritime community, the sea is an integral part of the culture and traditions of the isle and the current community considers that it owes it to future generations to ensure that the integrity of the marine resource is maintained. This can only be done through a rational use of resources. The welter of designations recognising the value of Fair Isle’s environment bears witness to the rational, non exploitative actions of the island population over centuries. This contrasts with the current situation, brought about by outside factors and forces, which has denied the islanders a resource which they had previously controlled and come to consider a right.

The seas around Fair Isle are now a stressed environment. Fair Islanders feel this keenly. The community has a higher stake in this environment than any other user because they cannot abandon it in favour of other sites (unlike, for instance, the fishing or oil industries). This document conveys the collective voice of a community which has, for centuries, been an integral constituent of a rich, fully functioning marine environment. The community seeks to maintain a balanced, ecologically sound relationship with its environment. This can only be achieved by the establishment of integrated marine resource management.

2.2.2 Management issues, principles and responsibilities

The Fair Isle community recognises that it cannot achieve progress in management on its own. From the start of its commitment to safeguarding the marine environment (which was formalised at a Fair Isle Committee meeting in 1989), the community has worked closely with Fair Isle Bird Observatory Trust and the island proprietors, The National Trust for Scotland. These bodies have now joined with external users and interested organisations to form the Fair Isle Marine Partnership which will discuss and attempt to establish a common approach to the sustainable, long-term management of Fair Isle waters. This document is not, therefore, an appropriate vehicle to discuss the fine detail of management. It does, however, set a framework for management by illustrating the many issues and assets which would benefit from a management programme and these need to form the basis on which management planning should be based. It is appropriate to outline some principles for management of the Fair Isle marine area and these are given below.

The voluntary principle and compliance

There is evidence from examples in other parts of the World (e.g. New Zealand; Saba, Netherlands Antilles) that sustainable management programmes provide positive benefits long-term to all users of the marine resource - for representative as well as "special" marine areas. The need for consensus on measures and how they are applied is acknowledged by the community and its partners. By establishment of the Fair Isle Marine Partnership it is hoped that the voluntary principle will prevail in the implementation of management measures in Fair Isle waters. However, voluntary compliance is most likely to be generated within a statutory framework. More formal regulation will certainly be required if management measures fall short of the desired outcome. Any voluntary agreement may readily fit into a statutory designation now or if the legislative framework changes in the future.

Conservation objectives

The primary site conservation objective should be to maintain and enhance the social, cultural and economic well-being of the Fair Isle community, through local sustainable management of the marine resource. This will address community aspirations to preserve and promote the isle’s social, economic, cultural heritage and environmental values and benefits. Further conservation objectives, related to the maintenance and protection of Fair Isle’s internationally and nationally important seabird populations and which support the primary conservation objective above, are given in Managing the Sea for Birds (Riddiford & Thompson 1997) - repeated in Appendix 2 of this document.

Community involvement

It could be argued for Fair Isle that the most important step in achieving all the conservation objectives is to empower the local community in its drive to address Fair Isle’s marine and maritime issues. The sea is central to the island’s maritime history and culture and to a balanced socio-economic future. Community consideration and involvement should be given highest priority.

Management support

It is vital that movement made by the Fair Isle Marine Partnership towards a management scheme is accompanied by commitment of relevant authorities and conservation agencies to support and participate in developments associated with that scheme. The agencies should seize this opportunity to pilot an approach which applies Coastal Zone Management experience to the context of a small isolated island.

Best practice

It is imperative that management planning should be based on a long-term view of marine resource utilisation. The opportunity should not be missed to include measures which benefit not merely the resource but environmental education and tourism as well. Sustainable management should address the inter-linked goals of economic prosperity, environmental quality and social equity.

Management implementation

All the normal procedures for site management should be followed (as outlined in SNH et al. (1997)). Important factors which must be addressed include full research, monitoring and reporting and adequate policing of the site.

