Regional Inshore Fisheries Group: evaluation

History of Regional Inshore Fisheries Groups

Overview

The Scottish Government (SG) has taken a voluntary partnership approach to inshore fisheries management, in the form of Inshore Fisheries Groups (IFGs), later renamed as Regional Inshore Fisheries Groups (RIFGs). There have been four phases of these groups.

Phase 1 began in 2009 with the launch of six pilot Inshore Fisheries Groups across six regions. The regions were the South East, the Moray Firth, the North West, the Clyde, the Small Isles and Mull, and the Outer Hebrides. This first phase ran until 2012.

Phase 2 began in 2013 when the groups were formally established. The regional groups were the East Coast, the Moray Firth and North Coast, the North West, the South West, the Outer Hebrides, and Orkney. The second phase ran until 2015.

Phase 3 began in 2016 when there was a refresh of the network and the groups were renamed Regional Inshore Fisheries Groups. The regional groups were the North and East Coast, the West Coast, the Outer Hebrides, and Orkney. The third phase ran until 2022.

Phase 4 began in 2023 when there was a second refresh of the network. The West Coast group was split into the North West and the South West, and a Shetland RIFG was established. The North and East Coast group, and the Outer Hebrides and Orkney groups remained the same.

Phase 1 (2009-2012): Pilots

The SG began a strategic review of inshore fisheries in Scotland in 2002 which culminated in the publication of ‘A Strategic Framework for Inshore Fisheries in Scotland’ in 2005^[9]. The review was led by the Scottish Inshore Fisheries Advisory Group (SIFAG)^[10] and noted that the management process at that time was that a review was undertaken every three years to assess whether there was a need to revoke, adjust or introduce management measures in inshore waters. A number of limitations was highlighted in the report: the decision makers were distant from the process on the ground and measures introduced were mainly reactive rather than taking a proactive planning approach to manage opportunities.

The 2005 report therefore advised the creation of a network of inshore fisheries groups around Scotland to plan the management of inshore fisheries locally. Groups were to develop local objectives and local management plans to deliver the objectives. In developing the latter, the groups would select appropriate management measures which would be approved by SIFAG and then the SG who would deliver legislation. It was also proposed that the inshore groups could apply for Regulating Orders to implement the plans. A Regulating Order confers on its grantee the right to regulate fishing for a named species in a defined area, for a specified limit of time. Currently Shetland is covered by a Regulating Order.

The review announced that the SG had committed to funding the groups, but consideration would be given to bring together organisations to establish a funding stream for project work. Industry was also expected to contribute a nominal amount to support the costs of the groups, but this would not be the primary income stream.

The groups would cover out to 6 NM. Commercial fishers were to form an ‘executive core’ and involve other stakeholders (processors, environmental interests, community members, and other marine users) who would be impacted upon by fishing activity. In practice, the structure would have an executive core of fishers and other stakeholders drawn in as experts or additional members.

Following the 2005 review, three pilot inshore fisheries groups (IFGs) were established in January 2009: Outer Hebrides, Clyde, and South East; followed by another three in spring of that year: North West, Mull and Small Islands, and Moray Firth. These were established as a new mechanism for local involvement in management, and the early documentation shows a desire that they would reshape the landscape of inshore fisheries decision making and put fishers at the heart of it.

As advised, each IFG was made up of an Executive Committee and an Advisory Group. The Executive Committee was primarily made up of fishermen’s associations with an active membership in the area, and responsible for debating issues and trying to identify mutually-agreed management proposals. The Advisory Group was made up of broader stakeholders who provided wider and specialist guidance. While the membership of each Advisory Group varied between IFG area, groups included those concerned with environmental issues (principally Scottish Natural Heritage, as then known, Scottish Environment Link and the Scottish Environment Protection Agency).

Each IFG had an independent Chair and a Co-ordinator who were responsible for delivering fisheries management plans (FMPs)^[11]. These plans were delivered to government over the course of 2009-2011 and measures within those plans were consulted on in 2013. The consultation on measures proposed within the FMPs is discussed in the following section.

