Bass Management Plan

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(A Review of the Recreational and Economic Status of Bass (Dicentrarchus labrax) in England and Wales and Proposals for Revised Management of the UK Bass Fishery - Report Prepared By the BASS Restoration Committee For Submission to Defra, The UK Government and the Devolved Administrations)

1. Executive Summary

The Bass Anglers' Sportfishing Society (BASS) is a UK-based organisation. Membership of BASS is open to all sea anglers. There are no qualifying conditions of entry and no age, sex, religious, racial or physical ability pre-requisites for membership. The Society has gained an enviable reputation for its conservation - based approach to developing the sport of angling for the European Sea Bass (Dicentrarchus labrax).

Comparison of historical and current trends in bass angling within traditional bass areas indicates a reduction in angling catch per unit effort for larger mature bass.

The development and unregulated use of inshore monofilament gill nets, which commenced in the mid 1970s, followed by the development of the winter bass pair trawl fishery in the 1980s (targeting spawning aggregations of mature bass), means that bass are relentlessly pursued commercially, as soon as they leave the estuary nursery areas. Bass are a slow-growing, long-living species (25 years). They are now being caught as pre-adults (6 years old) before they have spawned, or in the first year of spawning (7 years old), resulting in the current rarity of larger, more fecund female bass.

Recent economic studies completed by the government show that:

• Recreational sea angling attracts 1.45 million anglers per annum and is worth in excess of £500 million per annum to the economy of England and Wales.
• The first hand sale value of commercially caught sea fish, for species which are of interest to anglers, is £49 million (2003).
• There are at least 361,000 bass anglers in England and Wales. The value of the bass sport fishery in 2004 is estimated to be in excess of £100 million per annum despite severely depleted stocks of larger bass. The potential value of the bass sport fishery could exceed £200 million with fully restored stocks of larger fish.
• The commercial first hand sale value of bass in England and Wales is £3.12 million (2003).

The current UK management of bass stocks is not generating best value for the national economy and is seriously limiting the growth potential of the bass sport fishery. The recent government Strategy Unit report on the future of the UK fishing industry, recommends that bass should now be considered for re-designation as a wholly recreational species.

Case histories from Southern Ireland and the USA reveal how sustainable management of fish species, such as the European sea bass and the striped bass, primarily for recreational benefit, can generate superior economic gains for local and national economies. In addition, it can ensure that recreationally exploited species continue to expand as a result of very low angling mortality rates and relatively inefficient capture techniques (hook and line).

Hook and line fishing gear, as used by recreational anglers and a small number of artisanal commercial fishermen, is more consistent with the modern sustainable fishery ethic than is the use of nets in commercial fisheries, which are less selective and promote over fishing.

In the UK there is not a single government department that has the overall responsibility for managing sea fish for recreational angling. No sea fish species are managed for recreational benefit and no full-time marine angling staff are funded from public funds, despite the significant annual economic contribution made by anglers. Management of sea fish in relation to the commercial industry is primarily via Defra. This situation is preventing development of the recreational sea angling sector in England and Wales and inhibiting the restoration of healthy bass stocks in the UK with regard to recreational need.

This report reviews the evidence for making bass a game-fish species in order to deliver recreational, socio-economic and fiscal gain.

The report proposes the implementation of new management measures encompassed within a Bass Management Plan. If implemented, these measures will deliver the following benefits:

• Restoration of a healthy bass population structure in England and Wales with an increased abundance of larger fish.
• Significant and increasing socio-economic and fiscal benefits for the economy of England and Wales.
• Creation of sustainable bass fisheries of increasing quality for small inshore commercial vessels operating sustainable capture techniques such as hook and line.
• Provision of a bass fishery suitable for Marine Stewardship Accreditation
• A bass fishery with a management regime which maximizes the value of the resource for all stakeholders in order to provide best value.
• A reduction of illegal landing and selling of bass by unlicensed and unregistered fishermen.
• An increase in psychological benefits to local people and tourists, who gain benefit or a sense of well being from simply knowing that the marine environment is healthy and is managed sustainably.

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2. Introduction

2.1 Bass Anglers' Sportfishing Society

The Bass Anglers' Sportfishing Society (BASS) was formed following a meeting of bass anglers in March 1973.

The status of bass as one of the most highly regarded and sought after sporting sea fish in England and Wales, together with the long-term future and recreational viability of the species, began to be threatened by largely unregulated commercial exploitation.

Bass anglers felt that if nothing was done to draw attention to the growing commercial impacts on bass, then the significant value of the species as one of the prime sporting fish (and possibly the long term future of the species as a whole) was at risk.

In light of the above concerns, the Bass Anglers' Sportfishing Society agreed that the society would:

Since 1973 BASS has grown in status and membership to become one of the leading recreational sea angling organisations in England and Wales campaigning for more sustainable management of bass. BASS now has members from all parts of the British Isles, covering a wide range of social backgrounds, age groups and angling skills.

The profile of BASS and the ability of its members to identify, understand and discuss the impacts of various fisheries' regulations at local, national and European level, has resulted in the society participating in the review of the CFP, The Government Strategy Unit's Review of the Future of the UK Fishing Industry, The Review of Marine Protection and Enforcement and on regional sea fisheries issues (relating to bass). BASS is also a contributing partner to the Invest in Fish initiative.

BASS has participated in extensive collaboration with research bodies, such as CEFAS, in order to expand the scientific knowledge of the bass species: a key element of our marine environment. An ongoing three-year tagging study, jointly supported by BASS and CEFAS, has produced the largest ever number of tagged bass, in order to study population movements and growth patterns.

Over the last six years, members of the BASS restoration group have travelled to London to meet fisheries officials from Defra and CEFAS. The focus of these meetings has been for BASS to discuss with Defra and CEFAS how current commercial fishing activities and regulations are seriously impacting upon the interests and resource access rights of recreational bass anglers. The BASS restoration group have striven to promote better management measures, which would ensure that all stakeholders have equitable access to a common resource, whilst at the same time protecting the long term future of the species and achieving best economic value.

On the 9th July 2003, BASS restoration group members presented Defra fisheries officials with a report entitled Proposals for the future management of UK bass stocks for 'Best VaIue'. This report outlined the concerns, vision, benefits (both recreational and commercial) and need for a different management approach to bass (Appendix I).

The objective of such measures would be to achieve Best Value from the management of the commonly owned bass resource, by increasing the abundance of larger bass for the development of the recreational fishery. Such revised management would also benefit artisanal commercial fishermen, exploiting the bass stock using sustainable capture methods.

At the end of this meeting, Defra asked BASS to prepare a document that outlined in full the specific management measures required to achieve the BASS Best Value objective.

2.2 Historical Perspectives On Recreational Bass Fishing

Bass have been one of the most sought-after sporting sea fish in England and Wales for over 50 years. In 'The Art of Angling' (1957), D. F. Kelley wrote, "Bass occupy a special place in the affection of sea anglers. They have everything we look for in a game fish, good looks, good eating, fine sporting qualities. Their capture, moreover, is the almost exclusive prerogative of rod fishermen; for they are an inshore species, practically unknown to the deep sea fisherman".

As well as specific angling reports and books extolling the virtues of the sport of bass fishing, the value of bass fishing and general sea angling as a tourist attraction was also being realised. As early as the 1950s, sections on local fishing quality were added to tourist guidebooks such as those produced by Ward Lock (Ward Lock's 1950).

Prior to the mid 1970s, bass were regarded primarily as a recreational sport fish, with the development of the commercial fishery being a fairly recent phenomenon (MAFF Laboratory Leaflet 59). At this time the significant economic potential of maintaining a healthy and abundant bass stock for recreational angling was poorly recognized.

Before the 1980s, both shore and small-boat anglers regularly caught larger, mature bass. The primary areas for catching bass were in the South of England and South Wales. Under favourable conditions it would not be unusual for moderately skilled anglers to catch half a dozen bass per session with a fish between 3 - 4 kg being relatively common in angling catches.

An extract from BASS Magazine 104, (2002) describes the quality of bass shore angling available from the south coast of England in the early 1970s : ' Portland angler, Bob Alexander surprised local fishermen when he caught bass weighing 12lb 4oz, 3lb 12oz, 3lb 7oz and 3lb 4oz whilst fishing from rocks near Blacknor Point.....Bob has taken many more large bass using this approach including several specimens over 10lbs'.

Although detailed records of bass angling catches and levels of angling participation pre 1980s are not well documented, angling literature from the time makes it clear that bass were relatively common and that the capture of a fish of 4-5 kg or bigger, was a distinct possibility given the correct application of local knowledge, tides and bait. Before 1975, the use of inshore monofilament gill nets and pair trawling on the pre spawning shoals of bass in the Western Approaches were not utilised methods of capture.

Since the early 1990s, the commercial pressures on bass have further intensified, with a commensurate decline in the quality of recreational angling for this species. The number of larger bass which are required to restore, improve and sustain recreational angling in the long term, has been decimated by targeted pair trawling on pre-spawning and spawning bass, the proliferation and extensive use of inshore monofilament gill nets, and by unlicensed rod and line commercial catches.

2.3 Current Perspectives On Recreational Bass Fishing

Ironically, as the number of larger bass (2kg and above) in angling catches continues to decline, so the commercial fishing intensity and number of anglers targeting bass has increased. Between 1987 and 1992 the number of bass anglers in England and Wales increased from an estimated 300,000 to 361,000 - a rise of 20% in 5 years (Dillon 2004).

It is unclear exactly how many bass anglers there are at the current time. Given that the Drew Associates report produced in 2003, indicates that 70% of all sea anglers fish for round fish such as cod and bass, and that there are 1.45 million sea anglers, the number of anglers who fish primarily for bass, could now well exceed 400,000. What is clear is that the species has become 'highly desirable' from the perspective of the angling media, as more and varied methods of catching bass, such as fly-fishing, are promoted. As such, there is now significant marketing of bass fishing tackle as well as the associated plaudits that describe the famed fighting prowess of the species.

Fortunately the majority of bass anglers now practice catch and release. They understand that conservation of the species is the only way to continue to enjoy the pleasure of the bass angling experience.

Most bass anglers are also finding that the majority of the bass they now catch are on or below the legal retention limit (36cms). Those fish that are caught above the legal limit are generally seen as being far too valuable to kill, because they represent the future spawning stock, so vital for the replenishment of the natural structure of bass stock levels.

What about recreational angling catches of bass, post 2000?
It is very clear that despite a perceived increase in the number of anglers fishing for bass and the expanding range of bass northwards along the east and west coasts, the average size of bass being captured by recreational anglers is still decreasing. The number of larger bass frequently captured by anglers in England and Wales is now at an all time low. It is widely felt amongst bass anglers that catch per unit effort is decreasing for bass and the effort required to catch a bass over 3kg is now excessive by comparison to historical catches.

