Wild Salmon Strategy Implementation Plan: annual progress report 2025

Appendix: Action Updates

Key:

action completed

continuous management action (i.e. no identified end point)

action in progress

* action in progress but behind the schedule originally envisaged in the Implementation Plan

Theme 1: Improving the condition of rivers and giving salmon free access to cold, clean water (27 actions)

Action 1.1 - Improvements will be made to 40 wastewater treatment works to address water quality issues

in progress

Studies and projects to deliver improvements as required are on track. A total of 24 Wastewater Treatment Works Water Quality licence reviews have now been issued (12 in the previous reporting period, 12 in this one) and 10 remain to be dealt with. 6 wastewater treatment works have been assessed as requiring no action.

Action 1.2 – Improvements will be made to 24 unsatisfactory intermittent sewage discharges to address water quality issues

in progress

As noted in last year’s report the target has been amended to 25 unsatisfactory intermittent sewage discharges. Studies and projects to deliver improvements as required are on track at 15 sites. 4 have been identified as requiring no action, and 6 have been delayed due to reprioritisation within the wider improving urban waters route map. This work will be picked up again as part of Scottish Water’s next investment planning cycle, which will cover the period 2027 to 2033.

Work is underway at 3 of the 15 sites, with a further 12 expected to progress towards works in 2026.

Action 1.3 – Improvement actions will be identified that prevent deterioration of water bodies in close proximity to forestry and logging activities

Completed during the 2024 report’s timeframe

Action 1.4 – Work with farms and land managers in 57 priority catchments to ensure compliance with regulatory standards

in progress

Work has been completed in 18 of the 57 catchments and is ongoing in 37 catchments to ensure compliance with the general binding rules (GBRs) for diffuse pollution. During 2025 SEPA completed 464 initial farm compliance visits and 299 revisits to non-compliant farms. Work will continue across the 57 priority catchments. 2 catchments remain in the scoping/planning stage with work to commence in 2026.

Action 1.5 – Effective regulation and management will be used to prevent water bodies deteriorating from good to less than good

in progress

SEPA continues to protect the water environment through application of the Controlled Activities Regulations and input to Land Use planning. This routine work will be continued in 2026.

Action 1.6 – Develop a strategic approach to water scarcity based on the lessons learned

continuous management action

SEPA continues to work closely with the Scottish Government and other partners to develop policy for managing water resources in the future. An improved and more accessible Water Scarcity webpage was launched by SEPA in Spring 2025.

SEPA plans to set out proposals for future of water resource planning as part of the consultation on River Basin Management Programme 4 (RBMP4) due in December 2026.

Action 1.7 – To deliver improvements as required in flows and levels impacted by hydropower schemes by reviewing licences

in progress

The focus in 2025 was to agree priorities and a timeline with operators to ensure the measures are delivered by 2027. Progress has been varied across Scotland. The priority moving into 2026 will be to work with operators and third parties to review licences (where appropriate) to agreed timelines to ensure mitigation is in place for the 2027 target date.

Action 1.8 – Develop and implement an integrated approach to riparian management to improve the resilience of rivers, water quality, river morphology, and the availability of habitat networks

Completed during the 2024 report’s timeframe.

Addendum – see also page 30 of Scotland's Forestry Strategy 2019-2029: Parliamentary progress report (1 April 2022 to 31 March 2025) published in January 2026. Scottish Forestry developed and implemented the principal elements of an integrated approach through a new multi-benefit riparian woodland target area, an enhanced Forestry Grant Scheme payment rate, and published UK Forestry Standard practice guidance.

Action 1.9 – Enhance the Forestry Grant Scheme to deliver better community engagement, improved biodiversity and increased value for money, including improved support for tree planting around rivers and streams

Completed during the 2024 report’s timeframe

Action 1.10 – Aid the recovery of salmon habitat through peatland restoration to improve water quality and reduce particulate organic carbon as part of the Scottish Government’s Peatland Restoration Programme

in progress

The Peatland ACTION Partnership has been working to restore 250,000 hectares of degraded peatland by 2030, and this target has now been expanded and extended in the Climate Change Plan: 2026-2040 to restore 400,000 hectares by 2040. In 2025-26, Peatland ACTION undertook work to restore over 15,000 hectares of peatland across Scotland by damming drains and revegetating eroded areas, meaning over 81,000 hectares have now been restored by the partnership since 2012.

The first in a series of rolling 5-year Peatland ACTION partnership plans was published on 15 December 2025, and it details the actions needed over the next five years to move towards the Climate Change Plan ambition.

The ongoing peatland restoration programme contributes to healthy rivers and benefits salmon populations by reducing sediment and dissolved organic carbon runoff into watercourses, helping to improve water quality and protect spawning gravels. Restoration also increases the water holding capacity of upper catchments which helps to stabilise river flows, increase resilience to drought by maintaining flows during dry periods and reducing flash flood events that can mobilise spawning gravels and reduce spawning success.