Also taking place during 2009-2012, the then Cabinet Secretary for Rural Affairs and the Environment appointed an independent inquiry into fisheries management which reported in 2010^[12]. The inquiry reported that ‘The earlier lack of enthusiasm and opportunity for effective inshore fisheries management has been redeemed by the decision in 2009 to set up Inshore Fisheries Groups’^[13]. However, the panel were concerned that IFGs non-statutory status and ‘narrow remit… could limit their influence’ when it came to marine spatial planning and therefore could be overshadowed by the then recently established Marine Planning Partnerships. They therefore recommended that IFGs were given powers to implement specific measures within districts and consideration was given to extending their remit to 12 nautical miles. The inquiry also recommended establishing regional fisheries committees to unite- all fisheries groups – Fisheries Associations (FAs), merchants, processers, exports, producer organisations, IFGs, local authorities and enterprise boards, and Marine Scotland science, fisheries and compliance departments – to assist Marine Scotland with management plans or strategies.

In January 2012, the SG announced continued support for the IFGs for another three years^[14].

Phase 2 (2013-2015): Consultation and first evaluation

Formal establishment, IFMAC, and analytical projects

In 2013, the pilot regions were replaced by six new IFG regions. The regions were: the South West, North West, East Coast, the Outer Hebrides, and the Moray Firth and North Coast, and Orkney Sustainable Fisheries Ltd (OSF) which was recognised by Marine Scotland as the local de facto IFG for Orkney^[15]. OSF was established in 2006 to run the local lobster hatchery and carry out research projects on the local shellfish populations. Shetland operated in 2013, and still does operate, under the Shetland Shellfish Management Organisation and a Regulating Order which came into place in 1999 and gives it the authority to run the commercial shellfish fisheries out to 6NM^[16].

The IFGs were organised similarly to the pilot groups^[17]. Funding was provided by the SG for a Chair, a National Liaison Officer or Outreach Officers, and SG staff time. Meetings were to be held four times a year and sub-groups could be formed to address local issues. In conjunction with the SG, the IFGs were to deal with issues connected to the development of:

• Regional policies and initiatives relating to management and conservation of inshore fisheries, including impacts on the marine environment and the maintenance of sustainable fishing communities
• Measures designed to better conserve and sustainably exploit stocks of shellfish and sea fish (including salmon) in local IFG waters
• Proposals for and approaches to Marine Scotland, Inshore Fisheries Management and Conservation Group (IFMAC), Marine Planning Regions, other IFGs, and others with an interest in the fishery in relation to inshore fisheries management.

In addition, by 2013 the Fisheries Management and Conservation Group (FMAC) had been established^[18]. FMAC is the co-management stakeholder forum concerned with all issues connected to sea fisheries management. The term ‘co-management’ may mean different things to different stakeholders. In relation to FMAC, the term ‘co-management’ does not mean that stakeholders undertake management responsibility, but that ‘FMAC members will work together to develop recommendations for Ministers, using their collective knowledge and expertise, seeking input from their members, tasking sub-groups, and delivering consensus wherever possible’^[19]. However, it was felt that FMAC was not entirely suitable for inshore fisheries management as it focused on issues relating primarily to offshore fisheries sector^[20]. Therefore in September 2013, an inshore FMAC group (IFMAC) was established to allow inshore issues to be addressed by representatives of fishers operating in inshore waters. The group would have no role in managing or supervising the IFGs but would take decisions and, on request, make recommendations to the Cabinet Secretary for Rural Affairs and the Environment on matters connected to inshore management.

One example of IFMAC helping deliver IFG proposals is seen in one of the agenda items at the first IFMAC meeting in September 2013. All IFG FMPs had flagged the need for an evidence base, including data on fishing locations, effort, stock, and the environment. A presentation was given by an IFG Coordinator and a university fisheries research unit about what routes could be taken to improve the evidence. Following this, in September 2014, IFMAC were notified that £1.4 million of funding was approved by the European Fisheries Fund (EFF) for a project which was to be led by Seafish and managed by the Marine Alliance for Science and Technology for Scotland (MASTS)^[21]. The project ‘Evidence Gathering in Support of Sustainable Scottish Inshore Fisheries’ ran from 2014-2015 and comprised 7 work packages for which reports are available^[22].

