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Draft report on ScotMap;
the Inshore Fishing Study Pilot in
Pentland Firth and Orkney Waters
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Executive summary
Marine Scotland requires a detailed understanding of inshore fishing activity in
Scottish Territorial Waters to inform policy making in various areas including
marine spatial planning, the sustainable development of offshore renewable
energy, nature conservation and fisheries management.
A pilot study, using an interview-based methodology, known as ScotMap, was
carried out by Marine Scotland in the Pentland Firth and Orkney Waters.
Locally based fishermen were asked to identify the areas in which they fish
and to provide associated information on their fishing vessel, fishing activity
and income from fishing.
This report describes the methodology, presents examples of outputs based
on aggregated data in the form of maps representing value, number of boats
and number of employees as a function of vessel size, fishing method and
target species, and evaluates the approach. It is envisaged that the data
collected during the pilot study will be used to inform a variety of policy areas.
Following completion, Marine Scotland plan to roll out ScotMap to the rest of
Scottish waters.
Introduction
A detailed understanding of inshore fishing in Scottish Territorial Waters will
help underpin policy making across a wide variety of areas, such as marine
spatial planning, sustainable development of offshore renewables and
fisheries management. To this end, Marine Scotland plans to carry out a study
of fishing activity, focussing particularly, but not exclusively, on commercial
fishing vessels of less than 15 metres in length, for which there is little or no
existing information on fishing activities. The study will contribute to a better
understanding of spatial distribution and economic importance of fishing and
the relative importance of different fishing grounds than currently exists. It is
intended that the study will cover the whole of Scottish Territorial Waters. In
order to test the methodology and uptake, the approach was piloted in the
Pentland Firth and Orkney Waters. This paper summarises the results of this
pilot.
The main policy areas which require information on fishing activity are as
follows:
Marine planning and licensing
The Marine (Scotland) Act 2010 brings into force a new statutory marine
planning system to manage the increasing and potentially conflicting usage of
Scotland’s Sea. For the first time, a National Marine Plan will give greater
clarity to decision making in the marine environment, reduce uncertainty for
marine developers, encourage economic investment, and help protect the
natural environment. The Act also sets out a new regime for marine licensing
which will simplify the existing regulations and consenting process. This
regime will cover practically all anticipated activities which currently require
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licensing (apart from aquaculture within 3 nautical miles which local
authorities have the power to regulate). Marine plans, as defined in the Act,
will be material to decisions made on licensing.
The Act also sets out a new consenting regime for offshore renewable energy
development. The new ‘marine licence’ under the Marine (Scotland) Act 2010
and the Marine and Coastal Access Act 2009 replaces several previous
consents to provide simplified, streamlined and consistent licensing.
Information about commercial fishing will inform the consenting process and
allow the regulators to assess the likely impact of the proposed activities.
Marine spatial planning pilot
The Marine (Scotland) Act 2010 includes provision for the development of
regional plans. The geographic boundaries of the statutory marine regions
have yet to be defined, so marine spatial planning at the regional level is
being piloted in the Pentland Firth and Orkney Waters.
The purpose of this pilot spatial plan is to inform use of the sea, in a manner
which minimises conflict between marine users and allows for wider marine
management, including protection of the marine environment. In particular,
this pilot should inform future decisions made on proposed wave and tidal
energy developments in this area, and ensure that relevant onshore planning
and development can be coordinated with proposed offshore activities.
An initial Marine Spatial Plan Framework and draft Regional Locational
Guidance have been published on the Scottish Government website. The
Framework document sets out a 3 stage process for the development of
regional marine plans. It also contains a summary of existing information on
different uses of the sea, shows how these different uses may impact on each
other, makes recommendations for future data collection, assessment and
research to ensure that the Plan is properly underpinned by relevant and good
quality information, and sets out how the Plan should be developed.
The ScotMap pilot study in the Pentland Firth and Orkney Waters has been
carried out to address one of the recommendations made in the Framework
document.
Marine renewables
Offshore Wind
Blue Seas – Green Energy: A Sectoral Marine Plan for Offshore Wind Energy
in Scottish Territorial Waters was published along with its associated Post
Adoption Statement on the Scottish Government website on 18 March 2011.
