Seagulls (Coastal Towns)

(Limited Text - Ministerial Extracts only)

Wednesday 26th October 2011 Westminster Hall

[The Minister of State, Department for Environment, Food and Rural Affairs (Mr James Paice)]

I congratulate my hon. Friend the Member for Waveney (Peter Aldous) on securing this debate. I apologise on behalf of my hon. Friend the Minister with responsibility for the natural environment and fisheries. He would normally reply to this debate, but he is otherwise engaged. I am happy to stand in for him, especially as I was born and brought up in a seaside town lower down the Suffolk coast than Lowestoft, so I am familiar with the raucous cries of gulls.

I sympathise with my hon. Friend the Member for Hove (Mike Weatherley) because gulls are a major feature of seaside towns. As always, it is an issue of balance and getting the populations right. I recognise that high densities in urban or coastal areas can cause serious problems for the people who live and work there. Sensible and proportionate measures need to be taken to mitigate those problems.. A range of measures are already available, including, where necessary, lethal control and the destruction of nests and eggs. Those measures are regularly employed across the country to manage our urban gulls.

My hon. Friend the Member for Waveney mentioned the problems in Beccles. I understand that those problems were managed at least in part by the removal of nests and by deterring the gulls, and that Natural England has worked with local residents to find ways of managing the gulls that have caused problems.

Before we consider management, we must look at the conservation status of gulls. They are wild birds to which we offer protection, and our obligation under the EU birds directive to conserve the wild bird population is fulfilled in the Wildlife and Countryside Act 1981.

UK breeding populations of herring gulls have declined by 72% since 1969, and winter populations by about 50% over the past 25 years. As a result, the herring gull is now a biodiversity action plan priority species, and has been red-listed as a bird of conservation concern—the answer to my hon. Friend’s point about nuisance can probably be found in those statistics. Other gull species, including the great black-backed gull and—perhaps more importantly—the lesser black-backed gull, have also seen a decline in population, and although we sometimes see large numbers of gulls in certain areas, we may be forgiven for not realising that their conservation status may be under threat nationally. Although the population of some gull species has risen in urban areas, there has been a dramatic decline in the number of gulls found in their natural habitat.

I recognise the genuine concerns of my hon. Friend and other colleagues about gulls in their constituencies. Although the Wildlife and Countryside Act provides protection for all birds, it allows people to apply to Natural England for a licence to control problem bird species if there are no other satisfactory solutions—he saved me from having to read out the list of reasons that people can use to apply for such a licence. That licence would be granted on an individual basis, but some issues are covered under a general licence provided by Natural England that is available to anybody in the country and for which one does not need to apply—in theory, people are supposed to download information from the internet, but in reality culling is allowed under certain circumstances on the basis of the problems described by my hon. Friend. If someone believes that that general licence has been used for a different reason, the onus is on them to prosecute the case. That has happened in the past because these matters are not always easy; for example, if someone acts simply because they do not like gulls, they will clearly be breaching the terms of the general licence and be open to prosecution.

The general licence allows for the lethal control of the lesser black-backed gull where there is need to preserve public health and safety, or to prevent serious damage or the spread of disease. Many of the issues raised by my hon. Friend fall under those headings. Herring gulls have a more threatened status, but under the same general licences it is possible for an authorised person to remove and destroy their nests and eggs— I understand that that was one measure taken in Beccles. Licensed controls will therefore be necessary in some circumstances and, particularly in the breeding season, the removal of eggs and their replacement with dummy eggs—obviously under licence—can reduce the urban gull population if done for a long period. In the short term, such actions also reduce the likelihood of attacks from gulls.

Although licensed controls exist, they should not automatically be the first port of call and we should look at other measures to manage problems such as those to which my hon. Friend referred. There is no doubt that food supply is a major factor because gulls tend to increase in number and cause problems when there is a readily available source of food, especially if that combines with suitable habitats such as timber sheds.