Action 1.11 – Minimise conflict between salmon recovery and beavers through a considered and dynamic approach to beaver translocations, including the development and support for management, mitigation and research within the context of Scotland’s Beaver Strategy 2022 - 2045.

continuous management action

The Fish and Fisheries subgroup of the NatureScot Beaver Advisory Group is developing a beaver dam assessment methodology which recognises the different needs of salmon, trout and other fish species. This process was supported by further consideration of the impact of beavers on wild Atlantic salmon by the Science and Evidence Board in 2025 and a review of impacts of beavers on Atlantic salmon is being progressed.

Action 1.12 – Expand our Protected Areas to at least 30% of the land surface and improve their condition, ensuring that they contribute to the ecological functioning of river catchments that support salmon

in progress

Following the publication of the Framework for 30x30 and Framework for Nature Networks, the first four Nature30 sites (Scotland’s Other Effective Area-Based Conservation Measures), were assessed and recognised in 2025: Loch Arkaig Pine Forest, the Findhorn Hinterland, Loch Wood and Knapdale. Together, these sites cover 3,730 hectares. In addition to NatureScot’s assessment, the proposals were subject to oversight by a panel of external participants. Learning from this process informed the development of the formal governance arrangements for future assessments and recognition decisions.

Nature30 recognition can contribute to wild salmon recovery where the long-term management of sites protects or restores the ecological functioning of salmon river catchments. Potential benefits include protection and restoration of riparian habitats, greater shading and resilience to rising water temperatures, reduced sediment and nutrient runoff, improved water retention and stronger habitat connectivity.

The first layer of the Big Biodiversity Layer was completed and published in 2025 and incorporates wild salmon data. It is available through NatureScot’s spatial data hub and, alongside subsequent layers, helps identify biodiversity hotspots and inform spatial priorities for conservation measures, including the delivery of 30x30.

No new freshwater pearl mussel Special Areas of Conservation were designated during 2025. Work to progress proposals for three such sites remained underway at the end of the reporting period.

Action 1.13 – Easement or removal of 84 active barriers (including those that support hydropower, public water supply and distilleries) to allow fish migration

in progress

Action 1.14 - Easement or removal of 94 historic barriers (including redundant weirs associated with historical industrial activity) to allow fish migration

in progress

Action 1.15 - Undertake a review of 66 barriers not covered by an impoundment licence under CAR (including bridges and culverts owned by local authorities and others) to ensure they allow fish passage

in progress

By the end of 2025, 388 fish barriers were included in the River Basin Management Programme (RBMP), an increase of 144 since 2021 and around 60% above the original RBMP3 programme of 244 structures.

Of these, 176 barriers have been assessed and screened out as requiring no action, generally because there is insufficient suitable habitat upstream, and works to remove or ease a further 28 barriers had been completed. During 2025 specifically, 61 barriers were scoped: 36 were screened out and 25 progressed to design and licensing. Works were completed at two barriers during the year.

At the end of 2025, 50 barriers remained at the scoping stage and 134 were at various stages of design, licensing and construction. Scoping, design and licensing will continue during 2026, including Scottish Government-funded work through Fisheries Management Scotland.

SEPA is on track to complete assessment and, where required, works for 266 barriers during RBMP3. By December 2027, 57 barriers are expected to have been removed or eased, including the 28 completed by the end of 2025. A further 126 barriers are expected to have the need for intervention confirmed and to be at various stages of development. These remaining interventions will be taken forward through RBMP4.

Action 1.16 – In the above barrier related work, secondary impacts on salmon (such as predation and poaching), will be considered by engaging with stakeholders and in project planning and implementation

in progress

Engagement with stakeholders is part of the SEPA process for above barrier work, mentioned in Action 1.13, 1.14 and 1.15, to understand secondary impacts of the removal and easement of barriers. Engagement with stakeholders will continue in 2026.

Action 1.17 – Undertake a review of the risk to fish migration of the canal network and associated management structures

Completed during this report’s timeframe

Scottish Canals commissioned an independent environmental fish passage specialist consultant in November 2023 to undertake a review of the risk to fish migration of canal operations and associated water management structures by 2025. The final report was shared with key stakeholders in June 2025.

The Delivery Group accepted the completion of this action subject to agreement on the next steps as recorded in the minutes at the Delivery Group’s May 2026 meeting.

Action 1.18 – Continue to administer wildlife licensing for specific purposes relating to predator conflicts with wild salmon under the terms of the Wildlife and Countryside Act 1981 and the Marine (Scotland) Act 2010

continuous management action

Over the reporting period, NatureScot and the Scottish Government continued to administer wildlife licensing for specific purposes relating to predator conflicts with wild salmon under the terms of the Wildlife and Countryside Act 1981 and the Marine (Scotland) Act 2010.