Bass anglers feel that as a primary economic stakeholder, their ability to access bass stocks which are part of humanities natural heritage along with all other fish stocks (United Nations, Food & Agriculture Organisation, Code of Conduct for Responsible Fisheries) is being affected by the dominance and focus on one minor economic stakeholder. Bass stocks are not currently being managed for optimal utilisation or best value.

Bass anglers need to feel confident that if they expend the resources required to target bass then their effort and expenditure will have a good chance of resulting in the capture (and often the release) of the target species. This concept has been termed the 'fish availability threshold'. Currently the perception amongst most bass anglers is that other than for the rare good day, the fish availability threshold for larger bass is low and getting worse. Ditton (1994) when reviewing recreational fishery issues in Florida commented; " Participation in recreational fishing depends upon the opportunity to catch fish; if there are fewer fish to catch and catchability is reduced to the point where personal costs exceed benefits, economic values attached to recreational fishing will be diminished."

The 'fish availability threshold' for larger bass must now be improved for anglers and for the achievement of Best Value, using the measures outlined in this report.

2.4 Commercial versus Recreational Management of bass

There is not a single species of sea fish in England or Wales, which is managed primarily to support recreational sea angling. Considering that there are approximately 1.45 million sea anglers (Dunn & Potten 1994, DREW 2003 page 6) who collectively contribute in excess of £500 million per annum to the UK economy, this is staggering. What other business would ignore the fundamental drivers, which provide for profitability and positive socio-economic outputs to this degree?

Historically, sea fish have been studied and managed with respect to just one stakeholder - the commercial fishing industry. The emphasis on commercial harvesting from the sea has overridden all other legitimate interests and users.

Defra have stated that they are responsible for managing sea fish stocks (commercially) and that their management impinges on other users such as anglers. Defra, however, have no parallel responsibility to ensure that the same public resource - which sustains sea angling, remains in good recreational condition, despite the fact that both commercial fishermen and sea anglers compete for the same resource.

BASS have been pointed towards the Department of Culture, Media and Sport, as being the body responsible for angling through tourism. DCMS has no ability or experience to impact the way the natural resource (bass) is managed. Without a specific responsibility for the management of bass stocks, in support of recreational angling, both DCMS and Defra are openly failing to support and recognise a multi million pound economic contributor, which currently attracts approximately 1 in 40 of the population of England and Wales (all sea anglers). This is tantamount to discrimination against this sector.

We hear about terms such as 'recruitment fishery', 'maximum sustainable yield', 'surplus yield models', 'yield variability', and 'equilibrium yield curves'. The science supporting such population and catch models in relation to commercial harvesting is managed and generated for England and Wales by CEFAS. Many millions of pounds are spent each year employing fisheries scientists and research centres to assess and reassess how commercial activities are affecting sea fish. Catch restriction measures are generally only introduced when commercial activities have seriously impacted sea fish populations. No effort or funding is directed at ensuring that commercial effort does not inhibit recreationally important species or to ensure species like bass are managed to achieve best recreational value.

The activity of recreational sea angling does not have full time professionals funded by the public purse to ensure that the interests (available fish stocks) of 1.45 million sea anglers are protected, managed or enhanced.

Officers and staff of the local Sea Fisheries Committees are preoccupied with shellfish regulations and the enforcement of commercial fishing activity between the 3 and 6-mile limits. Few, if any, S.F.C.s have specific management measures or byelaws in place to locally support sea angling interests or to protect species like bass from commercial exploitation. Few, if any, SFCs have officers with recreational management experience. Recreational sea angling has to currently 'make do' with whatever the commercial sector leaves behind.

In complete contrast, freshwater fish, and in particular, species like salmon and sea trout, receive significant government funding, support and management. The Environment Agency has a Statutory Duty to 'maintain, improve and develop salmon and freshwater fisheries'.

In support of this the EA have an entire centrally located fisheries department, along with fisheries staff in offices spread across England and Wales. Although some of the fisheries regulated and managed by the EA are commercial, the vast majority of the statutory duty on the EA is focused on recreational fisheries. Much of the work completed by the EA is funded through licence income, however, a significant sum is provided by the government as grant-in-aid for the protection and management of salmon and sea trout for the public good, where licence income duties fail to cover the costs.

In response to the Salmon and Freshwater Fisheries Review completed in February 2000, the government openly endorsed the following objectives of fisheries legislation:

• To ensure the conservation and maintain the diversity of freshwater fish, salmon, sea trout and eels and to conserve their aquatic environment
• To enhance the contribution salmon and freshwater fisheries make to the economy, particularly in remote rural areas and in areas with low levels of income.
• To enhance the social value of fishing as a widely available and healthy form of recreation.

These objectives are also corner stones of the vision and objectives of BASS, in support of recreational angling for bass, under a new management regime.

The question must therefore be asked:
Given the national significance of participation and economic contribution by sea anglers, why is the same level of government support not provided for species like bass and the members of the public who target them for recreational purposes?

The management of sea fish primarily for recreational benefit is not some innovative, untried and untested approach. Countries like Southern Ireland, USA, Western Australia, and even the Turks and Caicos Islands (a UK dependency) have management measures in place to promote and protect those sea fish species targeted by anglers.

These countries understand how these measures generate significant economic returns, how the abundant sea fish generate positive socio-economic impacts and how, with a restoration of healthy fish stocks, the local commercial industries can return to profitability through sustainable management.

Section 2 Key Points Summary:

• BASS are dedicated to the conservation and sustainable management of bass to achieve best value
• Bass anglers catch per unit effort for larger fish has significantly declined following the widespread use of monofilament nets and winter pair trawling
• Most bass caught by anglers are now small fish. Fish availability threshold for larger bass is currently very low
• There are no species of sea fish in England and Wales that are managed primarily for recreational benefit
• No government department has overall responsibility for managing sea fish for recreational benefit. This is preventing bass stock restoration.

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3. Economic Comparisons and Potential For Growth

3.1 Commercial Marine Fisheries Analysis - England and Wales

Recreational anglers in England and Wales target a small proportion of the total number of fish species that are commercially exploited.

Unlike recreational angling where specific species can be targeted and many fish are returned alive, the commercial industry is less selective. Both target and non-target species captured are killed and there can be a significant impact from by-catch on non-target species such as cetaceans.

The Sea Fish Industry Authority recently (21st July 2004) made a press release, which stated that the UK seafood market was worth almost £5 billion annually.

This is an impressive statistic; however, the figure of £5 billion includes all aspects of the industry including fish and shellfish, from farmed sources right through to the consumer purchase.

Although the figure quoted is undoubtedly significant, it is important to look at a breakdown of this total figure, to examine the values attributed to individual parts of the industry and their relative contributions. The simple breakdown is as follows:

19% from fish (including shellfish) landed in the UK by the UK fishing fleet

15% from aquaculture

62% from imports to the UK

4% from fish landed in the UK by foreign fishing vessels

If we extrapolate the figure of 19% for fish (including shellfish) landed by UK vessels in the UK, as a value of the total figure, we can show that the value of these fish to the UK is approximately £950 million per annum.

This means that from capture, through processing and marketing, to consumer purchase, all the fish and shellfish retained by the UK fleet are worth an estimated £950 million per annum.

If we then take the analysis one stage further, we can look at the first hand sale value of fish landed by UK boats in the UK (table 1).

The fish examined are those, which are also targeted by recreational anglers to different degrees. The data used is as provided from the Defra website and covers the year 2003. The values quoted include the costs of wages, boat maintenance, fuel, gear, mooring fees etc.

Table 1

First Hand Sale Value of Fish Landed by UK Fishing Boats in the UK (England and Wales). Data from Defra website for year 2003.

This table illustrates that the total declared commercial first hand sale value of those fish, which are of primary interest to sea anglers in England and Wales, is £30.7 million.

Of these, the value of sea bass, as recorded by Defra in 2003, was £3.1 million.

These figures obviously exclude the additional value of the landings such as processing, marketing and purchase by the final customer. For bass alone it is difficult to estimate by how much the £3.1 million first hand sale value would increase as the product passed down the line to the final consumer. In 2002, the University of Strathclyde completed a study into sea fish value multipliers for Sea Fish and suggested that a multiplier of x2.2 was realistic. Application of this multiplier would give a figure of £6.82 million for commercially caught bass in 2003 in England and Wales as value is increased through processing etc.

In 2004 the bass sport fishery is estimated to be worth in excess of £100 million. Even this substantial figure may be an underestimate when it is thought that 70% of 1.45 million sea anglers in England and Wales fish primarily for round fish species such as cod and bass (DREW 2003), and that the total economic contribution made by sea anglers per se is in excess of £500 million per annum.

It is believed that with fully restored stocks of larger bass managed primarily for angling, the recreational bass fishery in England and Wales has the potential to generate £200 million per annum.

Table 2 - Recent Commercial Bass First Hand Sale Values (Defra)

Based on the values in table 2 how many full-time and part-time commercial fishermen could now claim that bass form a significant part of their annual income?

In 1995 it was estimated that total employment in the UK bass fishery was of the order of 435 full-time staff, 1868 part-time staff and at least 50 fishermen in the pair and mid water trawling sector - a total of just over 2,350 fishermen deriving some livelihood from the commercial bass fishery (Pickett et al 1995).

When considering the annual value of landings of bass by UK boats it is clear that the bulk of them come from 20 ports (Defra Website 2003). Further analysis of port landings reveals that only 9 ports in England and Wales land bass with an annual value in excess of £100,000.

The recorded landings of bass come primarily from inshore gill net fisheries and pair trawlers, with a small percentage from hook and line fisheries.

Inshore gill net fisheries intercept bass reaching the minimum legal size after leaving estuaries (recruitment fisheries) and adult bass, which have returned from winter spawning migrations and have dispersed throughout the coastal waters of England and Wales. Pair trawlers primarily target spawning and pre-spawning aggregations of bass in the South West and Western Approaches during the first three months of the year.

In March 2004 CEFAS and BASS attended a landing of 21.8 tons of bass into Plymouth. These fish were landed by just 5 pair teams working an area 30 miles due south of Start Point in Devon with the main effort in the West between the 6-12 mile limit. Eleven French pair trawlers were also known to be active in this area in addition to the Scottish vessels.

A random sub-sample, of 3.2 tonnes of fish, was inspected for length and age data as well as observations on the quality of the fish. The results of this inspection were as follows (BASS Restoration Project Newsletter 2004):

"We carried out a full inspection of 3.2 tonnes of fish which was on the market yesterday morning. We carried out a biological sampling of this landing, taking length and scale samples. These fish were in poor condition devoid of scales having been in the cod end for a long time. Mostly spent fish, but a few still running with eggs. The average size was 45cm,"

Table 3. Results of a recent bass survey following pair trawl landings at Plymouth, March 2004.

What conclusions can be drawn from this sub-sample?

Firstly the bulk of the fish (91.6%) were small (by historical standards) indicating a skewed distribution towards smaller, younger fish with very little evidence of numbers of older, larger female fish.