Moving forward, in January 2015 a technical report was published by the SG on ‘Management of The Scottish Inshore Fisheries; Assessing The Options for Change’^[23]. The report stemmed from demand from IFGs for more data analysis on inshore matters. The report presented economic analysis carried out by an external consultancy on two inshore policy options: a 0-1NM, and a 0-3NM restriction on the use of mobile gear. The report took a hypothetical approach and therefore there was a level of uncertainty with the outputs. The fishing industry were concerned about this level of uncertainty and how the report could be used. The SG did not take forward new management measures based on the report's findings.

Consultation on proposed fisheries management measures

The FMPs submitted by the six IFG pilots in 2011 were reviewed by the Scottish Government and management measures were ready for consultation in 2013. The consultation on management measures went live on the 15th August and ran until the 13th October 2013.^[24] The initiatives included in the consultation were those deemed to have the potential for environmental impact. A Strategic Environmental Assessment (SEA) was published alongside the consultation^[25]. The initiatives assessed focused on sustainability accreditation, management of fish stocks (e.g. minimum sizing), establishing a new fishery, fishery development, and general fisheries management. Initiatives varied between regions, with no national initiatives included. The SEA Post Adoption Statement was published in July 2014^[26].

Further consultations were issued by the Scottish Government on crab and lobster landings into the Outer Hebrides in 2014^[27] and into Orkney in 2015^[28]. And a further consultation on landing controls for crab and lobster across the rest of the Scottish coast in 2016^[29]. The Scottish Government also implemented Scottish Statutory Instruments to deliver some of the management measures proposed by IFGs^[30], including but not limited to:

• SSI 28/2015 – The Little Loch Broom Scallops Several Fishery Order 2015
• SSI 30/2015 – The Loch Ewe, Isle of Ewe, Wester Ross, Scallops Several Fishery Order 2015
• SSI 183/2015 – The Outer Hebrides (Landing of Crabs and Lobsters) Order 2015
• SSI 50/2016 - The Orkney Islands (Landing of Crabs and Lobsters) Order 2016

The delivery in this phase of IFGs is important to note. The IFGs generated, through debate and discussion papers, proposals for a consultation and then helped push forward management measures in the inshore space. Again, the causality behind some measures is not completely clear and some measures could have gone ahead without the IFGs support. But it is clear that measures, and pilots, were implemented that had support from discussion and evidence presented by local IFGs. There was also a clear process for IFGs to follow. This included government calls for proposals. These appear vital in galvanising proposals being developed and subsequent change.

In addition to this formal legislative route, IFGs could carry out their own projects and access funding from the SG during this phase. For example, in 2015 the South West IFG ran two projects: a trial introduction of creel escape panels and a lobster v-notching scoping study^[31].

IFG Review and Inshore Strategy

IFMAC were notified in March 2015 that IFGs would be reviewed^[32]. Although the SG knew some long standing fisheries management issues had been addressed by IFGs, and there had been progress in developing the evidence base, there was criticism from several key stakeholders that IFGs were nothing more than ‘talking shops’. There was perhaps a growing appreciation that the mechanics of government were slower than the local level desire for change. It is important to note the ambition of the groups, for empowered local fishers and strong delivery. As shown in the previous section, some of this had been delivered. But with the National Marine Plan 1 on the horizon and the need for local engagement, Marine Scotland deemed it a good time to review the network.

Aegir Consultancy Limited were commissioned and the ‘IFG Stocktake: A Review of Inshore Fishery Groups in Scotland’ was presented to Marine Scotland in 2015^[33]. The review presents the perspectives gathered from 42 responses to a call for views. Views were from fishing associations (with 30 responses), IFG members and co-ordinators, Marine Scotland staff, and other public sector bodies. Respondents were asked about what was working well, suggested improvements and key ingredients to ensure fishing interests could contribute effectively to the management of inshore fisheries, and input into wider marine planning in the longer term.