Action 1.19 – Undertake a review of fish-eating bird licensing policy with a view to ensuring balanced consideration of the conservation status of predator and prey species, within the context of a wider review of the approach to wildlife licensing. This will be underpinned by research to improve the scientific evidence base, including the collection of bird population data, improved understanding of their impact on salmon populations and the effectiveness of control methods

* in progress

NatureScot completed its review of its species licensing functions as requested by Scottish Ministers in 2024 and submitted its report to the Scottish Government in early 2026. The Scottish Government is now considering the review and its recommendations prior to publication. NatureScot will begin preparations to deliver the recommendations, subject to feedback from Scottish Government. It is likely that proposals to implement some recommendations arising from the review will be subject to formal consultation.

Further details of the Species Licensing Review can be found on NatureScot’s website at Species Licensing Review - Terms of Reference | NatureScot

The NatureScot Licensing team continues to issue licences with currently no changes to the process. There is development in this area with a new return form for applicants being created with the aim for it to be available from late 2026 and to be used in the next cycle of piscivorous bird licences from April 2027. In the new form applicants will need to include detail on the number of individuals of each species killed, including the date, gender and location, the scaring methods used and how successful the shooting as an aid to scaring was at addressing the problem. This will allow NatureScot to better interpret returns and extract data from them in future.

NatureScot commissioned the British Trust for Ornithology (BTO) Scotland to undertake a scoping exercise on the feasibility of a nationwide sawbill duck survey, which was published in early 2026 as NatureScot Research Report 1374 – Scoping a wintering sawbill duck survey for Scottish salmon rivers.

The review of fish-eating bird licensing policy remains an important area of stakeholder interest. Alongside the wider species licensing review, the Science and Evidence Board’s consideration of bird predation has helped clarify the evidence base on potential impacts on juvenile salmon and smolts, including the circumstances in which predation may impede recovery of depleted salmon populations. Further discussion on the pace and direction of this work can be taken through the Delivery Group, noting that Action 1.19 remains in progress but behind schedule and that the report now reflects ongoing work on the species licensing review, improved licence return data, and research to strengthen the evidence base on fish-eating bird impacts and management.

Action 1.20 – Complete a review of the operation of the seal licensing system under the terms of the Marine (Scotland) Act 2010

completed in this report’s timeframe

A review of the operation of the seal licensing system was published on 25 September 2025. In completing the review, United Kingdom Research and Innovation (UKRI) were consulted as required under the Marine (Scotland) 2010 Act, and views sought from other relevant stakeholders, including but not limited to, NatureScot and river fishing interests (e.g., FMS & FMS Members and Scottish Gamekeepers Association). Four main areas were identified in review as recommendations for further action; these focused on the application process, research licences, development of non-lethal measures and updates to the seal management training course.

Scottish Government are progressing the recommendations from the review. This includes updating the licence application period to allow applications to be received throughout the year. These recommendations are aimed at making the licensing process clearer, which benefits salmon conservation by providing an efficient and straightforward process to apply for a licence in instances where seals are posing a conservation threat to a population of wild Atlantic salmon.

Action 1.21 – Support efforts by fisheries managers to protect salmon from seal predation by continuing to investigate, develop and test non-lethal methods of control, thereby improving our understanding of the effectiveness of these measures

continuous management action

While the original timeframe to deliver this action was noted in the Implementation Plan as ‘By 2024’, work continues to develop and test an automated detect and deter system to address seal salmon interactions in rivers with trials during winter 2024-2025 reporting significant reductions in the number of seals transiting up the river. The system operated successfully with minimal human intervention.

Further funding has since been committed to support research in 2025-2028 to test the practicality and efficacy of deployments of the system in wider, higher-flow-rate riverine systems in collaboration with DSFBs, with an initial focus on the River Dee. This work commenced in winter 2025 and follows up and expands on previous development work. Progress on this action has therefore been noted as a ‘continuous management action’.

Action 1.22 – Implement the Scottish Plan for Invasive Non-Native Species (INNS) surveillance, prevention and control, and secure wider support measures to enable effective INNS removal for species that may impact salmon and its supporting habitat

continuous management action

The Scottish Invasive Species Initiative (SISI) worked to complete its second phase of work (2023-2026) (completed March 2026) supported by the Scottish Government Nature Restoration Fund. A further application submitted to the Nature Restoration Fund to continue and expand the work programme from April 2026 to March 2028 has been approved and will be reported on in future Progress Reports. NatureScot continues to lead the SISI on behalf of the project partnership (made up of ten fishery Trusts and Boards and the University of Aberdeen). By area, the largest INNS control project in the British Isles, the project controls American mink and a suite of plant INNS over an area of some 29,500 km² (approximately 1/3 of mainland Scotland). These actions help to support the restoration of riparian habitats in catchments supporting wild Atlantic salmon and the removal of a semi-aquatic predator that has Atlantic salmon as part of its diet.

An INNS Finance Summit was jointly hosted by the Scottish Wildlife Trust, NatureScot, Loch Lomond and Trossachs National Park Authority and the Scottish Forum on Natural Capital in December 2025 and brought together leaders from across sectors to kick-start efforts to scale-up the resources needed to tackle INNS, including those affecting rivers. The short-term actions identified in the report from the summit were that NatureScot would publish the Scottish Action Plan for Invasive Non-Native Species, and the Scottish Government reaffirmed their commitment to the Nature Restoration Fund in the 2026-27 budget, including ongoing support for strategic INNS projects, such as the Scottish Invasive Species Project.