The average size of the fish would indicate that they might have been first year spawners - generally of a lower fecundity than larger fish which can generally produce more eggs per pound bodyweight.

As a sub-sample the snapshot seems to indicate a bass population heading for disaster. Most of the larger fish have been taken with a population profile biased towards younger smaller fish, the majority of which are about to undergo their first spawning.

What about the market value of the fish observed?
"poor condition, devoid of scales".

Very few fish merchants would be likely to pay top price for fish in this condition unless wild bass were in very short supply. With 21.8 tonnes of bass landed and more to come, prices would be low and would depress prices for any fresh bass caught locally by hook and line methods.

What would the value of these fish have been if left to grow and mature, to be caught and the majority released by 361,000 recreational bass anglers? (see Appendix II Best value poster). One can only guess, but it would be significantly more than that earned by 50 commercial fishermen and the bulk of the fish would be released to swim away to spawn again and generate repeat income.

3.2. Recreational Sea Angling Analysis

Until recently, very little reliable data was available to quantify the contribution to the national economy made by recreational sea angling.

Unlike the USA, the UK has been very slow to acknowledge the significant annual economic generation, which lies within the sport of sea angling.

The Bass Anglers' Sportfishing Society has known for some time that bass anglers spend significant amounts of money in pursuit of the species. Tackle, bait, travel and accommodation costs, made by over 361,000 bass anglers each year, add up to hundreds of millions of pounds.

In 1987 The Centre For Economics and Management of Aquatic Resources (CEMARE) estimated that sea angler expenditure on bass fishing in England and Wales was £9.7 million per year against a commercial first hand sale value of bass of £3.9 million.

In 1992 it was estimated that £13.1 million was spent on shore bass angling and £5.2 million on boat bass angling - a total combined figure of £18.3 million (Dillon 2004). This is likely to be a significant underestimate, as it would mean that a single bass angler only expends £50 per annum on bass fishing. In many cases an expenditure of £50 is made per trip, not per annum. This compares against a figure of £7.9 million for commercial first sale landings of bass in 1993 (Pickett et al 1995).

In 1992 bass was the most fished for species during summertime in England and Wales (Dillon 2004).

Specific recreational bass angling expenditure figures are not available for 2004. However, if the estimate of 361,000 bass anglers, produced by CEMARE in 1992, is multiplied by the mean annual shore sea angler expenditure figure of £295, as produced by Drew Associates (page 47, table 6.6, 2003), then a conservative value for the annual economic contribution made by bass anglers in England & Wales is £106.5 million. This is also likely to be an underestimate considering that Drew Associates (2003) further indicate that 70% of 1.45 million sea anglers target round fish species like cod and bass, and that the mean annual boat anglers' (many of whom fish for bass) expenditure is £1091 (own boat). From this, a realistic assumption would be that 30% of 1.45 million sea anglers (shore and boat) fish primarily for bass.

On the basis of this assumption there could be as many as 435,000 anglers who fish for bass in England and Wales generating an annual economic contribution of between £128.3 million and £150.6 million.

The nearest comparative commercial figures are for 2003 (Defra website) with the commercial first hand sale values for bass for England and Wales at £3.1 million. Even if the commercial figure (2003) for bass is multiplied by x2.2 (SeaFish 2002) to £6.82 million to give a more comparable 'total commercial value' for bass, it is still only 6.5% of the current estimated total expenditure made by bass anglers in England and Wales each year.

Since the year 2000 more studies into the economic importance of recreational sea angling have been completed. Although not specifically about bass, the results are worthy of a brief review given the significance of bass as one of the primary marine species for recreational fishing.

In 2000 Nautilus Consultants Ltd in association with EKOS Economic Consultants Ltd prepared a report for the National Assembly for Wales entitled: 'A Study into Inland and Sea Fisheries in Wales'.

The study found that sea angling in Wales attracted 12,000 resident anglers and 28,000 visiting anglers.

Sea angling made a gross annual contribution to the coastal economy of Wales of over £28 million and employed 471 persons against a commercial contribution (inshore and offshore, including shellfish and many species not targeted by anglers) of £20.6 million.

It should be noted that shellfish comprised 34% of the total commercial figure, most of which was comprised within the inshore landings total of £8.8 million which supported the employment of 598 people.

The basic comparison in values is therefore £28 million for sea angling versus £5.9 million for commercial inshore fish value.

What would be the most effective way of maintaining, and increasing the best economic value for this resource for Wales? It would appear that the answer lies in proactive management, protection and conservation of marine fish species targeted by sea anglers in inshore waters.

Maybe the sea angling 'economic penny' has dropped for the Welsh Assembly. After recent polls of ferry passengers heading for Southern Ireland from Wales, it appeared that significant numbers of anglers from the UK were heading for Ireland to enjoy better bass fishing. This represented a significant source of potential income lost to Wales. Recent promotions in national sea angling magazines have focused on attracting sea anglers to come bass fishing in Wales. (Sea Angler Magazine, September 2004 )

Advertising bass fishing is one thing; providing better, sustainable bass fishing opportunities (the fish availability threshold etc.) to compete with that found in Ireland is another. Increased sea angling revenue and better bass fishing in Wales will only happen if the bass stocks are managed primarily for sea anglers. In the recent report on research into the economic contribution of sea angling, Drew Associates (2003) state "The quality and diversity of angling opportunities in England and Wales are important to the extent that they retain spending within the economy and deter trips abroad".

On a European scale, the figures are even more staggering. On 13th September 2003, the European Anglers' Alliance (EAA) released a press statement, which included the following facts and figures (Dillon 2004):

• 2,900 companies, manufacturers and wholesalers trade in recreational fishing tackle in the European Union
• 60,000 jobs are created in the EU by recreational angling
• Annual EU turnover of Euro5 billion
• In addition to the above business figures there are an estimated 25 million European recreational fishermen who spend an estimated Euro25 billion per year on their sport across 15 EU countries.

The EAA state in the press release:

"The fishing tackle trade serves 25 million recreational fishermen, representing 6.5% of the total EU population through 12,900 tackle shops that employ another 39,000 people."

Even on a smaller scale, the economic potential of sea angling is evident. In 1997, the World Shore Angling Championships were held at Dover in Kent. After the event, Dover Council assessed that the overall economic benefit of the 7-day event to the local area was £370,000 (Rowe 2003).

One of the most insightful surveys ever completed for England and Wales which assessed the scale of the economic contribution of sea angling, was completed in 2003 by DREW Associates Ltd, as commissioned by the Economics and Statistics Group of the Department for the Environment, Food and Rural Affairs (Defra).

A summary of the findings of this report concluded that:

The total expenditure by sea anglers resident in England and Wales is estimated at £538 million per year.

£538 million was generated from 12.7 million 'angler days' activity.

Sea angling is practiced all around the coast of England and Wales and 1.1 million households contain at least one member who has been angling in the past year.

The spending on sea angling translates into 18,889 jobs and £71 million in suppliers income.

Angling spending by visitors was just under 1% of total tourism (£22.33 billion per annum) spending.

In case studies at specific locations sea angling by holidaymakers was a popular activity and the impact of this attraction on expenditures is underestimated in the report analysis.

The potential total value of the angling experience was estimated to be between £600 million and £1.3 billion.

Table 4. Comparison of Economic Impacts For Bass Commercial vs Recreational

A simple comparison of economic impacts across one year for all factors is not possible for England and Wales using the available information. However, a guide to the impacts can be considered by viewing the closest years for which information is available, as in Table 4 above.

The commercial first hand sale value of sea fish of interest to sea anglers is £49 million. This figure is not the total value and it is difficult to understand what the final total value might be after value is added through downstream processing, marketing etc. The first hand sale value might increase by a factor of x2.2 to something in the region of £108 million. On the recreational side, the recent DREW report shows that annual economic impact in England and Wales for the same marine fish species from sea angling is £538 million, covering 18,889 jobs.

Comparisons for bass are more difficult. However, it can be seen that in 2003 the commercial first hand sale value for bass was £3.12 million. If this is also increased by a factor of x2.2 the total value would be of the order of £6.82 million.

In 2004, 361,000 - 435,000 bass anglers spending an average of £295 per annum on the recreational fishery would give an annual economic input range of £106 million - £128 million.

What is striking is that, despite the range of data, which now proves the economic dominance of recreational sea angling and its ability to be a low impact, sustainable form of recreation, enjoyed by millions and employing thousands, not one marine species is managed exclusively for recreational sea angling.

3.3 Artisanal Bass Fisheries

Artisanal fisheries can be described as those local commercial vessels, (usually less than 10m) which target bass using a variety of capture methods.

Before the development of cheap monofilament gill nets, these small local vessels would target bass in the shallow inshore waters using methods like baited long lines, and trolled lures. Skilled practitioners could capture enough bass to make a fair living without seriously depleting the stocks as a whole.

The development, availability, cheapness and widespread use of monofilament gill nets has changed the way in which many of these small local vessels now target bass. In combination with an increasing popularity of bass as a 'trendy' restaurant fish, there has been a rapid expansion in the use of gill nets in inshore waters. Long tracts of coastline are now festooned with gill nets targeting bass from May until December. Small vessels of 7-10 m can easily work 5,000m (3 miles) of net within a mile of the coast. In some areas up to 20,000m of net is used per vessel when working inshore waters for a range of sea fish species within the 6-mile limit.

The result of this has been a ruthless pursuit of bass of all sizes, to the point where many gill net fisheries are now operating as recruitment fisheries on bass of 36-40cm as they leave the nursery areas. Many of these fish have not had the opportunity to spawn once before being captured. There has been a significant impact on local bass populations and on the quality of the amenity once enjoyed by recreational anglers, with many areas now almost devoid of fish in excess of 2 kg. When this local impact on bass populations is matched with the pair trawl impacts on pre-spawning aggregations, bass have little respite from commercial pressure; from the moment they leave the nursery areas, throughout their adult phase of life.

In economic terms, the first hand sale value of small portion-sized bass has decreased in real terms since the mid-1980s by as much as 70%. Any increased bass recruitment, which occurs in certain years as a result of favourable environmental conditions, is being squandered, as 36-40cm wild bass now have to compete with 55,000 tones of farmed bass.

In the mid-1980s, wild bass frequently sold at £2.75 per lb first hand sale (approx. £6.00 per kg). In the absence of farmed 'portion-sized' fish, the demand for smaller bass outstripped that of bigger fish. Compared to today's prices, adjusted for the retail price index, the same bass would be fetching approx £12 - £13 per kg. However, in July 2003 small wild bass were only fetching £4 - £5 per kg. Larger bass of 1 - 2 kg were selling for £9 per kg and 2 - 4 kg bass for £12 - £13 per kg. Imported farmed bass are now depressing the price of smaller wild bass, with larger wild bass now fetching a premium.

