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The Minister for Agriculture, Fisheries and Food (Mr Robert Goodwill)
I congratulate my hon. Friend the Member for Berwick-upon-Tweed (Anne-Marie Trevelyan) on finally securing this debate. I thank all hon. Members who have contributed.
The UK is particularly blessed with seabirds. Indeed, it hosts over half the seabirds in the European Union during the breeding season, with approximately 3.5 million pairs across 26 species. The debate has given us an opportunity to celebrate that rich diversity, from Ayrshire to Berwickshire to Pembrokeshire. I suggest that the best place to view puffins is probably at Bempton Cliffs, which hon. Members will not be surprised to hear is in Yorkshire.
The Atlantic puffin is one of the UK’s most instantly recognisable and well-known seabirds. As our puffin champion, my hon. Friend the Member for Thirsk and Malton (Kevin Hollinrake), will attest, it is a creature close to our hearts. Its endearing features have been used as the symbol of children’s books and to illustrate many stamps, and it was even one of the 10 shortlisted birds in the vote to find Britain’s national bird—a contest that was eventually won by the robin.
I am species champion for the sand eel, so I am always nervous around my hon. Friend, given the proclivity of puffins to consume sand eels in large quantities. The sand eel is a species close to my heart, not least because of the work I did and the knowledge I gained in the European Parliament, looking at issues on the Dogger Bank, marine dredging and other forms of exploitation of sand eels that can have an effect on the environment if they are not done sustainably.
Puffins typically nest underground in burrows dug in the soil of offshore islands. They often mate for life, and pairs return to the same burrow year after year, if possible. The typical lifespan of a puffin is 18 years, but some have been known to live to 35. Sadly, the puffin is now listed as vulnerable by the International Union for Conservation of Nature and its global population is in decline.
The puffin is doing well in the United Kingdom, however—particularly on Coquet island, which lies off the coast in the constituency of my hon. Friend the Member for Berwick-upon-Tweed in Northumberland. Populations there have been gradually increasing since counts began in the 1980s. Indeed, populations in the north-east are generally considered to be stable, and the UK experienced an increase of almost 19% from 1988 to 2002. Considering that approximately 10% of the global puffin population breeds around Britain and Ireland, that stability is an important contribution to global numbers.
In the 19th and early 20th centuries, Atlantic puffins were heavily exploited for eggs, feathers and meat, causing a drastic reduction in populations and the elimination of some colonies. In England, puffins were considered a delicious food and were sold at the rate of three a penny. Since then, I am pleased to say that we have dramatically increased their protection.
Concerns were raised about the population in Norway. I plan to visit Norway over the summer, and that is one of the issues that I am likely to raise—along with the fact that, like Norway, we will very soon become an independent coastal state and be able to negotiate a better deal for the fishermen in the fantastic ports around our country, including in the constituency of the hon. Member for Great Grimsby (Melanie Onn).
Our seabirds are protected principally by special protection areas set up under the wild birds directive, and by sites of special scientific interest set up under domestic legislation. SPAs protect areas identified as being of international importance for the breeding, feeding, wintering or migration of rare and vulnerable bird species found in Europe. There are currently 47 marine SPAs that protect seabirds in English waters.
England’s largest breeding colonies of Atlantic puffin are found on the Farne islands and Coquet island, where populations have been increasing. The islands have been protected by SPAs since 1985, and puffins’ foraging grounds were protected in 2017 as part of the Northumberland marine SPA. That is one of the most important sites in the UK for Atlantic puffin.
As well as using these protected waters for feeding during the breeding season, puffins and other species also use them for other important activities, such as preening, bathing and socialising. These activities are all part of the behavioural repertoire for which they need undisturbed waters. Protecting both their nesting sites and foraging grounds gives iconic species such as puffins the best possible chance of breeding.
Unfortunately, we know very little of the puffin’s behaviour outside the breeding season. They are very difficult to monitor as they spend up to two thirds of their lives at sea. Those from north-western Britain disperse widely outside the breeding season, as far as Newfoundland in the west and the Canary Islands in the south. In contrast, most puffins from colonies in parts of eastern Britain, like Northumberland, remain within the North sea.