Wider INNS control initiative work is underway across Scotland in addition to the SISI work. One example of this is the Galloway Rivers Trust Five Year INNS Control Programme across seven major river catchments in the Dumfries and Galloway region.

Action 1.23 - Develop and improve monitoring and mitigation strategies for future invasions of pink salmon

continuous management action

The Pink Salmon Task Group, chaired by SEPA, undertook significant advanced planning for the expected arrival of non-native invasive pink salmon in 2025. Scotland wide eDNA-based monitoring for invasive pink salmon was conducted in 2025 across 10 rivers. This work was coordinated through the Pink Salmon Task Group and water samples were collected by DSFBs, Fishery Trusts and other catchment managers. Sample analyses were carried out by Scottish Government. Pink salmon eDNA was consistently detected in four out of the ten rivers sampled, demonstrating presence of fish in these rivers in 2025. The FMS reporting tool continues to allow sightings of pink salmon to be recorded and across all reporting tools 18 sightings were reported in 2025. This was significantly less than previous odd years. FMS and AST also secured licenses for control and removal of pink salmon.

The NASCO Working Group on Pink Salmon, met in July 2025 to consider progress on measures being developed to manage areas occupied by Atlantic salmon that have been most badly affected by the expansion of pink salmon.

Action 1.24 – Promote public awareness campaigns on avoiding the spread of invasive non-native species, including biosecurity and disinfectant measures

completed during the 2024 report’s timeframe (but continuing to be implemented)

Action 1.25 – Establish a new task and finish group focussing on wild fish disease to investigate the research gaps, prevent introduction and spread of disease, and increase public awareness of biosecurity

* in progress

The Scottish Government has been working with key partners, to scope options under this action on whether a Task and Finish Group would assist the Delivery Group in delivering this action, and if so how to ensure best value for resource is achieved.

Members of FMS continue to support a PhD at the University of Aberdeen entitled, “Detailed Analysis of Fish Pathogenic Oomycete Isolates from Scottish Rivers”. This project is investigating the pathogenic fungus Saprolegnia with a view to providing clear guidance to fisheries managers. Moving into year 3 the next stage of the programme will focus on expanding the genetic and ecological dataset to support robust management recommendations. Any reports of Saprolegnia and other fish diseases through FMS are automatically shared with the Fish Health Inspectorate prompting further investigation where appropriate.

Action 1.26 – Update the Gyrodactylus salaris Contingency Plan to ensure Scotland is prepared in the event of an outbreak

* in progress

The Scottish contingency plan for Gyrodactylus salaris is currently in its fourth edition and was last revised in March 2011. A review of the plan commenced in September 2022 and, following a pause due to resource constraints, recommenced in March 2026. The review will update the plan to reflect changes in organisational structures, legislation, scientific and diagnostic approaches, stakeholder involvement, and existing agreements and Memoranda of Understanding (MoUs).

The existing contingency plan remains active and was most recently tested in 2015 through a joint exercise involving UK Government and a wide range of internal and external stakeholders. The need to update the plan and undertake further testing to ensure it remains fit for purpose is recognised. As noted under Action 4.7, the Scottish Government continues to work with international partners to support this work.

Action 1.27 – Publish research on the risks and opportunities of stocking, complete a review of the current stocking policy and adopt a revised stocking policy

* in progress

As reported in the 2023 progress report, a review of the risks and opportunities of stocking was published by the Scottish Government in February 2023. At its meeting in September 2025, the Delivery Group accepted the Science and Evidence Board’s advice paper which addresses recovery stocking of Atlantic salmon into weak populations and agreed that this paper should be published and read alongside the Delivery Group’s consensus (from its February 2025 meeting) that for general management application, smolt-adult supplementation should not be used except for science in low-risk situations (with the exclusion of any existing projects already started). Work to complete the review of stocking policy has been factored into work planning for year 26/27. Any material policy changes will be subject to consultation prior to adoption.

Theme 2: Managing exploitation through effective regulation, deterrents and enforcement (6 actions)

Action 2.1 – Revise and apply the Conservation of Salmon (Scotland) Regulations 2016 annually based on stock assessment data

continuous management action

The annual salmon stock assessment informed the revisions to Schedule 2 of the Conservation of Salmon (Scotland) Regulations 2016 which came into effect from 1 April 2026, specifying where salmon are subject to mandatory catch and release practices for the 2026 season. This process continues annually.

Action 2.2 – Maintain the prohibition of the retention of salmon in coastal waters until such a time as the conservation status of salmon allows for the consideration of removing the measure

continuous management action

The prohibition of the retention of salmon in coastal waters was maintained for this reporting period. This follows considerations during the annual salmon stock assessment process and reflected in revisions to the Conservation of Salmon (Scotland) Regulations 2016.

