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SECTION 1 Introduction
Background to the current national policy framework
1.1 Historically, wild geese have formed an important part of Scotland's natural heritage. Following a period of decline in the 1950s-70s, goose numbers have increased in Scotland and in recent decades the recovery of certain goose populations has caused agricultural damage to crops in some areas. As a result many farmers and crofters affected by large numbers of grazing geese regard them as agricultural pests.
1.2 To address these concerns Scottish Ministers established the National Goose Forum ( NGF) in 1997 with a remit to develop a national policy framework for managing the interaction of geese and agriculture in Scotland. The NGF presented the Policy Report and Recommendations of the National Goose Forum (the NGF Report) 2 to Scottish Ministers in February 2000. Following consultation with interested parties, the NGF Report was adopted in April 2000 as the basis for a new national policy framework for Scotland.
1.3 In line with the recommendations set out in the NGF Report, a national co-ordinating body, the National Goose Management Review Group ( NGMRG) was convened in May 2000 (the composition of the NGMRG is shown at Annex 1). The primary function of the NGMRG is to implement the national policy framework and to advise Scottish Ministers in relation to the effectiveness of, and any potential need for adjustment to, goose management in Scotland. As part of this function the NGMRG is required to conduct a multi-disciplinary review of the national policy framework every five years, and to report its findings to Ministers.
1.4 The NGMRG is guided in its deliberations by three fundamental objectives which were central to the NGF Report and which are at the heart of the resulting national policy framework. These core objectives are to:
- Meet the UK's nature conservation obligations.
- Minimise the economic loss to farmers.
- Maximise the value for money of public expenditure.
1.5 In addition to its strategic and advisory role, the NGMRG has associated functions set out in Recommendation 24 of the NGF Report. These include, in particular, the requirement to ensure that local goose management schemes accurately implement the national policy framework at the local level. A core task for the NGMRG is therefore to evaluate proposals for new schemes and to carry out an annual assessment of existing schemes. It is for Ministers to decide, in the light of advice provided by NGMRG, whether to approve the establishment or continuation of individual local management schemes. Schemes which have been approved by Ministers are funded by Scottish Natural Heritage ( SNH).
1.6 The first four local goose management schemes to be established under the new national policy framework were approved by Ministers in 2000 and operated for the first time during the Winter and Spring of 2000/2001. There are now seven approved goose management schemes across Scotland, five of which (on Islay, Kintyre, the Solway, on South Walls and the Loch of Strathbeg) focus on migratory species and operate during the Winter and Spring. The remaining two schemes (on Tiree and Coll and on the Uists) have been established to deal with resident populations of greylag geese and operate during the Summer months.
1.7 The NGMRG also oversees arrangements for monitoring protected geese populations and for undertaking relevant scientific research. The NGMRG is assisted by a scientific subgroup, the Goose Science Advisory Group ( GSAG) which provides advice on monitoring, research and analysis of information on goose populations and related issues.
Policy Context
1.8 The last five years have seen significant policy changes affecting land management. Scottish Ministers have expressed support for the principles of sustainable development set out in the UK strategy 3 and intend to publish their own strategy later this year. Scotland has its own Biodiversity Strategy 4, designated by Ministers to support the statutory duty imposed on all public bodies in Scotland (by Section 1 of the Nature Conservation (Scotland) Act 2004) to further biodiversity in the exercise of their functions. Reforms to the EU Common Agricultural Policy also demonstrate increasing recognition of environmental issues.
1.9 Implementation of the national policy framework for goose management in Scotland has also acted as an important catalyst for change. Partnership working at national and local level has helped to resolve long-running conflicts, allay concerns and offer benefits in the wider context. There is identifiable progress against all objectives, with the adaptive management processes enshrined in the national policy framework delivering not only the primary policy objectives established by the NGF Report, but also encouraging attitudinal change and the closer involvement of stakeholders. The integration of sound science with practical management considerations has delivered management arrangements which are based on the best evidence and are also comprehensible to local participants. Active participation from farmers and crofters affected by goose populations has been key to the success of goose management policy in Scotland. The extent and success of such community engagement owes much to the dedicated support and leadership offered to members of local goose management groups by locally-based SEERAD and SNH staff.