The Plan sets out the Scottish Government’s policies for developing offshore
wind energy up to and beyond 2020 and identifies 6 areas for development in
the short term (by 2020) and 25 medium term (beyond 2020) areas of search.
It has been developed using Strategic Environmental Assessment (SEA),
Habitats Regulations Appraisal (HRA) and consultation and informed by
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socio-economic impact at the strategic level using Scotland’s Marine Atlas as
the main data source.
Wave and tidal energy
In 2007, the Scottish Government published a Strategic Environmental
Assessment (SEA) for Marine Renewables covering Scottish Territorial
Waters for Scotland’s west and north Coasts. The report concluded that
there is significant resource within Scottish territorial waters for wave and tidal
energy development.
Work is progressing on the Marine Renewables Sectoral Plan which requires
Sustainability Appraisal in line with the requirements of environmental and
marine legislation. This work will refresh the 2007 SEA and increase the
geographic scope to include Scotland's renewable energy zone (out to 200
Nm). Sustainability Appraisal includes SEA, strategic HRA, Socio-economic
Impact Assessment and consultation.
There are eleven sea areas in the Pentland Firth and Orkney Waters region
which are proposed for wave or tidal energy development and which have a
combined energy resource of up to 1.6 GW. It is anticipated that the relevant
developers will apply for marine licences over the course of the next few
years.
Marine Protected Areas
The Marine (Scotland) Act 2010 introduced new powers to designate marine
protected areas (MPAs) to protect historic and natural features of importance
to Scotland. This will allow natural features not covered by European
legislation to be afforded protection via site designation. Scottish Government
has international commitments to deliver an ecologically coherent network of
MPAs and the new powers will help deliver this.
The Scottish Marine Protected Areas Project, led by Marine Scotland in
partnership with Scottish Natural Heritage and the Joint Natural Conservation
Committee, is taking forward designation of MPAs within Scottish territorial
waters as well as offshore waters adjacent to Scotland. The project is being
undertaken on a national basis.
Designation will be a science led process focusing on features of conservation
importance. Knowledge of the fishing activity and the relative importance of
fishing grounds is essential to the MPA project in terms of identifying areas of
least activity, minimising conflict and informing the management of proposed
sites.
Aims and Objectives
The aim of this study is to provide detailed spatially resolved information on
inshore fishing activities, to include:
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definition of the areas fished;
the months of the year that these areas are fished;
the species fished for;
the fishing method and gear used;
the number of people employed, and;
the contribution sea areas make to income from fishing
The ScotMap Pilot Study
A pilot study to trial an interview-based methodology (ScotMap) to collect this
information was conducted in the Pentland Firth and Orkney waters strategic
area starting in June 2011. The project was jointly managed by SG Marine
Renewables policy team and the Marine Scotland Science (MSS) Inshore
Fisheries Group. The interviews were conducted by Marine Scotland fisheries
officers and data were analysed by MSS and staff in SG Rural and
Environmental Science Analytical Services (RESAS). A steering group,
comprising representatives from Scottish Fishermen’s Federation, Orkney
Fishermen’s Association and officials from Marine Scotland, was set up to
give advice and oversee the project, and met every few months over the
course of the pilot.
Methodology
Face-to-face interviews with individual fishermen were conducted between
June and October 2011. The target respondents were skippers/owners of
commercial vessels registered in Kirkwall and Scrabster who were known to
fish in the Pentland Firth and Orkney Waters.
During the interviews fishermen were asked a series of questions about their
fishing vessel, fishing patterns, crew and for information about vessel
earnings from fishing; the latter being annual gross vessel earnings from
fishing: maximum and minimum and the average for the past five years.
Fishing areas or ‘polygons’, as identified by each fishermen, were drawn on
map and associated information relating to target species, fishing method and
the value of each polygon, as a percentage of average gross vessel earning,
was recorded. All the information was recorded via ScotMap1, which is a
purpose designed graphical user interface linked to a GIS programme ArcMap
(version 9.3.1), and stored in GIS databases.