Action 2.3 – Review the Conservation of Salmon (Annual Close Time and Catch and Release) (Scotland) Regulations 2014 and the Tweed Regulation Order 2007 to ensure the protection of vulnerable stock components

* in progress

Preparatory work was undertaken by the Scottish Government to take forward reviewing the existing compulsory catch-and-release measure put in place to protect spring fish through the Conservation of Salmon (Annual Close Time and Catch and Release) (Scotland) Regulations 2014. Consideration is now being given to next steps to complete by the end of this Implementation Plan.

Action 2.4 – Undertake a review of enforcement powers, the offences and penalty regime for salmon poaching (a wildlife crime) and other offences, aiming to increase penalties if necessary

completed in this report’s timeframe (partly)

The Delivery Group has agreed that this action has been partly completed, following the FMS Enforcement Committee’s review of the penalty regime for salmon poaching and the passing of the Natural Environment (Scotland) Act 2026 (‘the 2026 Act’) in January 2026. The 2026 Act includes amendments to the Salmon and Freshwater Fisheries (Consolidation) (Scotland) Act 2003 to increase the available penalties for fish poaching offences and allows for certain penalties to be applied on a ‘per-fish’ basis. Commencement of these provisions is being considered in light of any wider arrangements made to align penalties across the border rivers (Tweed and Esk) with the rest of Scotland’s rivers.

The Delivery Group has agreed that the other elements of this action, to review enforcement powers and offences, should be considered if there is at a future date wider consideration of wild fisheries legislative structures.

Action 2.5 – Continue the current policy that all prospective water bailiffs must successfully complete specific training delivered by Institute of Fisheries Management (IFM) and FMS before appointment as a water bailiff

continuous management action

This action continued to be met in the reporting period.

Additionally, FMS (on behalf of their members) and Forth District Salmon Fishery Board (on behalf of Forth, Lomond and Clyde areas) successfully applied to the Marine Fund Scotland for enforcement equipment, including drones and night vision/thermal cameras to support water bailiffs (including those appointed by Scottish Ministers) in detecting, reporting and reducing wildlife crime incidents.

Action 2.6 – Refresh and promote guidance on best practice for catch and release

completed during the 2024 report’s timeframe (but continuing to be implemented)

Delivery Group partners continue to promote best practice guidance for catch and release

Theme 3: Understanding and mitigating pressures in the marine and coastal environment (9 actions)

Action 3.1 – Safeguard salmon and critical habitat through National, Regional and Sectoral Marine Plan policies and licensing of marine activity and development, recognising its protected status

continuous management action

The development of a new National Marine Plan (NMP2) continued throughout 2025, following the closure of the Scottish Government’s consultation on the Planning Position Statement (PPS) for NMP2 in February 2025. NMP2 will help to address the global climate and nature crises by delivering sustainable management of our marine shared space, supporting sustainable development, protecting our marine environment and deliver for our coastal communities. The interests of wild Atlantic salmon and other protected species are specifically being considered in the development of this work.

Although initially planned for 2025, a delay to the public consultation on a draft NMP2 was announced. Further advice will be provided to Government Ministers regarding a draft plan and the potential timing of the public consultation.

The Shetland Islands Regional Marine plan (SIRMP) was adopted in December 2025. As Scotland’s first regional marine plan, it includes policies and guidance specific to the Shetland Isles Marine Region on protecting marine wildlife, including wild salmon and marine ecosystems. It ensures developers and marine users consider the impacts on protected species and habitats before projects proceed.

Action 3.2 – Improve our understanding of the coastal and marine migration patterns of salmon through collaborative research projects

continuous management action

The data collection phase of the West Coast Tracking Project (a partnership between the AST, FMS and the Scottish Government, providing a unique study aimed to advance our understanding of the marine and near-coastal migratory distribution wild Atlantic salmon) is complete.

An initial analysis of data collected early in the project, led by the AST, resulted in the publication by Rodger et al. (2024) Journal of Fish Biology, 106(5), 1422-1439 which examined offshore migratory distributions of salmon smolts. Further analysis of the tracking dataset with focus on passage of smolts through sea lochs past aquaculture sites is being conducted by the Scottish Government. Results are expected to inform the ongoing development and adoption of the SEPA Sea Lice Regulatory Framework.

Action 3.3 – Develop and undertake a coordinated approach to research projects through ScotMER to improve our understanding of the potential impact of marine renewable developments on salmon

continuous management action

The North Coast Telemetry Project, delivered in collaboration with the AST and other partners, is investigating the spatial and temporal movement of Atlantic salmon (Salmo salar) during 2023 to 2025 from multiple rivers on the north-west coast of Scotland where a number of wind farm developments are proposed. The findings of this project will be written up for submission to a peer reviewed scientific journal.

Fieldwork associated with the ScotMER funded project; Moray Firth/Wick Telemetry Project was completed in July 2025 and was published in September 2026. This project aims to improve our understanding of salmon movement through marine waters with operational and proposed wind farms.