2.2.3 Community Empowerment and Statutory Authority support

In the document Natura 2000, European Marine Sites (SNH et al. 1997) six major Habitat Directive requirements are listed. They mainly address conservation objectives, but one states that "any management of the site should take account of the economic, social and recreational needs of the local people". The Fair Isle community applauds this consideration and is seeking a similar approach to be applied to the Fair Isle situation. The steps proposed by the community and its partners also sit comfortably within the planning frameworks outlined by the Shetland Structure Plan and the West, South and Central Local Plan for Shetland. Thus, the Shetland Structure Plan acknowledges the need to support rural areas not affected by industrial development (Supporting Policy 20) and the importance of Shetland’s marine and terrestrial ecology, its wildlife sites and landscapes and aims to conserve and protect them (Principal Policy 106). In the West, South and Central Local Plan, it is stated that: the Council will make every effort to encourage tourism in the Local Plan area, provided it does not detract from the amenities, nature conservation interests or character of the area (Policy E8); Shetland’s terrestrial and marine ecological systems, features of geomorphology and geological interest, wildlife sites and landscape are recognised and the Council states its intention to conserve and protect these (Policy EV10); and that there will be strong presumption against development which would affect designated sites such as SSSIs (Policy EV11). There appears, therefore, to be strong presumption in favour of the approach of the FIMETI partners towards measures which benefit nature conservation, particularly of the marine environment, tourism, sustainable cultural, social and economic development and the maintenance of a viable, balanced island community. Fair Isle, in the form of the entire island population which makes up that community, is responding positively to the current encouragement towards "community empowerment". However, "community empowerment" is an empty expression unless enabled by statutory authority approval and support. This document will at the very least expose the commitment of statutory authorities and agencies, at the local, national and international level, towards making community empowerment a reality.

2.3 SAFEGUARDING OUR HERITAGE - ACTION POINTS

The Fair Isle community perceives an urgency for steps to be taken to safeguard the marine environment. This is a discussion document, but discussion must lead to action. To hasten this process, a series of specific action points are given as pointers towards proper management of the Fair Isle marine resource. These should be forwarded by the Fair Isle Marine Partnership. The community recognises that these first have to be agreed by that Partnership. Therefore, the following pointers are only advisory and final decisions on management measures will rest with the Partnership and statutory bodies. It is hoped, however, that they will act as a framework or guidelines for progress to be made.

Action:

Liaise with/inform users of community’s aspiration for sustainable management procedures to be enacted in Fair Isle waters.

Liaise with statutory, national and international bodies to gain recognition and support, including financial where necessary and if possible, for community empowerment in achieving a more integrated approach to managing Fair Isle’s surrounding marine environment.

To inform conservation and management for values which have not been summarised or described in depth (e.g. aspects of cultural heritage) undertake procedure of survey (mainly desk-based), analysis, evaluation of significance, conservation policy, consideration of threats and formulation of management strategy. This action is currently being undertaken by FIMETI.

Draw up a prescriptive management plan which addresses the conservation objectives and includes all the issues and measures outlined in the following action points.

Declare a marine protected area (preferably statutory) using a zoned approach and based on the following framework and management measures:

the inshore waters up to 5 km from Fair Isle coastline (Figure 4, Zone 1) to be reinstated as a traditional fishing zone for Fair Isle use only [This would return that zone to its former regulatory status prohibiting trawling in Fair Isle waters inshore of 3 miles. This regulation lasted for over a century and was lost as recently as 1984 (when the Herring Fisheries Act of 1883 was replaced by the Scotland Inshore Fisheries Act)]. Such a step recognises the need to safeguard the main feeding grounds of Fair Isle seabirds and promotes the traditional activities/right to fish of Fair Isle inhabitants.

plan with relevant bodies fishery management measures/restrictions for the adjacent waters beyond 5 km up to 16 km from the Fair Isle coastline (Figure 4, Zone 2).

in support of a recommended Shetland Fishermen’s Association conservation measure, establish a fisheries box refuge east and south of Fair Isle for protection of a major haddock nursery area (Figure 4, Zone 3).

implement voluntary or compulsory provisions prohibiting ships carrying polluting cargoes within at least 16 km of Fair Isle (Figure 4, Zones 1 and 2); e.g. through monitoring of compliance within existing voluntary Area To Be Avoided, to be made compulsory if the voluntary approach fails, and designation of a Marine Environmental High Risk Area as recommended in the post-Braer Donaldson report.

all zones, including a buffer zone against accidents and spills (Figure 4, Zone 4), should be promoted as unsuitable for oil and gas exploration and production. The means by which this could be achieved should be subject to discussion by the management group.

establish codes of conduct for improvement and/or conservation of specific assets (e.g. marine archaeological sites, shellfish stocks).

apply other, more detailed, recommendations made in Appendix 2.

Once management measures are in place, the Fair Isle community, in partnership with the Fair Isle Bird Observatory, to take a lead role in:

monitoring and research where it is required to underpin management.

setting codes of conduct within and policing the Marine Protection Area.

The Fair Isle community, in partnership with the Fair Isle Bird Observatory, National Trust for Scotland and other agencies, to take a lead role in:

the development of educational and interpretation programmes;

tourist programmes and development.

Set time-scale for action to include establishment of a marine protected area in Fair Isle adjacent waters by the year 2001.

Thereafter apply, through management forum or partnership, regular reviews of the effectiveness of the management scheme and, if necessary, adjust or strengthen management measures to address the conservation objectives in a dynamic situation.

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Copyright © 1999 Fair Isle Marine, Environment & Tourism Initiative
Last modified: February 05, 2002