1.10 Goose policies are based on the best scientific evidence. GSAG, which advises the NGMRG on scientific issues, has proposed a structured programme of survey and monitoring and has identified further requirements in its research programme. Previous and ongoing research informs management decisions, and a major economic study commissioned by SEERAD5 has considered value for money and public attitudes, using robust research techniques to quantify the value which different sectors of the community place on wild geese. Results demonstrate not only that there is general support for policies to protect wild geese but that current policies do indeed deliver good value for public funds.
Policy Objectives
1.11 Against this background, the NGMRG has given careful consideration to each of the three core objectives of the national policy framework to ensure that they remain appropriate for the future management of the interaction between geese and agriculture.
Objective 1: To meet the UK's nature conservation obligations.
1.12 This objective remains appropriate. Obligations have not changed and the economic study offers compelling evidence that these are obligations which resonate with the people of Scotland. Current policies have supported population growth in most populations of geese and where this is not so, scientific advice is that external factors are likely to be the primary cause. It has, however, become accepted that goose policies need to be integrated with the more general effort to promote biodiversity. The NGMRG seeks the opportunity to take this more holistic view where appropriate, without compromising delivery of the primary objective in relation to goose populations. A minor adjustment to the wording of the objective is therefore recommended.
Objective 2: To minimise the economic loss to farmers.
1.13 This objective also remains appropriate. Geese can make a significant impact on the sustainability of some agricultural systems and on individual agricultural businesses, and, where this is the case, it remains appropriate to assist affected farmers (and crofters, who deserve an explicit mention). Minimal changes are proposed, which do no more than clarify the existing policy intention.
Objective 3: To maximise the value for money of public expenditure.
1.14 The importance of this objective is acknowledged by all interest groups. The economic study 5 supports the belief that current policies offer good value for money. It remains important, however, to continue to ensure that best value is secured. This review contains recommendations to support that aim. What the study also demonstrates is that there is a further public benefit in the increasing recognition of wildlife as key to the future prosperity of local rural areas. This finding was previously highlighted in a joint RSPB and BASC report to the National Goose Forum 6. Public attitudes to the presence of geese suggest that the public benefit contribution of these policies is significant, and value for money considerations should continue to give particular focus to this aspect. The objective remains self-explanatory and no change is proposed.
Recommendation 1: The fundamental objectives of the national policy framework for goose management in Scotland should be to:
- Meet the UK's nature conservation obligations for geese, within the context of wider biodiversity objectives.
- Minimise economic losses experienced by farmers and crofters as a result of the presence of geese.
- Maximise the value for money of public expenditure.
1.15 The following sections of this report contain further detailed recommendations which are intended to improve delivery of these strategic objectives. The full list of recommendations proposed by the NGMRG is set out in Annex 2.
Conclusion
1.16 Perhaps the most important conclusion of the review is that policies for management of the interaction between geese and agriculture have worked.
1.17 Improvements can be made, and are recommended in this review, but in general terms, the national policy framework has delivered what it set out to do, and perhaps more. The approach to national and local partnership, the integration of the needs of conservation and agriculture, the evidence base of sound science and the growing recognition of the wider public benefits all contribute to the delivery of the objectives and are all direct consequences of the policy framework established as a result of the NGF Report.
1.18 The NGMRG and stakeholder representatives have welcomed the opportunity to work together to steer the implementation of the new policy framework over the last 5 years. There remains considerable enthusiasm from all sides for continuing that process and building on the trust that has been developed during the last 5 years. It will be important to ensure that the primary focus remains the delivery of the three fundamental objectives of national goose management policy, as set out in Recommendation 1 of this report. But there are also significant opportunities to ensure that the indirect benefits (which have flowed from the consultation, co-operation, dialogue and bridge-building which have taken place since 1997) are improved and extended in the future.
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