The average value now being realised by local fishermen for smaller wild bass is approximately £2 - £3 per fish. The potential value of those same small fish, if left to grow to 55cm before being captured, is significantly more both to commercial fishermen, recreational anglers and local communities. A fish of between 1.75 kg - 2 kg will be worth approximately £15 - £20 per fish. At this rate, this represents an increased value of 500% from landing the same number of fish. Alternately, the local commercial fishermen could earn the same income by landing only 20% of the fish now currently captured.

Premium bass values are now associated with larger wild fish. These larger fish are not available from a farmed source. The key to unlocking the potential wealth for the artisanal fishermen is therefore to increase the number of larger bass in coastal waters by decreasing the significant commercial pressures from both inshore monofilament netting and pair trawling, and by capping effort on the commercial exploitation that remains.

As the number of larger bass increases, the effort required to locate and capture those bass decreases, as long as commercial effort is capped by restricting the number of commercial entrants into the fishery. Larger numbers of larger fish also significantly boosts the spawning and recruitment potential, given that larger female bass produce greater numbers of more viable eggs.

The multiplier effect described would not happen overnight and bass catches may even decline further before they increase. Nevertheless, the potential exists for local small boat fishermen to return to using sustainable capture methods and still make a good living from premium-sized fresh bass. The restoration of greater numbers of larger bass in association with an effort capped, hook and line commercial fishery would create a favourable situation for such a fishery to attract Marine Stewardship Accreditation. The recognition of a sustainable fishery of this nature would also undoubtedly increase the value of the bass caught from this fishery in the eyes of discerning buyers. Alternately, an additional source of employment and income could be created for those local boats wishing to convert on either a full-time or part-time basis, servicing recreational sea anglers seeking to access restored inshore stocks of larger bass.

A sign of the economics supporting better prices for a more sustainable method of capturing larger bass is already in evidence. In 2004 local inshore fishermen in West Cornwall started to place tags on bass they captured by hook and line methods. The tag differentiates the product from bass caught in those nets associated with cetacean by-catch. A tagged bass not only indicates a fish caught by sustainable methods, but also denotes a fish of top quality. Market prices for these fish are already significantly exceeding those for bass caught in nets.

3.4 Potential For Growth

It is generally agreed by recreational bass anglers in the UK that bass fishing now generally revolves around the capture of fish of less than 2kg. It is true that larger bass are still captured, but in relatively low numbers. The numbers of bass in the 2 - 4kg range, which should form a significant part of angling catches, are now at an historical low, particularly from shore based locations. Bass nursery areas appear to be producing juveniles and pre-adults in good volumes, however, bass juvenile monitoring is generally only conducted on a relatively un-coordinated, voluntary basis in estuaries by motivated individuals. Other than some encouraging signs for the 2002 year-class, results have been variable.

The strong year classes of bass that appeared to be present in the early 1990s have not resulted in the presence of an increased frequency of >2kg weight fish for recreational anglers. The valuable protection of the nursery areas is being wasted.

In 2000, volume 1 of the Common Fisheries Green Paper reported:

"Many stocks are at present outside of safe biological limits. They are too heavily exploited or have low quantities of mature fish or both."

Also:

"The protection of small juveniles is particularly difficult to put into practice. The situation has deteriorated to such an extent that larger fish have become rare."

Also, in 2000, Nautilus Consultants in association with EKOS Economic Consultants Ltd in the Study into Inland and Sea Fisheries in Wales, commented:

"Sea Angling offers considerable potential for growth and expansion and that relatively little public investment in low risk support areas would stimulate considerable gains."

Concerns about factors, which were limiting the potential growth of sea angling income were as follows:

"Generally poor recognition of the economic importance of this sector (sea angling) resulting in limited official support to the sector and its requirements."

And,

"Heavy commercial fishing pressure on various species - particularly illegal netting for bass - is under-mining the resource base for recreational anglers."

Drew Associates (2003), in their research report into the economic contribution of sea angling, reported that most survey respondents had observed a decrease in fish catches over the last 5 and 15 years. 83% of respondents replied that they had observed a decrease over the last 15 years and 70.7% a decrease in catches over the last 5 years. Similar responses were also received regarding declines in the size of fish caught over the same periods. Although the evidence is perception based, it is consistent across a wide range of anglers and is not confined to some historic period but appears to be continuing.

In choice experiments, Drew Associates record that both shore and boat anglers would be willing to pay more, to be able to catch bigger fish. This suggests that it is the size of the fish that would most enhance the recreational experience of improving fish stocks. They comment that the C2, D, and E social groups are most at risk from a reduction in stocks and catch because they are predominantly shore anglers and thus have more limited scope for adjustment of location.

In summing up under section 8.6 'Future prospects for the sector', Drew Associates clearly state that:

"Future prospects for the sector depend mainly on demand, fish stocks and facilities."

"Growth in the sector in England and Wales may be inhibited by lack of fish or poor fish quality."

"The value placed on additional fish caught was negative for boat anglers but positive for shore anglers. This indicates that increased stocks would provide benefits, especially to shore anglers. However, boat anglers might themselves run out of locational options if stock levels were to fall in future. In some regions all angling activity is limited by low stocks."

The words are clear: to realise the full socio-economic benefits, which sea angling has now proven to be able to generate, there must be abundant populations of sizeable fish accessible by both shore and boat anglers.

Before heavy commercial fishing for bass, many locations in southern England were a Mecca for angling for all types of sea fish, but particularly for bass. The varied coastline and large variation in fishing opportunities attracted anglers from all over the UK.

Bass are now extending their range northwards along the east and west coasts of England and Wales. In the summer, bass can now be caught in Cumbria, Yorkshire and Northumberland - the opportunities for larger numbers of anglers to go bass fishing are increasing as the range of the fish increases. Sustainable management of bass to capitalise on this recreational and economic opportunity should not be missed.

The Drew report indicates that there is a vulnerability to an increased switching of angling activity to locations outside England and Wales. The reasons for this are that many UK sea anglers are looking for more productive angling opportunities, a higher catch per unit effort, and greater frequency of bigger fish and to support those countries that have installed a sustainable management regime for recreational fish species.

With an estimated 25 million anglers in the European Union, who have a massive cumulative spending power, the UK should be an importer of angling tourists seeking high quality bass fishing or general shore angling.

The first step in achieving this and realising the economic gains to be made is the restoration of inshore bass stocks followed by measures to ensure long-term productivity and sustainability.

Section 3 Key Points Summary :

• Recreational Sea Angling is a low impact activity by comparison to commercial fishing activities.
• First hand commercial sale value of all sea fish landed in England and Wales in 2003 of primary interest to sea anglers was £30.7 million.
• First hand sale value of bass landed in England and Wales in 2003 was £3.12 million.
• In 2003 Recreational Sea Angling economic impact was £538 million per annum, 12.7 million angler days, 1.1 million households, 1.45 million sea anglers.
• In 2003 Recreational Sea Angling spending translated into 18,889 jobs.
• Estimated 400,000 bass anglers in England & Wales with an economic impact/spending power of £106 million per annum.
• Bass sport fishery in England & Wales estimated to be able to generate £200 million per annum with recreationally healthy stocks of larger bass.
• In Europe there is an estimated 25 million anglers with a cumulative economic impact of Euro25 billion.
• Development of Recreational Sea Angling potential is currently being restricted by poor recognition of its economic importance.

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4. Sport Fishing Economics - Case Histories

4.1 Southern Ireland

The UK has lagged far behind other countries in realising the economic potential of proactive management of the marine fish species targeted by recreational anglers.

In Ireland, bass stocks have been managed with a view to long-term sustainability of the natural resource since the 1980s. Further to this, there have been an increasing number of returns from visiting anglers. Tourism based sea angling for bass now generates millions per annum for the local and national economies. In 1997, The Department of the Marine valued domestic and sea angling tourism at £27 million per year in Ireland, which generated 1,250 full time job equivalents and £6 million in tax revenue. Recent reports estimate that tourism spending on sea angling in Southern Ireland is predicted to rise to £40 million, with tax revenues of £8.5 million.

The Irish Government continues to see the development opportunities for recreational angling and in 2002; the Marine Minister launched a Euro39 million (£24 million) investment plan for the angling sector in Ireland. The investment plan will cover all aspects of recreational angling including training, promotion and marketing.

In the Spring of 2002, the Irish Government also invested in an international advertising campaign aimed at attracting 30,000 or more recreational sea anglers to Ireland, to increase the annual income generated by sea angling by a further £12 million. Studies have shown that each visiting angler spends on average a minimum of £650 per visit.

Such is the impetus of this approach to recreational angling that many Irish inshore commercial fishermen are considering a change from traditional commercial fishing to the more lucrative charter sea angling business, which is expanding each year.

An example of the quality of the bass angling now available from the shore in Southern Ireland was experienced in 2004 by 7 visiting anglers from the UK. Their bass catches were as follows over a period of one week:

Notes: Of the 131 bass caught, only 4 were retained for consumption. Estimated spend of seven anglers in one week = £5,200 Although angler 7 only caught 8 fish, 6 were of specimen size inc. one of 9lb

It is a sobering thought that here in the UK, many seasoned bass shore anglers have never caught a fish of over 5lbs.

How has Southern Ireland created a bass fishery of such quality for shore anglers?

The answer lies in the legislation introduced 14 years ago that was brought in to protect bass from over exploitation.

On 1st July 1990, the Statutory Instrument 128/1990 - Bass (Conservation of Stocks) Order was created. The effect of this order was to:

• Prohibit fishing for, landing, transhipping or having on board bass by an Irish sea-fishing boat and to prohibit the use of nets.
• Set a minimum bass size of 40 cm.

This Order currently remains in force.

In addition, a further Order and bye-law to protect bass were introduced. Both of these are reviewed annually and are as follows:

Statutory Instrument 231/2003 Bass (Restriction of Sale) Order 2003

The effect of this Order is to prohibit the sale or offer for sale of bass (other than imported bass) from 1 July 2003 - 30 June 2004.

Bass Fishing Conservation Bye-Law No. 791 of 2003

The effect of this bye-law is to impose a bag limit on anglers of two bass in any one period of 24 hours and to provide for a ban on angling for bass during the spawning season (15th May 2004 - 15 June 2004).

What about enforcement of these laws? To date, 19 prosecutions for contraventions of the bass legislation have been made. This illustrates that appropriate restrictions in combination with effective enforcement go hand in hand to ensure that the stocks are protected to promote best value.

4.2 United States of America

Red Drum (Sciaenops ocellatus) Sportfish Restoration

In the 1970s and early 1980s, sport fishing along the Texas coast was declining. Commercial fishing, habitat destruction and few angling regulations all contributed to severe over-fishing. It was evident that without serious changes to the management of species such as the red drum, then the fishery and fish populations would be on the verge of collapse.

Extensive monitoring programs were initiated in 1974 in order to base the decisions needed to implement new management approaches on the best available data.

