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Publication - Impact assessment

Planning Scotland's Seas: 2013 - The Scottish Marine Protected Area Project – Developing the Evidence Base for Impact Assessments and the Sustainability Appraisal Final Report - Appendix E - Marine Site Reports

Published
19 August 2013
Part of
Marine and fisheries
ISBN
9781782567585

This is Appendix E for the pMPA Impact and Sustainability Report containing the detailed site by site reports. Published separately due to size.

View supporting documents Supporting documents

Papa Westray ( PWY)

Site Area (km 2): 35

Site Summary

Table 1. Summary of Proposed Protected Features, Data Confidence and Conservation Objectives [ PWY]
Proposed protected features
Biodiversity Features
Black guillemot.

Geodiversity Features
Marine Geomorphology of the Scottish Shelf Seabed - sand wave field.

Site Description
The Papa Westray MPA proposal in Orkney, far north of Scotland, covers the existing SSSIs and SPA in the region that protect breeding seabird species. The MPA proposal is a 2km marine extension of the existing terrestrial SSSI boundaries.
Summary of confidence in presence, extent and condition of proposed protected features and conservation objectives
Proposed Protected Feature Estimated Area of Feature (by scenario) (km 2) Confidence in
Feature Presence 		Confidence in
Feature Extent 		Confidence in
Feature Condition 		Conservation Objective and Risk
Biodiversity Features
Black guillemot *Lower: 32.93
Intermediate: 32.93
Upper: 32.93		 Yes (Seabird 2000 census) Yes Not known Conserve
Geodiversity Features
Marine Geomorphology of the Scottish Shelf Seabed - sand wave field 0.64 Yes (Defra - led research, 2009) Partial - data is coarse resolution Not known Conserve
Key: * Estimated area based on best available data
References:
Area of Feature: GeMs
Confidence in feature presence and extent: SNH (2012m)

Summary of Costs and Benefits

Table 2a. Site-Specific Economic Costs on Human Activities arising from the Designation and Management of the Site as an MPA (present value of total costs over 2014 to 2033 inclusive) [ PWY]
Human Activity Cost Impact on Activity
Lower Estimate (£Million) Intermediate Estimate (£Million) Upper Estimate (£Million)
Quantified Economic Costs (Discounted)
Energy Generation 0.009 0.009 0.107
Total Quantified Economic Costs 0.009 0.009 0.107
Non-Quantified Economic Costs
Energy Generation
  • Costs of project delays during consenting; risk of deterrent to investment.
  • Costs of project delays during consenting; risk of deterrent to investment.
  • Costs of project delays during consenting; risk of deterrent to investment.
Note: For detailed information on economic cost impacts on activities, see Table 4.
Table 2b. Site-Specific Public Sector Costs arising from the Designation and Management of the Site as an MPA (over 2014 to 2033 inclusive) [ PWY]
Description Public Sector Costs
Lower Estimate (£Million) Intermediate Estimate (£Million) Upper Estimate (£Million)
Quantified Public Sector Costs (Discounted)
Preparation of Marine Management Schemes None None None
Preparation of Statutory Instruments None None None
Development of voluntary measures National assessment National assessment National assessment
Site monitoring National assessment National assessment National assessment
Compliance and enforcement National assessment National assessment National assessment
Promotion of public understanding National assessment National assessment National assessment
Regulatory and advisory costs associated with licensing decisions 0.001 0.001 0.003
Total Quantified Public Sector Costs 0.001 0.001 0.003
Non-Quantified Public Sector Costs
None identified.
Table 2c. Summary of Social Impacts and Distribution of Quantified Impacts arising from the Designation and Management of the Site as an MPA (over 2014 to 2033 inclusive) [ PWY]
Key Areas of Social Impact Description Scale of Expected Impact across Scenarios, Average (mean no. of jobs affected) Distributional Analysis
Location Fishing Groups Predominantly Affected Social Groups Affected
Region Port Rural/ Urban/ Island Gear Types Most Affected Vessels most affected Crofters Ethnic minorities With disability or long term sick
None identified (Commercial Fisheries).
If any energy generation developments do not proceed as a result of designation (due to additional costs, project delays, loss of investor confidence), there may be significant social impacts due to job losses (non-quantified).
Table 2d. Site-Specific Benefits arising from the Designation and Management of the Site as an MPA (over 2014 to 2033 inclusive) [ PWY]
Benefit Description
Ecosystem Services Benefits (Moderate and High Benefits) Relevance Scale of Benefits
Non-use value of natural environment Low Nil - Moderate
Other Benefits
Tourism Higher biodiversity due to designation, and presence of designations, may attract more tourism activity to local economy.
Contribution to ecologically coherent network See report Section 7.5.
Note: For detailed information on ecosystem services benefits, see Tables 9 and 10. For detailed information on other benefits, see Table 5 (activities that would benefit) and Table 8 (contribution to ecologically-coherent network).