The licensed control of gulls can prove effective in the short term, but we must look at the issue more widely. Access to food is the single most important factor controlling the gull population, and if food is denied they will go elsewhere and the problem may be resolved without recourse to other measures. It is a matter for individuals and local authorities, and I urge all local authorities to address the problem by using gull-proof methods of waste disposal such as rubbish sacks or—probably better—bins, and by reducing access to local landfill sites. My hon. Friend the Member for Gloucester (Richard Graham) suggested closing tips, but that would simply shuffle the problem elsewhere. Although the Government eventually intend to phase out landfill sites altogether, proven methods of deterring gulls without having to close a site and inconvenience constituents include the use of fireworks, visual deterrents, netting in some circumstances, and birds of prey. There is no single solution, but some methods have been proven to work.

Local authorities—indeed, all of us—should try to avoid spilling foodstuffs or leaving material around, keep food storage areas secure and bird-proof and ensure that disposal and waste facilities are kept clean and tidy. They should also try to stop people feeding the birds. The use of deterrents on our buildings is familiar to all of us in the Chamber because we live surrounded by them. In London the problem is pigeons, but proofing buildings with netting, metal spikes and so on could also be a way to address the problems caused by gulls. The fundamental answer to the concerns raised by my hon. Friend the Member for Waveney, and many others, is that eliminating those things that attract gulls will reduce the problem. In other words, we should get rid of their feed and prevent them from using the facilities and buildings that they see as a habitat or nesting area.

In September, the Minister with responsibility for the natural environment met my right hon. Friend the Member for Bath (Mr Foster), who has taken a great interest in this subject, and they discussed the merits of further research into the behaviour and ecology of urban gulls. Research, both completed and ongoing, has been carried out into managing urban gulls, and the Food and Environment Research Agency has investigated the movements of urban gulls, focusing on their movements between urban centres and landfill sites. It has also undertaken work funded by the Landfill Communities Fund to develop practical guidelines about deterring gulls from landfill sites. Those guidelines are in use by the Environment Agency. Studies funded by airport interests and water utility companies have examined methods to deter gulls from roosting in those areas, and such methods have been properly applied.

My hon. Friend the Member for Waveney referred to reservoirs. That is a crucial issue, but one to which all measures that I have referred to can be applied. In addition, I am advised that hand-held laser torches— I think it says laser, although it could be taser; I am reading my notes out because I have difficulty believing this—have been used at reservoirs with some success. I will leave my hon. Friend to work out exactly how.

A PhD study is examining the use of egg control to limit local breeding production in gulls. The hon. Member for Barrow and Furness (John Woodcock), who referred to contraception, is not in his place, but hon. Members will be aware of the idea of using contraception to constrain populations of all sorts of wild species. In some places, that is used; in others, it is being researched. I do not know of any research relating to gulls, but clearly it is an interesting point and perhaps we should consider it. That said, I assume that the only way to administer the contraception would be in feed and we do not really want to feed the birds—that would be a double-edged sword.

I hope that my hon. Friend the Member for Waveney understands that there is a range of existing tools that can be used to manage gulls. Where there are issues of public health and safety, methods such as the removal of nests or eggs or of the gulls themselves—the lethal control of gulls—may be relevant.

At the meeting with my right hon. Friend the Member for Bath, the Minister undertook to consider whether there was merit in taking forward more research on urban gulls, and we are examining that now. We can consider further research to help us to develop a greater understanding of urban gull behaviour, but we want to ensure that any such work delivers practical solutions.

In the meantime, I repeat that it is, as several hon. Members have said, for us as individuals and particularly for local authorities to use the quite considerable range of tools available at the moment to tackle the conflicts to which my hon. Friend the Member for Waveney so eloquently referred. He has used the opportunity afforded by Westminster Hall to raise genuine local concerns. Clearly, the problem cannot be dealt with in a few days. It requires concerted action by the community and by local authorities, working together over a sustained period, to take away all the things that attracted the birds in the first place. That is the bottom line, and we need to make concerted efforts to do it.

I am grateful to my hon. Friend for raising the issue and, quite properly, raising constituency concerns, and for allowing me to give the Government’s opinion. We have heard from other hon. Members, so clearly the issue is not unique to Lowestoft. I think that all of us have in some way witnessed the problems. I hope very much that what I have said is helpful to him and to his constituents and that sooner or later they will be able to sleep at night.

[Sir Alan Meale (in the Chair)]

Congratulations to the hon. Member for Waveney (Peter Aldous), to the Minister and to all the other hon. Members who have participated in what has been a most informative debate.

Question put and agreed to.