Each fisherman taking part signed a data consent form. The purpose of this
was to ensure that participants understood the purpose of the study and know
how the information they contributed would be handled. The form sets out the
obligations of the data collectors and the organisations which will use the data
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The ScotMap Graphical User Interface (GUI) is a modification of FisherMap,
which was developed by researchers at the University of Kent for the Finding
Sanctuary Project, subsequently modified for use by Marine Scotland.
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to ensure that commercial confidentiality is maintained and that personal data
are not disclosed.
Response
The response to the request for information was very positive, with almost
100% of fishermen contacted agreeing to be interviewed. The only fishermen
who declined to take part did so on the grounds that they were not currently
fishing. A total of 187 interviews were conducted between May and October
2011.
Data collation and analysis
The data collected during interviews were subject to a series of checks prior
to analysis. Complete records were available for 176 interviews the majority
of which were with skippers of creel fishing vessels less than 15 m in length
(Table 1). Six skippers declined to give financial information. Various other
omissions, errors or inconsistencies in the data from five other interviews
meant that these were not included in the analysis.
< = 9.99 m 10 - 14.99m
Bottom seine
0
0
Dredges
1
1
Gill net
1
0
Long lines
1
0
Creels
109
32
Scallop divers
11
3
Towed dredges
1
1
Trawls
0
3
Total
124
40
>=15 m
1
0
0
0
5
0
1
5
12
Total
1
2
1
1
146
14
3
8
176
Table 1. Number of interviews by vessel size category and fishing
method.
The complete interview records consisted of 490 fishing polygons
representing fishing areas, each associated with information on fishing
method and gear, target species and percent contribution to vessel earnings,
linked to a series of tables containing other information on the fishermen and
fishing vessel. The majority of the polygons (309) related to creel fishing.
The spatial and tabulated data from all the interviews were combined and
analysed to provide data sets suitable for mapping in terms of value i)
absolute monetary value and ii) sum of percentage values; iii) usage number
of boats and iv) number of employees. A specific programme code to grid the
data was developed for the analysis.
In the case of absolute monetary value, the programme code calculates a
value for each mapped polygon based on its percentage contribution to vessel
earnings and the vessel average annual gross earnings data. Polygons are
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then associated with a grid of squares and the monetary value attributed to
each polygon is divided equally between all the grid squares with which the
polygon overlaps. The values associated with each grid square are then
summed and to produce a gridded data sets which can be mapped.
The sum of percentage values associated with each grid area square were
calculated similarly, based on an equal distribution of the polygon percentage
value among the all overlapping grid squares. The summed percentage
values for each grid square were standardised, against the highest value, set
for these purposes at 100. Treating the data in this way allows for an
assessment of ‘value’ which is independent of gross vessel earnings, which
can vary greatly among different vessel size classes and between boats
targeting relatively high and low value species.
To depict usage of different sea areas in terms of the number of boats, the
polygons for each vessel were again associated with a grid. Each vessel was
counted once in each overlapping grid square (partial or complete overlap)
and these counts were summed to derive the number of unique boats per grid
square. Numbers employed, skipper plus crew, as recorded during the
interviews, were treated similarly to derive data to depict numbers employed
per grid square.
Data were gridded using both coarse and fine grids with lat/long dimensions
of 0.1 x 0.1 and 0.025 x 0.025 decimal degrees, respectively. The coarse grid
gives 50 grid squares per ICES statistical rectangle, the fine 400. Examples
of the fine gridded data are presented below.
The code was applied to the whole data set and to subsets of the data based
on combinations of vessel size (over 15 m, 10-15 m and under 10 m length),
gear type and target species. A total of 380 data sets were generated.
It should be noted in relation to the gridding technique applied that i) the
allocation of polygon values to grid squares are equal irrespective of the
actual proportion of the polygon which falls within the grid ii) the area of the
grid squares based on regular latitudinal and longitudinal intervals varies with
latitude. For example, in this case the area covered by a 0.025 x 0.0.25
degree grid is 3.7 km2 in the north of the study area as compared with 4.6 km2
in the south and iii) and any rounding up of values or potential inaccuracies
associated with particular polygons will be propagated across different grid
squares.