Summary of Overlaps and Interactions between Proposed Designated Features and Human Activities

Table 3. Overlaps and Potential Interactions between Features and Activities under different Scenarios, indicating need for Assessment of Cost Impacts on Human Activities from Designation of the Site as an MPA [ PWY]
Aggregates Aquaculture (Finfish) Aquaculture (Shellfish) Aviation Carbon Capture & Storage Coastal Protection Commercial Fisheries Energy Generation Military Activities Oil & Gas Ports & Harbours Power Interconnectors Recreational Boating Shipping Telecom Cables Tourism Water Sports
Biodiversity Features
Black guillemot - - - - - - L/I/U L/ I/ U - - - L/I/U L/I/U - - L/I/U L/I/U
Geodiversity Features
Marine Geomorphology of the Scottish Shelf Seabed - sand wave field Not considered to be sensitive at the levels of exposure expected from human activities; thus, not considered in the context of management.
Note: L = Lower Scenario; I = Intermediate Scenario; U = Upper Scenario. Normal font indicates that there is an overlap between the activity and proposed designated feature under that scenario, bold indicates that the overlap results in a potential interaction between the activity and proposed designated feature that has resulted in cost impacts under that scenario.
For detail of management measures assessed under each scenario for each activity, and results of the cost estimates, see Table 4.

Human Activity Summaries

Human activities that would be impacted by designation of the site as an MPA

Table 4a. Energy Generation [ PWY]

There are no energy generation activities currently operating within the PWY proposed MPA boundary or corresponding buffer zones. Thus, economic costs and management measures associated with energy generation in this proposed MPA are described in light of known possible future developments.

Within the PWY proposed MPA boundary, a tidal energy generation Area of Search (AoS) overlaps the MPA feature 'black guillemot' under the upper extent scenario only. One potential future export cable route for a different tidal energy generation AoS overlaps the black guillemot MPA feature under all scenarios. The 5km buffer zone of a wave energy generation AoS also overlaps the black guillemot MPA feature under the upper extent scenario only.

Given black guillemot are of medium sensitivity to barrier to species movement, death or injury by collision, sub-surface abrasion/penetration, underwater noise and changes in water clarity and water flow (tidal current), it is feasible that additional management costs will be incurred as a result of this MPA designation. The region encompasses an existing RSPB reserve, specifically assessing black guillemot populations. Annual bird counts and occasional guided walks through the breeding season are undertaken by RSPB, who also manage the reserve to support conservation of breeding seabirds.
Economic Costs on the Activity of Designation of the Site as an MPA
Lower Estimate Intermediate Estimate Upper Estimate
Assumptions for cost impacts
  • Additional licensing costs to assess potential impacts black guillemot within 1km of proposed activities.
  • Additional licensing costs to assess potential impacts black guillemot within 1km of proposed activities.
  • Additional licensing costs to assess potential impacts to black guillemot within 5km of proposed activities; and
  • Additional survey costs incurred to inform new licence applications.
Description of one-off costs
  • Additional assessment costs for licence application - £12k. Application estimated for submission in 2024 (tidal energy AoS export cable).
  • Additional assessment costs for licence application - £12k. Application estimated for submission in 2024 (tidal energy AoS export cable).
  • Additional assessment costs for licence application - £12k per licence application (up to 3 in total). Application(s) estimated for submission in 2024 (tidal energy AoS, tidal energy AoS export cable and wave energy AoS); and
  • Additional survey costs £5k per km 2 of development (tidal energy AoS, 22km 2) and per linear km of development (tidal energy AoS export cable, 1km).
Description of recurring costs
  • None.
  • None.
  • None.
Description of non-quantified costs
  • Costs of project delays during consenting; risk of deterrent to investment.
  • Costs of project delays during consenting; risk of deterrent to investment.
  • Costs of project delays during consenting; risk of deterrent to investment.
Quantified Costs on the Activity of Designation of the Site as an MPA (£Million)
Total costs (2014-2033) 0.012 0.012 0.151
Average annual costs 0.001 0.001 0.008
Present value of total costs (2014-2033) 0.009 0.009 0.107
Total costs = Sum of one-off costs and recurring costs for the site summed over the 20 year period.
Average annual costs = Total costs divided by the total number of years under analysis ( i.e. 20).
Present value of total costs = Total costs discounted to their current value, using a discount rate of 3.5%.