Key insights emerged from the evaluation across the eight following themes:

• Structure: Marine Scotland, in collaboration with inshore stakeholders should revisit the IFG Role and Remit ensuring clarity of purpose, responsibility and expectation.
• Leadership: Marine Scotland should seek to better define the Chair’s role in light of any proposed IFG structure. This should include a review of the time allocated to the role as well as IFG support structures. It should be noted that this will have to be considered in light of Marine Planning requirements and any review of inshore boundaries.
• Promoting good management: Marine Scotland should consider building the evidence base around Inshore Fisheries learning from other examples of data collection and management frameworks.
• Boundary change: When considering the way forward with any IFG structure Marine Scotland should consider that the majority of respondents reported that they would like to see change to the current mainland IFG boundaries.
• Representative membership: While a review of Role and Remit is undertaken the membership of IFGs should also be considered particularly engaging with processing as well as Local Authorities and local Fisheries Local Action Groups (FLAGs)^[34] to ensure effective resource use.
• Value for money and resources: Marine Scotland should consider the use of shared resources across any IFG network including project and technical support. Integration to funding streams including FLAGs should be considered.
• Interaction outwith the IFGs: As marine planning structures become further developed the role of IFGs will be better defined. IFGs should seek to build closer relationships with Local Authorities and science providers to achieve the best value for money across Scotland. Marine Scotland, in consultation with inshore stakeholders, should look to clearly communicate the relationship and role for all of the key participants in inshore management allowing for better understanding and more effective use of limited resources
• Communication: Marine Scotland should encourage inshore stakeholder input to shape the programme of an inshore event which is relevant to as many prospective participants as possible. Marine Scotland should articulate a clear set of messages as to the purpose and expected outcomes of any inshore management structure.

Three options were presented: do nothing, disband the network, or make a fundamental change to the structure and operation of the IFG structure. The latter option appears to be the primary recommendation, with a need for a flexible approach recommended and changes according to the thematic discussions below.

Overall, the review looked primarily at the organisational aspects of IFGs, and does not provide many examples of delivery or impact; perhaps this reflects the delay in delivery following the development of FMPs. The review did not evaluate the extent to which fishers feel their views are being heard by government and if the outputs from the groups were being integrated into inshore fisheries management.

In the same year as the IFG review, the Scottish Government published an Inshore Fisheries Strategy in October^[35]. There were six strategy outcomes covering the themes: an updated legislative framework by 2020, an improved evidence base, better governance, responding to our national and international obligations, improved data, and maximising support from European funding.

Phase 3 (2016-2022): First refresh

Refresh

Following the 2015 review, the IFGs were renamed ‘Regional Inshore Fisheries Groups’ or ‘RIFGs’, as announced in the Spring 2016 network newsletter^[36]. The ambition was to address concerns raised in the review. The number of groups decreased from six to four, as the East Coast and Moray Firth and North Coast groups were merged to form the North and East Coast group and the two groups on the West were also merged. The Outer Hebrides remained the same and the Orkney group continued to function through the Orkney Sustainable Fisheries organisation. The Shetland Shellfish Management Organisation (SSMO) was also recognised as providing an RIFG function for the Shetland Islands.

A new remit was published in 2016, ‘Scottish Regional Inshore Fisheries Groups, Outline Structure and Functions’ and outlined the following changes which were made to the groups^[37]. RIFGs were to become the main route for engagement between fishers and MPPs. Shetland and Clyde MPPs were granted authority to create Regional Marine Plans in 2016 and 2017 respectively, and Orkney MPP was established in 2020^[38].

The outline document published in 2016 also emphasised that inshore fisheries management was to retain the ‘voluntary partnership approach’ of engaging local fishers through the RIFG network. The set up was similar to previous iterations:

• Attendees could include individual fishers as well as those who were members of a fishing association.
• RIFGs were to produce FMPs however it was acknowledged that local circumstances meant that RIFGs would develop outputs at differing rates.
• The organisational structure also remained similar: a Chair, administration support from the SG and a Management Committee of local fishers.
• The Chair could invite other industry partners and was also at liberty to establish an Executive Board, sub committees and work groups.
• Resource was from the SG and approaching other funding partners was encouraged.

In the 2016 refresh, the Marine Directorate also published detailed guidance on the decision making processes of RIFGs^[39]. Again this mentioned the role of FMPs in presenting priorities and management measures to the SG. In 2017, Orkney published their FMP^[40] and the FMPs from the other three were anticipated in the RIFG Spring 2017 newsletter^[41]. It is not clear if these FMPs were delivered in 2017 or 2018 but there are a few online published examples from later years. The North and East Coast RIFG published an FMP in 2019 which was an update from their 2017 FMP^[42]. The West Coast RIFG published a FMP in 2021^[43]. There is likely more FMPs which are now not available to view.