Mapped Outputs
Examples of maps which can be produced on the basis data collected during
the pilot study, for all the vessels interviewed and various subsets are
provided below. These as follows:
a) Monetary value, gross vessel income from fishing – all vessel size
classes – all fishing gears (map1);
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b) Number of unique boats fishing – all vessel size classes - all fishing
gears (map 2);
c) Number of unique boats – vessels under 10 metres – all fishing gears
(map 3);
d) Standardised sum of percentage values - all vessel size classes – all
gears (map 4);
e) Standardised sum of percentage values - creel fishing vessels - all
size classes (map 5);
f) Number of employees on vessels - all vessels size classes - all
methods (map 6);
g) Number of employees for vessels under 10 metres fishing under 10 m
– target species brown crab (map 7), and;
h) Monetary value – all vessel size classes - target species lobster (map
8).
Commentary
The fishing industry’s response to the request for information and the data
collected during the ScotMap pilot study in the Pentland Firth and Orkney
waters suggest that the approach can be successfully applied to derive fine
scale and spatially resolved information about fishing activity. The methods of
analysis developed for the pilot have allow us to aggregate information
provided by numerous individuals to map fishing activity in terms of value and
usage and to identify areas supporting particular fisheries. Any interpretation
or use of the outputs needs, however, to take account of the information on
which outputs are based, particularly the extent to which it
represents/captures all the relevant fishing activity within the area.
This pilot study was based on interviews with skippers of locally registered
vessels in Kirkwall and Orkney which fish in Pentland Firth and Orkney
waters. Many are small boats (<15 m) which are based and fish locally,
mainly in inshore waters. Crab and lobster fisheries using creels are
particularly important. There are other larger vessels, based locally, which
fish further offshore (outside the study area) for shellfish and demersal fish
species and equally there will be other some other vessels, both large and
small which fish within the area which are not locally based.
In an attempt to assess the extent to which the vessels interviewed during the
pilot study represent fishing activity in the Pentland Firth and Orkney waters
strategic area, we extracted vessel data landings statistics reported for
statistical rectangles 47E6, 47E7, 46E6, and 46E7 in 2009 and 2010. For
vessels less than 15 m in length those interviewed for Scotmap accounted for
over 80% of the landings (tonnage all species) in both years. Vessels over 15
m accounted for only 5-7% of the tonnage reported for these rectangles in
these years. We consider the under 15 m vessel category to be reasonably
well sampled, the larger vessel category inadequately sampled. The maps will
not include activity by vessels fishing but not registered in the area. This
should be borne in mind in relation to the comments below.
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Maps from the pilot study indicate that all of the Pentland Firth Orkney waters
are fished to a greater or lesser extent. On the basis of the data collected
during interviews, it is possible to distinguish areas of relatively high fishing
activity and/or value. For example, maps based on all vessel data (such as
map 1) indicate that some inter-island waters are associated with higher
levels of usage (numbers of boats) and high earnings, when compared to the
western part of the Pentland Firth which appears to be less intensively fished.
However, this most likely reflects poor sampling of vessels fishing in this area.
For maps based on all vessel data, there is a close spatial correlation
between the number of boats (map 2) and the number of employees (map 6).
This is to be expected as the number of employees is essentially a function of
boat. This ‘number of employees’ map, however, combines data from
relatively few larger (>15 m) trawlers, which typically have 6-8 crew and
numerous small, single or two man vessels. Thus care needs to be taken in
when interpreting spatial patterns particularly if vessel length classes or
different types of fishing activity are not equally represented in the data.
Map 3 showing the number of boats under 10 m indicates, as might be
expected, higher usage near coasts and in some of the inter island areas.
Many of these vessels are small creelers with limited range and which fish all
year round on specific local grounds.
There is a reasonable spatial correlation between all vessel monetary value
(map 1) and number of boats (map 2), with relatively high values mapping in
inter-island and some coastal areas. It is likely that this reflects both usage
(numbers of boats) and the relatively high value associated with particular
target species such as lobster and scallop, important in the areas.