Human activities that would benefit from designation of the site as an MPA

Table 5. Human Activities that would Benefit from Designation of the Site as an MPA [ PWY]
Activity Description Lower Estimate Intermediate Estimate Upper Estimate
Tourism Coastal areas are well represented when considering the locations of various tourist related sites within Scotland with a range of site types present in all regions including the North. Where significant impacts to recreational boating or water sports have been identified for the site, there could also be consequential impacts on tourism. Tourism may benefit from the designation of the MPA as an added attraction to the destination. In addition, there may also be indirect benefits to tourism as a result of benefits to some water sports activities, for example, recreational angling and diving. The intermediate management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower estimate. The upper management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower and intermediate estimates.
Water Sports - Scuba Diving One wreck dive location overlaps with the PWY proposed MPA (Tomalina). This site overlaps with 'Black Guillemot' under all scenarios. No management restrictions upon this activity are required. The added protection offered by an MPA designation and management measures placed upon sector activities may increase the aesthetic attraction of the dive sites through an improved marine ecosystem and a reduction in degradation to the wreck sites. The intermediate management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower estimate. The upper management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower and intermediate estimates.
Water Sports - Sea Angling Sea angling is carried out along most of the Scottish coastline within 6nm ( SSACN). The PWY proposed MPA is a coastal site and is located wholly within 6nm of the UK coastline. Therefore sea angling overlaps with all features and there corresponding extents within the proposed MPA. No management restrictions upon this activity are required. Sea anglers could benefit from any on-site positive effects resulting from the MPA designation and corresponding management restrictions on sector activities including an increase in the size and diversity of species which in turn is expected to increase the attraction of a site for anglers (Fletcher et al. 2012). The intermediate management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower estimate. The upper management measures applied to sector activities will result in an increase of the beneficial impacts seen in the lower and intermediate estimates.

Human activities that are present but which would be unaffected by designation of the site as an MPA

Table 6. Human Activities that are Present but which would be Unaffected by Designation of the Site as an MPA [ PWY]
Activity Description
Commercial Fisheries Otter trawls and pots (over-15m vessels) and pots, hand fishing, dredges and other gears (under-15m vessels) operate within the PWY proposed MPA. The value of landings from the PWY area was £600 (over-15m vessels) and £27,700 (under-15m vessels, indicated from ICES rectangle landings data) (annual average for 2007-2011, 2012 prices). Provisional ScotMap data indicate that the annual average earnings from the PWY proposed MPA was £26,500, with 95% of this from pots (predominantly for lobster and velvet crab). Landings from the over-15m vessels were into Peterhead (51% by value) and Scrabster (49%). Black guillemot, other proposed designated biodiversity feature for the site, are not thought to be sensitive or vulnerable to pressures from fishing gears, therefore no management measures for fisheries are proposed and no cost impacts are anticipated.
Power Interconnectors One interconnector is within 1km of the PWY proposed MPA. The interconnector is within 1km of Black Guillemot (all scenarios). No cost impacts are foreseen, as it is assumed that there will be no review of the existing consents.
Recreational Boating One Crown Estate mooring is present within the PWY proposed MPA that overlaps with feature extents for black guillemot under all scenarios. Black guillemot is not, however, considered sensitive to pressures associated with anchoring and therefore no management costs are expected.

Social and Distributional Analysis of Impacts from Designation of the Site as an MPA

Table 7a. Identification of Social Impacts from Designation of the Site as an MPA and their significance (over 2014 to 2033 inclusive) [ PWY]
Sector Economic Impacts Economic Costs and GVA ( PV) Consequent Social Impacts Mitigation Significance of Social impact
Energy Generation Additional operational costs Quantified Economic Costs (2014-2033): £0.009 - 0.107m Future employment opportunities - if increased operational costs associated with management measures render projects unviable or restrict project size there will be a negative impact on economic activity and job creation in this sector. xx (under the upper scenario only)
Costs associated with delays during the consenting process Loss of investor confidence (developments do not proceed) Not Quantified

Future employment opportunities - if the delays deter investments there will be a negative impact on economic activity and future job creation in this sector.