The restoration program initiated was based on a number of general objectives as follows:

• Allowing the fish to spawn at least once before entering the fishery
• Prevention of growth over fishing
• Provision of a quality trophy fishery
• To ensure adequate recruitment each year

All of the above objectives were based on annual stock assessment information that included both scientific surveys and angler surveys. This ensured that sport fishermen played an active role in the management strategy developments.

As the various fisheries monitoring approaches produced data, they further justified more stringent management measures such as:

• Bag limits of 3 fish per day for anglers
• Fish slot size limit of 50.8cm - 71.1 cm total length
• Banning the use of entangling nets to reduce the unacceptable capture of red drum as 'by-catch'.

The result of implementing such measures has been dramatic. The Texas red drum population is now more than double what it was in the mid 1970s. The average weight of red drum caught by sport anglers has increased from 0.9kg in 1978 to 2.27kg. Sport boat angler catches have increased in terms of number of fish caught by 44% since 1976 and in terms of weight by 215%

.

The success of the restoration programme has even led to the relaxation of some of the fishery regulations, allowing the retention of larger red drum in excess of the previously prescribed slot limit. Anglers who have experienced this dramatic recovery in red drum populations are even rejecting proposals to further increase the bag limit, stating that they believe that three fish weighing an average of 2.27 kg each is more than enough per day for any one angler to retain.

This highly successful example of a sport fish recovery could not have been possible without all the interested parties working together.(Lawrence et al 2003.)

Atlantic Coast Striped Bass (Morone saxatillis) Recovery

One of the greatest success stories of restoration of an important commercial and recreational marine fish species is that of the striped bass on the Atlantic coastline of the USA.

"The most successful restoration of a fin fish stock in the history of North America", announced the Atlantic States Marine Fisheries Commission (ASMFC) when reporting on the state of striped bass stocks in 2003.

The Atlantic coast migratory striped bass has supported important recreational and commercial fisheries from Maine to North Carolina for centuries. Steady declines in the abundance of striped bass in the 1970s (supported by commercial landing data) raised serious concerns about changes to the population of this species. In order to stem the decline, both individual state management actions and coast wide management measures were implemented through the Atlantic State Marine Fisheries Commission (ASMFC) lnterstate Fisheries Management Plan for Striped Bass. The Atlantic Striped Bass Conservation Act 1984 allowed the ASMFC to recommend federal imposition of a moratorium on striped bass harvest in states that failed to implement such management plans.

The primary reason for the serious decline in striped bass populations was over-fishing. To allow the striped bass to recover, various coastal states implemented restrictions ranging from total moratoriums on fishing of all kinds (including angling) to highly restrictive limits on fish retention size, quota and bag limits.

By 1989 there was evidence that the striped bass had responded well to the restrictions and that populations were beginning to recover. As such, a transitional fishery commenced in 1990 but with severe penalties and high profile enforcement for transgressors.

As part of the overall recovery plan, recreational anglers successfully convinced the legislators that all future management and recovery programmes for the species should take full account of the socio-economic impact made by sport anglers fishing for striped bass. It was becoming clear that the value of a striped bass in economic terms was significantly more than simply that value of a fish landed on the market from a commercial vessel. Management plans factored in this information such that striped bass are now managed primarily for recreational amenity, providing significant national economic gain.

Recreational anglers still have to abide by strict rules such as;

• Bag limit of one fish per day
• Minimum size limit of 71cm to ensure fish have spawned at least twice

In 1988 a loophole in the management plan was realised: the commercial harvest of striped bass taking place in the exclusive economic zone that extends from 4.8km to 322 km out from the Atlantic coast. To ensure all the good progress made was not lost via commercial exploitation and over-fishing in this area, a total striped bass harvesting moratorium in this zone was declared and is still currently in force.

Figure 2 below shows how striped bass populations have recovered as a result of the recovery plans (Atlantic States Marine Fisheries Commission 2000).

In 1999, recreational anglers retained 1.3 million striped bass and released 12.5 million. Commercial harvesting accounted for 1.1 million bass (Atlantic States Marine Fisheries Commission 2000).

How have the striped bass recovery plans impacted upon local and national economic gains from recreational angler expenditure? The populations of striped bass and number of angling trips have increased by over 500% since 1982. Recreational expenditure on striped bass fishing has increased from $85 million in 1981 to $560 million in 1996. In the State of New Jersey the number of marine angling trips increased from 1 million in 1981 to 7.48 million in 2001.

A recently published study confirmed that the value of sea angling expenditure is 13 times greater than the value of the commercial landings in the USA, and that recreational angling only accounts for 3% of total fish mortality. Commercial landings account for 97% of fish mortality.

In 2004, the striped bass boom continues. An example of what this means to small coastal communities can be seen in an extract from a report in a local newspaper (Virginian Pilot 1 March 2004).

Winter striped bass fishing has been robust on the Outer Banks since before Christmas. On Friday it went through the roof.

"I've never seen so many in my life", said Billy McCaskill, owner of Whalebone Tackle in Nags Head since 1977. "They're everywhere. I would say yesterday and today, it's the best it's ever been. Some of these people don't usually catch anything, and they're catching them". "They're all over the place" agreed Currituck angler Nathaniel Kinnaird. Once the word got out, the fishermen didn't waste any time. By Friday morning, vehicles spilled onto both sides of N.C 12 at Oregon Inlet Fishing Centre. Trucks and trailers were in every possible spot in the parking lot.

At the fishing centre, stories abounded about seeing wall-to-wall fish for miles, about catching two, three stripers at a time.

"They're as thick as flies" said Eugene Jordan, who drove down from Burlington, N.C. on Thursday to get into the action. "It just seems like the numbers are increasing and its been a madhouse with all these people". While waiting near a boat ramp at the fishing centre in his skiff, Jordan was surrounded by other fishermen coming in from a day of fishing, their holds or coolers brimming with stripers and maybe a few bluefish. Bobbing boats were backed-up by the dozen, waiting for a turn on the ramp.

Judy Williams, the fishing centre's manager, said that it was the busiest January 2nd in memory, better than some July 4th weekends she had seen. First thing in the morning, vehicles trailing boats were backed up, she said for 3 miles toward Nags Head. When she arrived at work at 07.30am, there were two state Highway Patrol Officers directing traffic into the fishing centre - another first for a winter weekend.

Williams said that 200 boats, mostly recreational, were launched at the ramp on Friday and at least 50 were turned away because there was no room to park. She also said that 20 boats were booked for half-day charter trips today - unheard of in January.

Williams said that the fishing centre usually closes from mid-December through to March. But this year, they'll stay open as long as the fishing is good.

"I've never seen anything like this", she said. "It"s been excellent, just excellent striper fishing".

"Fishermen seem content - thrilled, really - with the plentiful striper catch. It's been worth putting up with the unusual crowds for a good day of fishing", Kinnaird said.

Although it is unlikely that the same type of experience could ever be created in the UK, due to the fact that a much larger percentage of the USA's population participate in outdoor pursuits such as angling, it is clear that if bass stocks are returned to full health and managed primarily for angling, then the anglers will come to where the fish are and will spend significant sums to do so, to the benefit of small local communities.

Section 4 Key Points Summary :

• Given the political will and a robust management plan, it is possible to restore depleted marine fish stocks.
• Once restored, the economic, social and fiscal benefits derived by all stakeholders, ensures that best value is achieved and maintained due to common 'ownership' of the resource.

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5. Single Stakeholder Domination - The Need For Equal Access To and Management Of A Common Resource

5.1 Background

At the current time, sea fish in UK waters are managed and studied solely with regard to the commercial fishing industry. The fish resources found around our coasts have been viewed as something to be caught, killed and sold as food, or even in some cases as fertilizer to support agriculture. The ethos among commercial fishermen seeking to earn a living from the sea has been to catch as much as possible as easily and as quickly as possible, before a competitor takes the resources. The drive to capture fish as food for the nation has overridden the legitimate interests of all other users.

As a fishing nation, the UK has historically put significant resources into all aspects of the commercial industry from subsidy to regulation. In some respects it is easy to understand why MAFF and now Defra focus only on the management of marine fish for the commercial industry. Commercial fishermen have the biggest impact on fish stocks and as UK waters and stocks are also accessible by EU countries, the greatest risk to the stocks from over exploitation comes from those who need to make money from the resources in a dead form. Concern, however, is growing about what is happening to our common marine resource and more importantly how it is being managed. The United Nations Food and Agriculture Organisation state that 48% of global fisheries are completely fished out, 16% are profoundly over-fished, and 9% are depleted (Porritt 2002).

At this rate of decline, not only will commercial fishermen soon have nothing to fish for but all the associated industries who rely on fish as the raw material will decline or will rely on imported fish, placing further pressure on the few healthy stocks which remain. The signs are already there with 62% of fish in the UK now coming from imports (SeaFish 2004).

What about the other legitimate users of the same marine resource? Other users such as recreational sea anglers who have a right to access inshore fish stocks and produce a superior national economic benefit from a handful of fish species, seem to have been completely forgotten, or even worse, ignored.

For years recreational sea angling has been viewed as a hobby, to enjoy once one finishes work. The notion that recreational sport fishing involves a rod and line with a fool at one end and a worm at the other (Gilbert 2001) is unfounded. Descriptions like this about anglers and the degree to which proactive management of their interests (fish) has been ignored, could be viewed as discrimination against a sector of society.

5.2 Sponsoring Departments

One of the reasons that the interests of recreational sea anglers have received little or no attention or management, is the lack of a recognised government body or department which has the responsibility for both sustainable stock management and marketing and development of the recreational sector.

The absence of a department with a clear focus and the political weight to proactively influence fisheries management policy for the benefit of recreational sea angling has disadvantaged sea anglers, leading to a poorer quality of fish needed to maintain the sport, and to a depleted input to the national economy.

Other countries have been more proactive than the UK. The two case histories outlined in section 4 of this report show that in Ireland and the USA, there is full recognition of the economic importance of sea angling at the highest levels. In Ireland, the Department of the Marine proactively supports the management of bass for angling, through legislation restricting exploitation and through significant investments in the tourism sector to boost income to rural coastal economies from visiting anglers. In the USA, the Atlantic States Marine Fisheries Commission is the government driver for regulation and monitoring of the striped bass fishery on the eastern seaboard. Significant government funding is directed to fishery monitoring and management in order to maintain a high quality recreational striped bass fishery, as well as a secondary but sustainable commercial fishery.

In Australia the Federal Government's 'Commonwealth Review of Recreational Fishing Policy 2001' recognises the role that individual States play in managing recreational fishing activity in Australia - a sport undertaken by millions of Australians each year and an important economic driver in eco-tourism.

The Australian Federal Government stated that, "recreational fishing must be an integral part of Commonwealth fisheries management and must be provided with rights and responsibilities". Following a workshop designed to further explore this statement, the Federal Minister for Fisheries, Forestry and Conservation stated: "It will now deliver on the Federal Government's commitment to ensure that, in close consultation with peak bodies such as RecFish Australia, recreational fishing becomes an integral part of Commonwealth fisheries management" (Syvret 2003).