In spring 2025 acoustic receivers were deployed in the Moray Firth to detect salmon tagged in the River Ness catchment as part of a study examining their movement through the Moray Firth, an area of marine renewable development. It is intended to write up the results of this project as a collaborative paper with other scientists who also carried out telemetry work in the area.

The Southeast Coast salmon tracking Project secured funding in 2025 through the Scottish Government’s ScotMER programme and is a large-scale acoustic telemetry project tracking approximately 800 salmon post-smolts migrating from the Rivers Tweed, Tay, South Esk and Teith into east coast marine waters where offshore wind farms are operational, consented and/or proposed. The study will also include tracking of returning adult salmon to the four study rivers. All four rivers are Special Areas of Conservation in which Atlantic salmon is a qualifying feature.

A biochemical tool is being developed using archival tissue from otoliths and eye lenses to determine the river of origin of salmon captured in the east coast of Scotland. The findings of this project should contribute to more effective management and protection of salmon populations from rivers designated, under the EU Habitats Directive, as Special Areas of Conservation. This work is being undertaken in collaboration with the University of Essex.

The results of trawling surveys carried out on the east coast of Scotland in an area of operational, consented and proposed wind farms from 2017 to 2021 and genetic stock identification of salmon populations to their natal rivers/regions are now published.

These projects are critical in addressing key evidence gaps that currently limit the ability to assess and mitigate impacts from offshore renewable development.

Action 3.4 – Protecting and enhancing marine biodiversity, including salmon and the habitats they depend on, through a well-managed network of Marine Protected Areas, Highly Protected Marine Areas and other conservation measures, and implementing the UK Marine Strategy to achieve or maintain Good Environmental Status

in progress

It should be noted that on 29 June 2023, the then Cabinet Secretary for Transport, Net Zero and Just Transition announced that proposals to designate 10% of Scotland’s seas as HPMAs by 2026 would not be progressed. The other strands of the action continue, as reflected in the status.

On 16 October 2025, fisheries management measures for MPAs within Scotland’s offshore waters (between 12 and 200nm from the coast) came into effect. These measures will enable MPAs to achieve their conservation objectives protecting the sensitive features of sites while allowing sustainable activity elsewhere, if appropriate. They have been developed following extensive consultation and engagement with stakeholders. At the time of publication, the consultation for fisheries management measures for inshore MPAs and the 11 PMFs most vulnerable to bottom-contact gear recently launched.

Work to update the UK Marine Strategy Part One – assessment of the state of UK seas and the proposed targets and indicators of Good Environmental Status for the next 6-year cycle was undertaken in 2025 (and published in early 2026). Although not specific to salmon, the UK Marine Strategy supports the wider objective of achieving healthy, productive and resilient seas, which provide the environmental conditions necessary for wild Atlantic salmon and the species and habitats on which they depend.

Action 3.5 – Implement the actions set out in our response to the recommendations of the Salmon Interactions Working Group to mitigate the risks and impact of fish farming on wild salmon

continuous management action

The Scottish Government responded to the Rural Affairs and Islands Committee’s report in March 2025 as part of its inquiry into salmon farming in Scotland, which included key commitments in response to the Salmon Interactions Working Group report related to sea lice, and escapes. An interim update was provided to the Committee in September 2025.

Action 3.6 – Continued development and phased implementation of the risk assessment framework for managing the interaction between sea lice from marine fish farm developments and wild salmon and sea trout in Scotland

continuous management action

SEPA will continue to implement the sea lice regulatory framework, and any appeals of conditions will be considered fully.

Following an initial programme of monitoring of sea lice on sea trout at a small number of locations, SEPA is procuring a targeted programme of environmental monitoring to commence in 2026, co-funded by the Scottish Government. This collaborative programme will assess sea lice burdens on wild sea trout at key locations and, where possible, monitor juvenile populations in rivers for which there is limited baseline data available.

To ensure SEPA’s framework is underpinned by best available evidence, Ministers commissioned the Scottish Government’s Chief Scientific Advisor Marine to consider the science used to justify SEPA’s framework.

Action 3.7 – Strengthen controls to reduce farmed fish escapes and explore the introduction of penalties with the ultimate aim of redistributing this money to support salmon conservation and research

continuous management action

Exploratory work has been progressed with representatives from the fish farming sector, FMS and NatureScot to consider potential options for the introduction of a voluntary financial penalties scheme following farmed fish escapes. The Scottish Government supports the aim of redistributing monies to support wild salmonid conservation and research.

Work to deliver a revised technical standard for finfish containment is planned for 2027/28.

Action 3.8 - Restrict fishing activity or prohibit fishing for species which are integral components of the marine food web, such as sandeels

continuous management action

There has been no change on this from the last update, the Sandeel (Prohibition Of Fishing) (Scotland) Order 2024 came into force on 26 March 2024, closing all Scottish waters to fishing for sandeel, for all vessels. The prohibition remains in place.