Considering data subsets where fishermen have identified lobster as the main
target species (map 8; note the different bin scales), the most valuable areas
map somewhat differently, being along the west and south-east coasts of
mainland, in the Pentland Firth, and around North Ronaldsay.
The maps of sum of percentage values for all vessels (map 4) and creel
fishing vessel (map 5) are in quite similar, reflecting importance of creel
fishing and its representation in the interview sample. Creel fishing occurs
over a wide sea area but waters close to the coast tend to account for higher
percentage values than those offshore waters. This is particularly true for the
in sea areas north of Kirkwall, around Westray and Papa Westray, and around
North Ronaldsay. This indicates that some of the most remote communities in
Orkney Isles rely on relatively small sea areas for a large proportion of their
vessels’ incomes.
Evaluation
The data collected in this study have been analysed to provide spatial
resolved information at fine spatial scales. Prior to the study, for vessels
under 15 m, the only data available to assess the importance of fishing activity
are landings and effort data as reported at the ICES statistical rectangle level.
Although it is possible to use statistics (e.g. reported landings at the stat
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rectangle level), and local knowledge to assess the extent to which the
interview sample is likely to have captured relevant fishing activity within
broad areas, there is no direct means to do this at the sub rectangle level or to
assess the accuracy of the spatial information provided by individuals. Given
that the information was freely given by fishermen who defined their fishing
areas in different ways with varying degrees of spatial resolution, with the aim
of contributing to an overall picture, it is not particularly appropriate to
question its validity. It is what is colloquially referred to as soft data - what
people told us.
There is a need, however, to develop means to evaluate the combined data
sets and maps in such a way that fishing communities and those using the
data can be confident that they provide a reasonable representation of fishing
activity and that those using outputs are aware of any inconsistencies or
known limitations. There are various options to do this, some of which have
been investigated during the course of the pilot. Various mapped outputs
have been made available to the steering group, and others with local
knowledge, including those involved in the data collection, have provided
comment. Looking ahead, local focus groups consisting of fishermen’s
representative and contributors to the study are being considered.
Limitations of the data
When using the results of the ScotMap pilot or any subsequent extended
study, to inform marine spatial planning, it will be important not to rely solely
on measures of absolute monetary value. It is recognised in some areas
where income from fishing has a relatively low absolute monetary value,
fishing may nevertheless play a crucial role supporting small rural
communities. The data collected as part of Scotmap interviews, could
usefully support a wider analysis of economic importance of fishing in
supporting communities, if used in conjunction with other information on
employment in these areas.
The maps produced as a result of the pilot are effectively summaries or
snapshots, based on fishing activity over the past five years. The spatial
mapping to some extent assumes that distributions are reasonably stable both
in space and time. For less mobile shellfish species which have specific
habitat requirements, and are mainly caught in static gears, the assumption of
spatial stability is probably reasonable. Spatial distribution of fishing using
more mobile gears e.g. by trawling and dredging is more likely to be more
influenced by fish distribution and abundance. Fisheries change and in either
case the numbers boats fishing for different species or species combinations
and the value of landings are likely vary over time, in relation to many factors
including abundance, market prices and fishing opportunities.
Future work
Further work to fully evaluate the data collected during the Pentland Firth
Orkney Waters pilot is required before final versions of the maps with
quantitative information can be published. This will include further analyses to
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assess the extent to which the value of fishing in the relevant areas has been
captured and some additional checking of input data and the code which
generated the gridded data sets. It is important that the fishing industry have
an opportunity to comment on the aggregated data and maps. Further
evaluation by industry representatives is planned.
Numerous data sets were generated from the analyses and it would be
possible to combine the data in different ways to produce others. Different
vessel size category splits, summarising information for all vessels under 15
m rather than all vessels interviewed, are planned. Seasonal patterns of
usage have not to date not been investigated, although these are possible
from the data collected. Different combinations of species should be
considered, particularly for the creel fisheries which often take a mixture of
species. Consideration needs to be given to those data sets which will be
most representative of fishing and most informative for the purposes of
planning.
Currently, Marine Scotland plans to roll out the ScotMap approach in the rest
of Scottish waters during 2012, focussing on vessels under 15 m.
Marine Scotland
June 2012
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