In England and Wales it has been suggested that the Department of Culture Media and Sport (DCMS) is the government department with responsibility for recreational sea angling. This government department appears to have no political weight to impose regulations for restricting the over exploitation of sea fish such as bass, in order to promote and develop increased sea angling quality. There is little point in being able to market and promote sea angling in the UK without the combined power to also be able to manage the stocks. Defra is the department with the powers to manage sea fish stocks through new legislation and enforcement, yet they appear to have little responsibility for the promotion of the recreational sea angling industry or the common resource on which the industry depends.

Without a single government department having an overall responsibility for recreational sea angling (covering all aspects) or a will to invest public funds to promote an industry with high economic growth potential via best value management of the commonly owned resource, then the ability to progress sustainable sea-angling-focussed policies will be severely restricted.

Ironically, the government model required for sea angling and the fish species on which it depends is already in existence in the UK.

The Environment Agency has a statutory duty under the Salmon and Freshwater Fisheries Act 1975 to 'maintain, improve and develop salmon and freshwater fisheries'. Considerable funds are used each year from both license income and government grant-in-aid to ensure that these freshwater fisheries are managed, monitored and regulated.

A good example of the quality of this work has recently been published in the EA report 'Our nations' fisheries - the migratory and freshwater fisheries of England and Wales - a snapshot' (Environment Agency 2004). This 97-page report covers all aspects of the status of stocks and the improvement works underway to make them better and sustainable. The foreword to this report states:

"The fish populations of England and Wales, together with the fisheries they support, are of enormous environmental, social and economic value. Fish contribute substantially to the economies of both countries with four million anglers spending around £3 billion a year.

In Wales and England angling tourism is growing, bringing new income to these areas. And in urban areas angling provides a healthy and enjoyable pastime and is often the first contact many people have with wildlife."

The foreword concludes:

"This report presents for the first time information about the condition of the fisheries for the whole of England and Wales. It also highlights some key issues that we need to address in order to guarantee the future of our fisheries."

All of the above statements relating to freshwater fish populations in England and Wales can be stated for marine fish, which support recreational sea angling.

Is it not about time that the interests of recreational sea anglers are represented by the government in the same way as that of their freshwater angling counterparts?

Section 5 Key Points Summary :

• Sea fish stocks are currently only managed by Defra for the benefit of the commercial industry
• The greatest risk to marine fish stocks comes from commercial over-exploitation
• Recreational Sea Angling requirements from sea fish stocks are generally ignored
• There is no single government body which has overall responsibility for the protection and management of marine fish to support Recreational Sea Angling
• Other countries are far more proactive with regard to policies and management of fish stocks supporting sea angling, recognising the significant economic benefit of this approach.
• The Environment Agency has a specific statutory duty to 'maintain, improve and develop' freshwater-fisheries but there is no parallel for marine species (such as bass) in England and Wales.

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6.0 Restoring The Balance. Proposals for Achieving a Sustainable Bass Fishery and Best Value From the Resource

At previous meetings with Defra, the Bass Anglers' Sportfishing Society put forward discussion proposals on two important issues:

1. The UK has to be confident that the potential benefits of unilateral management measures inside territorial waters (inside 12 mile limit) will accrue to UK exploiters. The net benefits of measures for the UK should exceed current benefits even if a proportion of the benefits that will accrue under revised management measures for bass spill-over into waters outside 12 miles.

2. The UK has to be confident that any management measures implemented inside the 12-mile limit can be applied to foreign vessels fishing under historical rights as well as to UK vessels. It is believed that recent legislative changes, following reform of the Common Fisheries Policy, are believed to facilitate this (Article 9 Council Regulation (EC) No. 2371 / 2002).

Feedback from Defra to BASS has indicated that the points outlined above could be met on both accounts depending on the type of bass management measures proposed.

The previous sections in this report have presented the case for improved management of bass in England and Wales to achieve Best Value. This section of the Bass Management Plan (BMP) Report now outlines a number of specific proposals which, if implemented together, or within a short time-span, would reduce exploitation pressure on bass in UK waters, and would allow for restoration and sustainable exploitation of stocks for the benefit of all stakeholders, with a particular focus on recreational angling.

These proposed management tools are well proven in other parts of the world, where the importance of recreational use of fish and game resources, are recognised and managed for the key socio-economic benefits. They focus on placing the well being of the commonly owned resource above that of commercial exploitation by mankind, ensuring that, in the future, our fish stocks are allowed to reproduce and flourish for the benefit of the community as a whole.

The BMP management tools include:

1. Bass Commercial Licences - for the retention of bass.
2. Bass Carcass Tags - to cap effort, increase traceability and improve enforcement.
3. Bass Bag Limits - to limit the retention of bass by unlicensed fishermen and anglers and to aid detection and enforcement of illegal fishing.
4. Closed Season - to protect spawning bass when they are vulnerable.
5. Increases in Minimum Landing Size - to strengthen the brood stock.
6. Nursery Area additional measures and enforcement - to protect juveniles.
7. Near-Shore Netting Restrictions - to protect our fragile coastal zones.

A Strategic Plan for the management of the bass fishery within UK coastal waters

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Salient Features of Proposed Management Measures

In order for a 'primarily' Recreational Sea Angling' (RSA) -orientated bass management scheme to become effective, it requires the legal establishment of stock prosecution control mechanisms that produce best value returns in an equitable manner, with the successful integration of clear and simple enforcement methods. This should be achieved, at least in the medium-term, within a self-funding scheme.

As exploitation control mechanisms are fundamental to the fishery management plan, BASS proposes the following mechanisms, which are intended to meet, as best as possible, the delivery output requirements in terms of stock prosecution control, administration control, revenue generation, ease of enforcement and management information.

(1) Licences

Commercial Fishermen
Provided to commercial fishermen who can provide a track record over the past three years (2001 - 2003 inclusive) of a 'significant' reliance upon bass. Such a licence would enable them to catch and retain a pre-specified NUMBER of bass, controlled via a carcass tag scheme, within the requirements of other management mechanisms. Licences may be purchased, initially for a nominal fee (with the ability to increase charges if required) or issued free of charge at the outset and reviewed later. The total number of licences would be set at commencement and could not be traded, or their numbers increased, without the specific agreement of RSAs.

(2) Carcass Tags & Buyer Beware

A carcass tagging scheme is suggested in which the tags would be purchased against an initial allocation to each licensed commercial fishermen. The allocation would be determined at the outset on the basis of track record evidence, required for licensing and not liable to be increased without RSA approval.

• Tags would need to be traceable to each owner for reasons of compliance.
• They would assist in the prevention of sale of 'black market' fish, if combined with appropriate Buyer Beware enforcement powers, to enable the entry / search of people and premises by those made responsible for control / enforcement. Salmon legislation provides an appropriate model.
• The cost of tags could be set to aid bass stock control and enforcement and would benefit the targeting of larger fish (in line with increased MLS) where their relative cost per carcass becomes less significant/more economic.

Valuable management information opportunities exist for this scheme.

(3) Bag Limits For Recreational Sea Anglers

Subject to the other management mechanisms being in place, a daily bag limit for the retention of bass is proposed as a measure to control sea angling fishing mortality and to facilitate enforcement. Useful management information may also result through a managed voluntary catch return system.

(4) Closed Season

It is suggested that bass would not be retained by any of the stakeholder groups, within the UK's 12 - mile limit in the months of January, February and March, on environmental grounds in recognition of the spawning nature of the species during this time. Commercial bass licences would only be valid between April and December. Some precautionary flexibility to these times should be allowed, to account for any biological changes that may result in the future.

(5) Minimum Landing Size (MLS)

It is thought that the 2002 year-class for bass is extremely good and this may provide a strong stimulus to 'best value' delivery if it can be protected in terms of numbers and average size up to 55cms.

Based on current growth estimates, we suggest that this year class should be protected by incremental MLS increases. These would apply to all exploiters and may require technical control changes to some methods. Such a springboard opportunity for the furtherance of the plan should not be underestimated.

(6) Nursery Areas

Existing nursery areas should remain and be strengthened via the introduction of further restrictions on netting. Allowing bass nursery areas to operate as recreational catch and release only zones, is promoted as a way of increasing the 'quality experience' potential of fly fishing for bass.

(7) Near-Shore Geographic Netting Restrictions

Option a)
In view of the damage to bass stocks occurring through near-shore and beach-based netting, it is recommended that all forms of netting (excluding that for licensed or approved scientific studies or approved methods that are unlikely to result in the capture of bass) for all fish, be excluded from a defined area around the coast. This should include at a minimum that area seaward within 1 mile of the Spring Low Water Mark and all coastal waters landward of the SLWM.

This measure would aim to include the prevention of so called 'recreational netting for own consumption' (perhaps on method restriction grounds) leaving an individual who wishes to net for bass the ability to obtain a commercial licence if a track record can be proven.

Option b)
The exclusion of all netting for bass within the 6 mile limit, thereby making the commercial bass fishery a hook and line only activity for licensed fishermen within this area.

(With either option the previous management mechanisms would equally apply.)

Many of the BMP proposals would need to be introduced or implemented by Defra in the form of variations to existing fisheries' Statutory Instruments (Orders) or possibly by the introduction of new Orders. Introduction of Orders and variations by Defra is preferable to the creation of byelaws by individual Sea Fisheries Committees. Orders, if successfully introduced, would be applicable on a national basis and are wider ranging compared to regional or local byelaws with limited scope. New orders or variations required to support the proposals would be secondary legislation.

A longer-term objective however would be the consolidation of all bass-related orders and variations into a new 'Bass Act'. Such an act would be primary legislation and would more than likely be the vehicle to give bass formal marine game fish status. An alternative opportunity for designating bass as a recreational game fish may also be present within the structure of the proposed Marine Act. Within such an act it may be possible, via secondary legislation, to provide the Minister with the power to make orders designating sea fish species as recreational game species. Proposed wording for new legislation as below which supports the BMP proposals, is written in bold following each section of the relevant legislation. Each of the 7 bass management plan proposals are written as stand alone measures. It should be noted, however, that should all or some of the listed proposals be introduced at the same time, then some of the individual proposals may become redundant.

The primary Parliamentary Act under which the various BMP proposals could be achieved is: Sea Fish (Conservation) Act 1967 (hereafter referred to as 'the Act').

This Act contains enactments which provide for ...regulating the commercial use of fishing for, and landing of sea fish, and for authorising measures for the increase or improvement of marine resources.

We propose a Bass Licence for Commercial Fishermen, 'Hobby Fishermen' or Anglers wishing to sell bass for profit captured from a boat. In general, persons selling sea fish for profit from a boat should be registered and licensed to sell fish, in addition to the proposal for a specific bass licence.