Environment - possible negative impact in relation to climate change and the ability of the Scottish Government to meet its 2020 renewables targets, decarbonisation targets and climate change targets. There would also be consequent financial implications of climate change impacts.

This impact is uncertain and is only likely to arise under the upper scenario. JNCC's current advice is that the intermediate scenario represents their best view on management requirements.

 xxx (under the upper scenario only)
Impacts: xxx - significant negative effect; xx - possible negative effects; x - minimal negative effect, if any; 0 - no noticeable effect expected.
Table 7b. Distribution of Quantified Economic Costs for Commercial Fisheries and Fish Processors (assuming zero displacement of fishing activity) - Location, Age and Gender [ PWY]
Sector/Impact Location Age Gender
Region Ports Rural, Urban, Coastal or Island Children Working Age Pensionable Age Male Female
None identified.
Impacts: xxx - significant negative effect; xx - possible negative effects; x - minimal negative effect, if any; 0 - no noticeable effect expected.
Table 7c. Distribution of Quantified Economic Costs for Commercial Fisheries and Fish Processors (assuming zero displacement of fishing activity) - Fishing Groups, Income Groups and Social Groups [ PWY]
Sector/Impact Fishing Groups Income Groups Social Groups
Vessel Category <15m >15m Gear Types/Sector 10% Most Deprived Middle 80% 10% Most Affluent Crofters Ethnic minorities With Disability or Long-term Sick
None identified.
Impacts: xxx - significant negative effect; xx - possible negative effects; x - minimal negative effect, if any; 0 - no noticeable effect expected.

Potential Contribution of the Site to an Ecologically-Coherent Network

Table 8. Overview of Features Proposed for Designation and how these contribute to an Ecologically Coherent Network of MPAs [ PWY]
Feature Name Representation Replication Linkages Geographic Range
and Variation 		Resilience
Black guillemot Provides representation of black guillemot in OSPAR Region II. Represents one of six areas representing black guillemot. Not currently understood for black guillemot. The MPA area is within the core range of the black guillemot. Although not listed by OSPAR as threatened and/or declining, there is evidence of decline. The potential MPA areas may increase resilience.
JNCC (pers. comm.); SNH and JNCC. (2012). Assessment of the potential adequacy of the Scottish MPA network for MPA search features: summary of the application of the stage 5 selection guidelines.
Available online from: http://www.scotland.gov.uk/Topics/marine/marine-environment/mpanetwork/engagement/270612.

Anticipated Benefits to Ecosystem Services

Table 9. Summary of Ecosystem Services Benefits arising from Designation of the Site as an MPA [13] [ PWY]
Services Relevance
to Site 		Baseline Level Estimated Impacts of Designation Value Weighting Scale of Benefits Confidence
Lower Intermediate Upper
Fish for human consumption Moderate. Habitats make contribution to food webs. Stocks not at MSY Nil Nil Nil Low. Site fishing grounds have low value Nil High
Fish for non-human consumption Stocks reduced from potential maximum Nil Nil Nil
Gas and climate regulation Nil Nil Nil Nil Nil Moderate Nil High
Natural hazard protection Minimal Low Nil Low Nil High
Regulation of pollution Minimal Low Nil Nil Low - Moderate, for recreational use of waters Nil High
Non-use value of natural environment Low - protected feature and contribution of the site to MPA network, have non-use value. Non-use value of the site may decline, but probably stable Nil, no change in key characteristics of site Low - protection of feature of site from minor decline Moderate - protection of feature of site from decline, possibly allowing some recovery Low, although black guillemot is charismatic species, it is site's only feature Nil - Moderate Moderate
Recreation Low 1 active dive site Nil Minimal - slightly higher biodiversity encountered by divers and boating Low Minimal Moderate
Research and Education Minimal Nil - Low Nil Minimal Low Minimal Moderate
Total value of changes in ecosystem services Nil for lower scenario, Minimal for upper scenario Low Moderate

Human Activities which Occur within the Proposed MPA Papa Westray

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