Action 3.9 – Apply the National Planning Framework 4 policy to not support further salmon and trout open pen fish farm developments on the north and east coasts of Scotland to safeguard migratory fish species

continuous management action

There was again no change to this position in 2025. National Planning Framework 4 includes Policy 32(a) stating that to safeguard migratory fish species, further salmon and trout open pen fish farm developments on the North and East coasts of mainland Scotland will not be supported.

Theme 4: Making a positive contribution through international collaborations (8 actions)

Action 4.1 – Continue to play an active role in the effective functioning of the North Atlantic Salmon Conservation Organisation (NASCO) and the development and implementation of NASCO resolutions, agreements and guidelines, including by chairing the North-East Atlantic Commission (2023-24)

continuous management action

Scottish Government officials contributed to and were in attendance for the 42^nd Annual Meeting of NASCO in Cardiff, Wales, as part of the UK Delegation. Delivery Group members, FMS and AST, were also in attendance and contributed as accredited Non-Governmental Organisation observers.

Management measures were maintained for the West Greenland and the Faroes salmon fisheries based on the latest scientific advice, and new guidelines on stock rebuilding and gene banking were agreed, to help understand the appropriateness of techniques and how to maximise effectiveness. These guidelines will feed into the Scottish Government’s forthcoming review of Scotland’s current stocking policy (Action 1.27 above).

The Scottish Government provided a paper for a Special Session on Successful Actions and presented findings from the Salmon Stressor Analysis of pressures facing wild Atlantic salmon in Scotland. Together with other Parties, Scottish Government committed to setting out actions for NASCO’s next reporting cycle, to address three of the stressors identified (more detail in Action 4.2).

NASCO launched an interactive online map, the Wild Atlantic Salmon Atlas that provides information on the status of Atlantic salmon across the North Atlantic, for which data on Scottish salmon rivers is provided.

Action 4.2 – Report on the implementation of NASCO’s Resolutions, Agreements and Guidelines through Annual Progress Reports

continuous management action

NASCO has entered its Fourth Reporting Cycle (2026-2032) for which Parties have committed to a new way of reporting on progress towards achievement of NASCO’s Resolutions, Agreements and Guidelines. As part of the UK Delegation, the Scottish Government has committed to setting out measurable actions to address three stressors facing wild salmon, on which we will report annually.

Final submission of the identified stressors, and actions to address, is due by the end of November 2026 and Scottish Government officials have engaged with Delivery Group members to consider stressors.

Officials also commenced work to be ready to report on theme-based Performance Indicators to demonstrate progress towards reducing the threats associated with fisheries and aquaculture and increasing the productive capacity of freshwater habitats, from 2027.

Action 4.3 – Work with partners through NASCO to maintain an evidence-based and precautionary regulatory measure for the West Greenland salmon fishery and advocate for international cooperation on other pressures on salmon as appropriate

continuous management action

The West Greenland management measure was maintained in 2025 and Scottish Government officials continue to advocate for international cooperation in sampling the West Greenland salmon fishery.

Action 4.4 – Participate in the West Greenland sampling programme through the provision of samplers in coordination with the UK NASCO delegation

continuous management action

Scottish Government officials continue to cooperate with the governments and agencies in the UK NASCO Delegation to implement the agreed inter-agency rota.

Action 4.5 – Promote collaboration and cooperation on research into the causes of marine mortality of salmon through active participation in the International Atlantic Salmon Research Board (IASRB)

continuous management action

A Scottish Government scientist represented the UK delegation on the IASRB and during 2025 maintained active participation in the on-going work of the group, including updating an inventory of research projects and making decisions on projects to fund or endorse. Additionally, a Scottish Government scientist sat on a Steering Group developing an international study focused on salmon growth at sea based on scale archives and using automated machine learning tools which was adopted by the IASRB in 2025.

UK delegation representation on the IASRB will transfer to a Centre for Environment Fisheries and Aquaculture Science (CEFAS) scientist.

Action 4.6 - Contribute to the preparation of an annual assessment of the status of salmon stocks across the North Atlantic and other advice by the ICES Working Group on North Atlantic Salmon (ICES WGNAS).

continuous management action

Scottish Government scientists continued to contribute to North Atlantic wide salmon stock assessments through the 2025 season as part of ICES WGNAS. Stock assessments are used as the basis for advice to NASCO on Atlantic salmon.

Action 4.7 – Contributing to monitoring and surveillance activities, information exchange and development of recommendations to prevent the spread of parasites and invasive non-native species (e.g. as part of NASCO North East Atlantic Commission Gyrodactylus salaris and future pink salmon working groups)

continuous management action

Scottish Government officials contributed to updates on the actions taken under the Gyrodactylus salaris Road Map as part of the NASCO NEAC working group on this parasite.