The preferred option is to regulate the number of entrants who are able to prosecute the bass fishery for profit via the introduction of a specific single species bass licence by way of a new order under the Sea Fish (Conservation) Act 1967.

Such a license would only be available to applicants with a proven (2001-2003) bass capture and sale track record. In addition, the annual number of bass captured by licensed fishermen would be capped by the provision of single fish carcass tags based on track record captures. Allotment of annual tags against any track record would be made assuming an average size of bass previously captured of approximately 1.5 kg. The sale of any bass without a carcass tag would be an offence, as would the possession of wild bass offered for sale without tags.

The ability to track wild caught bass for management and enforcement purposes will be required as part of a package of measures.

Wild bass which have been caught and tagged and then sold to fish merchants, restaurants, supermarkets or wet fish shops should retain the carcass tag until such time as the bass is consumed. To ensure that any loopholes are closed it is proposed that new legislation is created, which makes it an offence for any tag to be removed from a bass offered for sale. Any outlets where wild bass are offered for sale or consumption (second point of sale) will be guilty of an offence if wild bass are detected on the premises without tags. Any bass that are stated to be farmed and not requiring a wild bass tag must have receipts to show where the farmed bass were purchased and from whom. It will be important that bass tags are individually coded to try to prevent tags from being copied or reused. It would be preferable that wild bass could only be offered for sale to retailers as whole tagged fish. This will ensure that wild bass, which had been filleted and sold without tags, could not easily be mixed with farmed bass, which had been filleted. Fisheries officers should be given new powers to inspect bass either on display or in storage. The principle of 'Buyer Beware' is already well established within salmonid legislation. The proposal for bass is therefore a simple adaptation of this principle to another species.

Section 4 (1) of the Sea Fish (Conservation) Act 1967 states that:

The Ministers may by order provide -

(a) That in any specified area within British fishery limits, fishing by fishing boats (whether British or foreign) is prohibited unless authorised by a license granted by one of the Ministers (This provides the option to create a bass licence)

Section 4 (2) states:

Such an order may apply to fishing generally in the specified area or to fishing:
a) For a specified description of sea fish (in this case Dicentrarchus labrax)

b) By a specified method (hook and line only)

c) During a specified season of the year or other period (a bass licence is only valid for the capture of bass in the period April - December inclusive. This would automatically exclude the spawning season and make the capture and retention of bass by a licence holder outside of the prescribed period illegal)

d) In the case of an order made under subsection (1) (a) by fishing boats registered in a specific country (French vessels with historic rights inside the 6-12 mile boundaries could apply for a license but would be bound by the conditions of the license if fish were landed in Britain. Not sure what would happen regarding compliance with license conditions if fish were caught in the 6-12 mile area but landed in France)

Section 4 (4) States:

An order under this section if made with the consent of the Treasury given for the purposes of this subsection may authorise the making of a charge for a license under this subsection. Such an order shall specify a maximum charge and may specify different maxima in relation to different classes of licence (Licence fees should have band charges related to the track record size of the license applicant. Such a licence charge would need to meet the administration charges plus production charges for tags and catch return data analysis and reporting.)

Section 4 (5) states:

A licence under this section shall be granted to the owner or charterer in respect of a named vessel and may authorise fishing generally or may confer limited authority by reference to, in particular:

a) The area within which fishing is authorised

b) The periods, times or particular voyages during which fishing is authorised (refer to spawning season restriction)

c) The descriptions and quantities of fish which may be taken (it is possible that this section could be used to introduce a licence condition to limit the number of bass taken by way of using carcass tags allotted on the basis of track record)

d) The method of sea fishing (specify hook and line only)

Section 4 (6 A) states:

The conditions subject to which a licence may be granted under this section may differ as between different vessels or between vessels of different descriptions (This section may allow the definition of fishing boat to be broadened out to cover any boat engaged in sea fishing activity of any kind as opposed to a boat being employed in sea fishing. The licence would need to apply to any boat of any kind where bass were captured for sale and profit)

Section 4 (11) states:

The Minister may make arrangements for any of their licensing powers under this section (but not the power to make orders) to be exercised by other persons on their behalf (e.g. Sea Fisheries Committees or Environment Agency for example)

The evidence in the case histories on restoration of other marine recreational fisheries has shown that a key measure to control recreational angling mortality is the introduction of angler bag limits.

The creation of a legal daily bag limit for bass will serve to reduce mortality, aid enforcement, and reduce the illegal sale of bass sold for profit by fishermen and anglers who do not possess commercial licences.

New legislation will be required to create such a national recreational bass bag limit. Wording similar to that used to create a bag limit for bass in Southern Ireland (Bass Fishing Conservation Bye-law No. 791 of 2003) would appear to be appropriate.

A closed season for the capture of bass is proposed as a pure conservation measure to ensure that spawning aggregations of mature fish are protected at all times from all forms of exploitation and capture. The objective of the closed season is to allow the spawning biomass of larger bass to increase significantly by comparison to current stock levels and age distributions. A larger biomass of bigger spawning fish provides a safety buffer for poor spawning years. Bigger fish are also generally more fecund per pound bodyweight than smaller first year spawners.

The preferred method for creating a bass close season would be by the introduction of a new order under Section 5 (1) of The Act.

Section 5 (1) of the Act states:

Subject to the provisions of this section (see below), the Minister may by order prohibit in any area specified in the order and either for a period so specified or without limitation of time:

(a) All fishing for sea fish

(b) Fishing for any description of sea fish specified in the order in this case Fishing by any persons (shore or boat) for bass (Dicentrarchus labrax) within British Fishery Limits (0-12 mile) between 1st January - 31st March inclusive is prohibited

(c) Fishing for sea fish or for any description of sea fish specified in the order by any method so specified (i.e. as above but only allowing fishing between 1st Jan- 31st March using hook and line as opposed to a total prohibition.)

Orders under this section may make different provision in relation to fishing boats of different descriptions.

Section 5(6) states (summarised) that any fish specified in the order caught during a prohibited period must be returned to the sea forthwith.

There is a danger of bass by catch during the spawning season if boats can legitimately prove that they are after another species of fish in the same area at the same time. If there are overlapping commercial species on recognised bass spawning areas which could mean bass by catch, then refer to Section 5(1) (a) which can be used to prohibit the capture of ALL SEA FISH in specified areas at specified times.

Section 5(8) States that any order as above applies to any fishing boat within British Fishery limits.

An increase in the current bass MLS of 36cm is proposed for three reasons:

(a) To ensure that bass have the opportunity to spawn at least once before being available (killed) to either commercial or recreational interests (Conservation and sustainability measure)

(b) To increase the abundance of larger of bass such that there is an increased chance of recreational anglers consistently catching bigger fish (increased fishing opportunities, increased satisfaction per angling trip and generation of increased economic input through increasing angler visits and tackle purchases - DREW report on willingness to pay to catch bigger fish etc)

(c) To promote a better price per kilo of bass caught by commercial hook and line fishermen and to increase the total value of bass caught to the same number of carcass tags using the same effort. (Promotion of sustainable local hook and line fisheries with limited effort (licences and tags) which generates an increasing return from bigger fish with the same effort.)

The objective is to try to protect the abundant 2002 bass year class to maximise its value as above by the introduction of phased MLS increases up to a maximum 55cm MLS.

An increase to the existing bass MLS of 36cm (total length) could be achieved via a Variation to The Undersized Bass Order 1989(Statutory Instrument 1989 No. 1285 Sea Fisheries Conservation of Sea Fish).

A stepped increase in bass MLS would probably require several variations of the above order but a single increase in bass MLS could be achieved via one variation.

B.A.S.S. would propose that the following bass MLS increases are adopted:

45 cm MLS - 1st January 2006

50 cm MLS - 1st January 2007

55 cm MLS - 1st January 2008

The principle of defining estuarine areas, within which juvenile bass are protected from boat-based exploitation, has been welcomed. However, it is now evident that the protecting legislation for these areas is very inadequate, as is shown by the existing loopholes and the difficulty of enforcing legislation effectively.

In many of the bass nursery areas (BNA) juvenile bass are now present all year round. However, many BNAs have open and closed periods, allowing boat-based exploitation at certain times. All BNAs should be closed at all times to all boat-based bass commercial exploitation.

In some BNAs, boat-based commercial and recreational exploitation is legally allowed (often via "drift nettin") for marine species other than bass (e.g. mullet).

The frequency of capture of bass in BNAs in 'mulIet' drift net fisheries is such that more bass are often caught than mullet. Where enforcement response or resource is low, many bass are retained illegally. Those bass, which might be returned, will show high mortality rates, especially if water temperatures are elevated as in summer. This loophole must be closed so that the use of nets (other than the use of sandeel seines by permission) for the capture of all sea fish from BNAs at all times is prohibited. This will fully protect juvenile bass and make enforcement black and white for enforcement agencies and fishermen.

In some BNAs, aggregations of juvenile bass in shallow bays (along with mullet) make them vulnerable to shore seine netting. The prescription to ban the use of nets per se for all sea fish in BNAs will prevent this.

BNA legislation currently allows the capture of bass by rod and line from shore locations within estuaries. To further promote angling it is proposed that all bass nursery areas are opened up to boat-based angling, but ONLY on a full catch and release basis. No bass must be retained in a boat, fishing within a BNA at any time.

Currently, Bass Nursery Areas are covered by The Bass (Specified Areas) (Prohibition of Fishing)(Variation) Order 1999. The proposals of the Bass Management Plan could be achieved by a further Variation to the existing order such that :

Section 2 (Prohibition) of the above order, which currently reads:

Fishing for bass (Dicentrarchus labrax) or fishing for any species of sea fish using sand eels (Ammodytidae) as bait by any fishing boat within any part of the areas described is prohibited during the periods specified in relation to each area.....

should read under a new variation to the order, as follows:

Retention of bass from a boat using any method within any areas described in this order is prohibited at all times. Fishing for other sea fish within any areas described in this order using any form of net is prohibited with the exception of a sandeel seine used to collect sandeels for bait with the previous written permission of the appropriate authority.

One of the biggest conflict areas between commercial and 'hobby fishermen' and recreational bass anglers, is the widespread use of monofilament gill nets within waters close to the shoreline. Gill net use by commercial and other fishermen, has been increasing year on year over the last 10 -15 years. Gill nets are very cheap, very effective, and very easy to set. Even small boats of 7m can easily work 5,000m (3 miles) of gill net.

The result of this gill net boom has not only been an impact on bass targeted by relatively confined shore anglers, but also a significant impact on untargeted species such as wrasse, juvenile pollack and dogfish. Some inshore directed bass gillnet fisheries are also responsible for the unintentional capture of salmon, sea trout and harbour porpoises.