One example of delivery from 2016-2022 was within the West Coast RIFG. There were concerns about the status of the west coast scallop fishery and management proposals were developed. These proposals were investigated through a project with MRAG Ltd consultants and the Scallop Management and Conservation Strategy West Coast Waters report was published in July 2019^[44].

Inshore Fisheries Pilots

The Inshore Fisheries Pilot initiative was launched by Marine Scotland in 2017 and a consultation ran from 30 November 2017 until 22 February 2018 on five proposals^[45]. Following the consultation, three of the schemes were taken forward^[46]:

• Proposal 2: Mull Crabbing Box - a seasonal restriction on mobile gear fishing
• Proposal 4: Outer Hebrides - a restriction on creel numbers

The Mull crabbing box pilot was launched in October 2018. The project introduced a prohibition on mobile gear fishing and a limit on creel fishing effort in order to protect a brown crab fishery of local impact to Mull fishers in the period 1 October to 31 January. As of 2024, the pilot appeared to be achieving its objectives of reducing gear conflict.

The Outer Hebrides Creel Limitation Pilot (CLP) launched in November 2020, following the Creel Fishing Effort Study^[47]. The pilot set creel limits and maximum soak times by vessel length groups. A 2023 review of the pilot reported that 23% of fishers made changes to their fishing operations owing to the pilot, most of whom had reduced their creel numbers^[48].

Future Fisheries Management Strategy 2020-2030

The Future Fisheries Management Strategy was launched in December 2020^[49]. The strategy includes inshore waters and reiterated the co-management approach of FMAC, IFMAC and RIFGs. In March 2021, it was announced that the scope of the RIFGs had changed from covering out to 6 NM to covering out to 12 NM.

It should also be highlighted that in 2020 the United Kingdom left the European Union and there was a global pandemic. This shifted a lot of SG and RIFG resources to manage this ensuing changed environment and so goes someway to explain the reduced delivery of RIFGs from 2020-2022.

Phase 4 (2023-2024): Second refresh

A second refresh of RIFGs occurred in 2023, when new Chairs were appointed and a new remit was published^[50]. The new refreshed network became operational in May 2023. The West Coast region was split into two (North and South) and for the first time a Shetland RIFG was formed, following requests from stakeholders.

Much of the structure and function of the network remains the same: there is a management committee for each group, a secretary can be appointed and working groups can be formed. Each group is still responsible for developing FMPs. The process of using both voluntary co-management approaches, and statutory means via the Scottish Government still applies.

In April 2024, an Operational Plan for the network was published^[51]. The plan was developed by the Chairs and includes the following strategic objectives:

• Progressing towards and helping achieve sustainable management of inshore fisheries.
• Responding to planning decisions that affect the industry.
• Understanding and representing the views of fishers in meetings with Government Officials, Ministers, the Fisheries Management and Conservation (FMAC) Group, the Inshore Working Group, and relevant Scottish Marine Planning Partnerships.
• Engaging regularly with fishers at the coast within the RIFG area.

There are also seven measurable outputs presented covering engagement, regional plans, responding to consultations and marine license planning applications, and developing six local projects. Having outputs developed by the Chairs appears to be a change from previous arrangements. It also appears a positive change in that the estimation of what can be achieved has been decided by those most closely involved and therefore has higher likelihood of being delivered. The limitations of the network are however noted: no statutory basis, operational authority, nor direct budget.

The work of RIFGs was presented as four cluster: communications, management measures, trialling new technologies, and education. And examples of ongoing projects are provided. Again, the approach taken highlights one of the major advantages of having RIFGs: having a dedicated team of Chairs to engage regularly with the industry and present proposals to government.

An interim progress report was published in November 2024 outlining the activities of the refreshed RIFGs from 1 January to 30 June 2024. Engagement with fishers and other stakeholders has exceeded targets and there are eight projects underway across the four clusters mentioned above.