Action 4.8 – Acting on reporting on implementation of OSPAR Recommendation 2016/03 on furthering the protection of Atlantic salmon in the North-East Atlantic

* in progress

There is no further update to 2024’s annual progress report. Programmes and measures included in OSPAR Recommendation 2016/3 on furthering the protection and conservation of the Atlantic salmon in the OSPAR maritime area have been incorporated into the Implementation Plan. A report to OSPAR on implementation will be completed before the end of 2026.

Theme 5: Developing a modernised and fit for purpose policy framework (1 action)

Action 5.1 - Establish a task and finish group of stakeholders to undertake a broad review of the current policy framework

completed in this report’s timeframe

The Task and Finish Group presented its final report to the Delivery Group “A Modernised Framework for Scotland’s Wild Fisheries: Finance, Capacity and Governance”. This Report is now published on the FMS website and Scottish Government officials are considering how the recommendations can add value and improvements to the policy and funding framework that underpins local fisheries management. The Delivery Group note that further collaborative engagement is required to move forward with the implementation of this work.

Theme 6: Building an evidence base through coordinated scientific research and monitoring (8 actions)

A - Establish and operate a Scientific Advisory Board to coordinate and harmonise research and monitoring activities across science organisations and regulators

continuous management action

During the reporting period the Science and Evidence Board met four times (May, July, August and November 2025). Proceedings are published here.

B – Produce an annual report on the status of salmon in Scotland

continuous management action

An overview of the status of wild Atlantic salmon stocks in Scotland based on information on returning adult salmon, has been published, with work continuing for refreshed overview updates annually.

C – Maintain regular monitoring using rod catches, fish counters, adult salmon sampling programme, sampling of juvenile salmon through the National Electrofishing Programme for Scotland (NEPS) and assessment of interbreeding of wild and escaped farmed salmon through the National Introgression Programme for Scotland (NIPS)

continuous management action

Regular monitoring of returning adults continues to obtain information for stock assessment, with updated Scottish salmon and sea trout fishery Official Statistics for 2025 (published on 29 April 2026). A report was published on the sampling of rod-caught salmon and their biological characteristics (2021-2023) and the dataset augmented with additional data from the 2024 sampling. The Scottish Government continues to fund and support this FMS-coordinated work, with around 300 fish sampled and aged in 2025 from six areas (Argyll, Beauly, Galloway, Kyle of Sutherland, Tweed and Wester Ross) and with sampling to be undertaken again in 2026. Collaborative partnerships continue to provide fish counts from the rivers Deveron, Laxford and Helmsdale, whilst a new counter has begun to operate on the River Creed following a grant award by Marine Fund Scotland. Support from the Marine Fund has also been used by FMS and partners in developing AI-based tools to aid in processing fish counter information.

A report on the status of juvenile Atlantic salmon was published in June 2025. This report built on previous analyses, incorporating data from NEPS 2018, 2019, 2021 and 2023. A new NEPS survey design was also produced incorporating the extended monitoring requirements of SEPA under the Sea Lice Regulatory Framework to include the Northern Isles and smaller rivers where sea trout dominate. Work is underway to improve assessments of juvenile Atlantic salmon at individual electrofishing sites incorporating the effects of habitat variability and selected pressures. A paper assessing the effects of introgression on juvenile salmon populations was developed using data from NEPS 2021 and this has been submitted for publication to a peer-reviewed journal. Work is underway to further improve introgression assessments by incorporating salmon densities into the analysis.

There was no national NEPS monitoring programme in 2024 or 2025 and officials are exploring options to deliver Scotland’s juvenile monitoring and assessment needs.

D – Continue to support the Scottish Fisheries Coordination Centre (SFCC)

continuous management action

The Scottish Government continued to support the Scottish Fisheries Coordination Centre (SFCC). The SFCC has provided evidence-based training and support to fisheries managers across Scotland.

E - Develop a coordinated approach to Fisheries Management Plans across Scotland supported by Scottish Government and funding from Crown Estate Scotland

completed in the 2024 reporting period

F – Undertake analysis of the environmental and socio-economic benefits arising from healthy wild salmon populations, ensuring their existence value is recognised

in progress

FMS completed a scoping report to support delivery of this action. Following receipt of this report, Scottish Government officials engaged with analytical and natural capital policy colleagues to refine the scope, purpose and methodology of the proposed research, including how best to capture wider ecosystem, cultural, wellbeing and existence values.

Work then progressed in late 2025 to develop a revised Invitation to Tender under the Scottish Government Social Research and Analysis Framework, to commission a comprehensive valuation study.

G – Undertake an assessment to determine possible gaps where achievement of RBMP targets may not provide adequate protection for salmon at local and/or national scale

in progress

Preliminary work to define the scope of this assessment commenced in early 2025. Further progress is anticipated during the 2026 reporting period, including consideration of how this work relates to development of RBMP4.

H – Construct an extended fish counter network to improve salmon population estimates

continuous management action

The Scottish Government published a report on a fish counter network for monitoring Scottish salmon stocks. A new fish counter has been installed on the river Creed through a Marine Fund Scotland grant to Stornoway Angling Association and is expected to generate a count of salmon for 2026.