In order to promote equal and sustainable access to inshore bass stocks by all stakeholders, but with an emphasis on promoting growth of the economic potential of bass for recreational shore angling by 400,000 bass anglers, it is felt essential that inshore gill netting should be restricted. Restricting gill net use in coastal waters will promote sustainable commercial exploitation through hook and line methods, licensing and carcass tagging, restoration of bass stock number and size (in combination with other measures), improved frequency of capture by recreational anglers and promotion of increased angling revenue to local communities.

The proposal to restrict gill net use in coastal waters could be achieved through a further Variation to The Sea Fish (Specified Sea Area) (Regulation of Nets and Prohibition of Fishing Methods) Order 1999.

Section 1 of this order (Title, commencement and interpretation) states the types of nets and the specified sea areas to which the restrictions apply.

A proposal under the Bass Management Plan, implemented via a variation to the above order would seek to revise the description of the Prohibition in section 2 of the order such that it added the following wording:

Prohibition

2. (1) Subject to article 3 below (details that it is not an offence to carry properly stowed nets on a boat in the specified area), in the specified sea area (* see below for currently specified sea area in this order) there are hereby prohibited:

(a) the fishing for all sea fish (or possibly just bass) by any boat with gill nets of any description in that area within the specified area above, which falls within 1 nautical mile seawards of the Spring Low Tide Mark (or where the depth of water is less than 20m at all states of the tide) (NEW WORDING)

(b) the fishing for sea fish by any British fishing boat/with gill and other specified nets of a mesh size of at least 71mm and rio1 more than 89 mm and.... (Existing wording)

(c) the carriage by any British fishing boat of any net of the description contained in subparagraph (b) above. (Existing wording)

* The specified sea area currently described in the above order is as follows:

"the specified sea area" means that area of sea within British fishery limits lying south of lines of latitude drawn through Haverigg Point in Cumbria in the west and Donna Nook in Lincolnshire in the East but excluding waters in that area which are adjacent to Northern Ireland and are not nearer to any point on the baselines from which the breadth of the territorial sea adjacent to great Britain or the Isle of Man is measured than to any point on the corresponding Northern Irish baselines.

The wording of the proposed variation would effectively prohibit the use of any type of gill net for sea fish within 0 - 1 nautical mile seawards from spring low water. It would allow the use of gill and other specified nets (as per order now) between 1-12 miles as long as the nets did not have a mesh size between 71 - 89 mm. The order would not prohibit the use of hook and line methods for retention of bass anywhere (except for bass nursery areas as described previously).

It should be noted that legislation which specifies that bass may only be caught commercially with a licence (which restricts the capture method to hook and line only) may well be equally effective at reducing the number of gill nets set within the 0 - 1 mile coastal band. This legislation would also aid the enforcement of legislation regarding the use of nets to catch bass.

Many of the measures required to protect bass and enhance the stocks for improved recreational access can be covered through secondary legislation via new orders and variations to existing orders. However, issues like buyer beware, recreational bag limits, and improved enforcement inspection powers related to carcass tagging, may well require new primary legislation. The move to designate bass as a fully recreational species or even the first UK marine game species would almost certainly require primary legislation unless there was scope for Ministers to make appropriate Orders to cover this within the current proposal for a new Marine Act.

The BMP proposal therefore recommends that within 5 years of the introduction of the secondary legislation outlined previously, Defra seek to consolidate all existing bass orders and create new legislation regarding licences, game fish status and buyer beware etc within a new Parliamentary Act.

Such an act should be called 'The Bass Act'.

Return to contents list at top of the page.

Extracts From Recent Reports which Support the Vision and Objectives of BASS

7.1 Commission Of The European Communities. Communication from the Commission To the Council and the European Parliament Biodiversity Action Plan For Fisheries COM(2001) 162 final VOLUME IV

Page 4, section 1 Introduction:

"This document proposes certain management objectives and measures in relation to the conservation and sustainable use of biodiversity in fisheries and aquaculture. The European Community Strategy for Biodiversity includes a requirement for the formulation and implementation of strategies that will enable the conservation and sustainable use of biodiversity across all policy sectors. The fisheries sector is therefore particularly subject to this requirement."

Page 4, section 3 Introduction:

"High fishing pressure over long time has led to a position where spawning stocks for many ground fish are at critical levels and some even close to collapse."

Page 5, section 10. The concept of Biodiversity:

"Application of the precautionary approach should secure sustainability ..."

Page 6, section 12. The concept of Biodiversity:

"History suggests that ecosystems or parts of them such as fish stocks, can recover when anthropogenic pressures are reduced provided that the habitat (and most importantly the genetic resources) have not been irreversibly damaged."

Page 6, section 15. Overall objectives of the Action Plan:

"The overall objective, therefore, should be to define and identity, within the current legislative framework, coherent measures that lead to the preservation or rehabilitation of biodiversity where it is perceived as being under threat due to fishing or aquaculture activities. In the Commission Communication, four areas were identified as requiring action as regards fisheries:

To promote the conservation and sustainable use of fish stocks and feeding grounds through control of exploitation rates and through the establishment of technical conservation measures to support the conservation and sustainable use of fish stocks."

Page 8, section 22, Action Plan with Respect to Capture Fisheries:

"...the excessive harvests have resulted in spawning populations at historical low levels and which are dominated by only a few spawning year classes. Consequently, production is reduced and only catches well below long-term maximum sustainable yield may be taken. The fundamental problem is the imbalance in capacity between fishing fleets and the fish resources they exploit."

Page 8, section 24 , Action Plan with Respect to Capture Fisheries:

"The risk of major and irreversible ecosystem effect would be considerably reduced by managing the fisheries in a sustainable manner."

Page 9, section 33. The legal framework relating to fisheries:

Regulation (EEC) No 376/192 also provides management tools that may be used to introduce further protection to marine biodiversity. In particular article 4 of this regulation provides that the council may:

1. Establish zones in which fishing is prohibited or restricted, closed areas or no-take zones
2. Limit exploitation rates
3. Set quantitative limits on catches
4. Limit time spent at sea
5. Fix the number of vessels authorised to fish
6. Lay down technical measures regarding fishing gear and its use
7. Set minimum size or weight of individual fish caught
8. Establish incentives, including those of an economic nature, to promote selective fishing.

Page 12, section 43. Commercially exploited fish stocks:

"Various factors affect possibilities for conservation and the sustainable use of fish stocks, but the most important outcome is the level of fishing intensity and the nature of fishing which eventually takes place. Reduced fishing pressure will, for an initial period yield catches that are lower than those at present. In the medium and long term, reduced fishing pressure will lead to fish stocks consisting of, on average, a greater proportion of older, larger individuals and a larger biomass. This should also lead to enhanced genetic diversity within each of these fish stocks. It will furthermore lead to more stable catches with economical benefits for the fisheries and hence support sustainable development."

7.2 Government Strategy Unit Report 2004 - The future of the UK Fishing Industry - NET BENEFITS

Page 10, section 1.1.5

"...Government has a responsibility to manage these, sometimes competing, activities to ensure the best value is made of the UKs marine resources and biodiversity is preserved."

Page 12, section 1.1.6, recommendation 2:

"The overarching aim of fisheries management should be to 'maximise the return to the UK of the sustainable use of the fisheries resources and protection of the marine environment."

Page 14, recommendation 15:

"The fisheries departments should reform inshore fisheries management and give a focus on developing the sector, including explicit management of recreational sea angling interest."

Page 17, recommendation 31:

"The UK government and devolved administrations should develop an experimental program of marine protected areas focusing initially on areas, which provide benefits to multiple users (commercial fishing, tourism, environment, recreational fishermen>"

Page 24 , section 2.5.3:

"Commercial fisheries are only one user of a wider marine environment, alongside recreational activities (including fishing).A strategy is needed to integrate fisheries inside a framework of broader marine management, which aims to maximise the overall value of using the marine environment, in short eco-system health and resilience, and fulfill the UK's international obligations on marine biodiversity and species protection."

Page 43, section 3.4.2:

"A highly skewed age structure is damaging to stocks and fishermen, older fish are larger, have more eggs than young fish and they maybe more fertile, improving levels of reliability and recruitment. Older fish are usually more valuable in the market place; annual catches are likely to vary greatly from year to year to match the recruitment pattern. A more balanced age structure will buffer annual TAC against annual variations in recruitment.'

Page 47, section 3.4.4:

"In some cases, different uses of the environment are complementary. Coastal tourism, especially in the South West of England, relies on fishing to sustain the character of villages. However, there is also conflict between the different uses, particularly at the local level. Management to maximise opportunities for recreational anglers means reducing commercial fishing pressure to allow species such as bass, favoured by sea anglers, to grow to much larger sizes. Management for multiple uses is possible."

Page 110 section 8.1:

"To use marine resources in sustainable and ecological manner in order to achieve maximum environmental, social and economic benefit from the marine environment."

Page 112, table 8.1:

"Food provision and employment, value of landings, sea fish industry is £546 million. Recreation and tourism nett output equals £11.77 billion plus consumer surplus of between £256 - £504 million."

Page 157, section 9.6.3 - Developing the Recreational Fishing Sector:

Summary:

"The recreational fishing sector is a potentially high contributor to local economies in coastal areas."

There is need for better data on the value and contribution of this sector.

Fisheries management policy should recognise that sea angling may, in some circumstances, provide a better return on the use of some resources than commercial exploitation.

In some circumstances the economic and social benefits of sea angling for specific species may provide a greater contribution to society than if they are commercially caught. This is the case in parts of many other fishing nations such as New Zealand, Australia and the USA, where recreational angling has been aggressively promoted.

Fisheries departments should review the evidence supporting arguments for re-designating commercially caught species for wholly recreational sea angling, beginning with bass by the end of 2004.

Page 168, recommendation 15:

"Fisheries departments should reform inshore fisheries management and give a focus on developing the sector, including explicit management of recreational sea angling interests."

1.Research Into The Economic Contribution of Sea Angling. Drew Associates Limited on behalf of Defra 2003.

Location, participation and activity:

"Sea Angling is practiced all around the coast of England and Wales. 1.1 million households contain at least one member who had been sea angling in the past year.

....participation is spread across all social classes.

..most anglers had observed a decline in the number of fish caught and their size in the last 5 years."

Value of the experience to anglers:

"Consumer surplus on existing sea angling activity varied from £381 per shore angler to £886 per own boat angler. The annual aggregate mean consumer surplus estimate was £594 million. The total value of the angling experience was between £600 million and £1,300 million per year."

The economic contribution of recreational sea angling in England and Wales:

"The total expenditure by anglers resident in England and Wales was estimated as £538 million per year from 12.7 million angler days of activity.

...in terms of first round impacts, the spending translates into 18,889 jobs and £71 million in suppliers income. Angling spending by visitors was just under 1% of total tourism spending."

Case Studies and local economic impacts:

"Whitby and Hastings have been more severely affected by a lack of catch."

Key trends:

"Activity levels appear to have stabilised in the last decade. Future prospects for the sector depend mainly on demand, fish stocks and facilities. There appears to be a stable or