Puffins are a key part of the marine ecosystem and good indicators of the overall state of the marine environment, including the damaging effects of climate change. That is because their diet consists mainly of small fish, particularly sand eels, whose spawning season is affected by variations in sea temperature impacting upon their own prey of plankton. The puffin breeding cycle is less adaptable. If the sand eels are not available at the time that puffins are breeding, it affects how many birds breed and how many chicks they raise.
In 2000, our friends in the Scottish Government implemented a sand eel fisheries closure in an area off the east coast of Scotland to preserve this important food source for our seabirds. Other pressures on puffins related to climate change include the increasing frequency and intensity of storms, which have had a considerable impact. Indeed, in the winter of 2013-14 a succession of severe storms resulted in 54,000 seabirds being washed ashore, over half of which were puffins. This mass mortality had a serious knock-on effect on the breeding population.
As we have heard, puffins also suffer from the effects of pollution, particularly plastic pollution, and from predation by ground mammals such as rats. On Lundy island in the Bristol channel, the total population of puffins fell to just 13, largely due to rat predation. However, 15 years later and following the successful eradication of rats, the island’s puffin population has come back to life, with numbers soaring to 375. Although that number may appear small when set against the UK’s total population of 580,000 breeding pairs of puffins, these important birds produce only one puffling, or baby puffin, per year, and they are limited to a small number of breeding colonies. So protecting these sites is imperative.
To make sure that our puffins are sufficiently protected, my Department commissioned a review of the UK’s terrestrial and coastal network of SPAs. I am pleased to note that the first phase of the review, published in October 2016, concluded that the SPA provision for puffin breeding is sufficient.
Puffins will indirectly benefit from this Government’s plans in several other ways. Our 25-year environment plan sets out how we will fulfil our ambition to leave the environment in a better state than we found it, building on existing strategies and identifying key areas of focus. We want even cleaner air and water, richer habitats for more wildlife, and an approach to fishing, agriculture and land use that puts the environment first.
Globally, less than 10 per cent of the world’s seas are currently designated as marine protected areas, which is one of the most important ways to protect precious sea life and habitats from damaging activity. However, at home in our waters, we are at the forefront of establishing marine protected areas. We are committed to delivering a well-managed blue belt of protection around our coasts, and 40% of English waters are within marine protected areas. Just a few weeks ago, we created 41 new marine conservation zones, marking the most significant expansion of England’s blue belt to date. Within these zones, we are protecting species and habitats, such as the rare stalked jellyfish, the short-snouted seahorse and blue mussel beds. Two species of seabird are also being protected in these marine conservation zones: razorbills, off the Cumbrian coast; and eider ducks, along the Northumbrian coast. We discussed this protection in the previous debate on seabirds, which my hon. Friend the Member for Berwick-upon-Tweed also secured.
Overall, the UK now has 355 marine protected areas of different types, including SPAs, spanning 220,000 sq km, which is an area nearly twice the size of England. However, we are not stopping there. We recently announced a review to examine whether and how highly protected marine areas could be introduced for English seas. These are the strongest form of marine protection, which would stop all human activity that has the potential to cause harm in vulnerable areas. This review is being led by my right hon. Friend the Member for Newbury (Richard Benyon) and a panel of independent experts. It aims to establish criteria for designation and it will potentially recommend up to five pilot sites.
Of course, our blue belt would be meaningless without appropriate management measures to protect the sites. For example, activities that are damaging, such as the use of bottom-towed mobile gear, would either not be allowed or—if possible—adapted to allow them to continue in a way that does not damage habitats and enables sites to meet their conservation objectives. Regulators, such as the Marine Management Organisation and the Inshore Fisheries and Conservation Authorities, are responsible for making sure that no damaging activities take place in marine conservation zones, using a combination of byelaws and voluntary measures. These regulators will monitor marine activities to make sure that these measures are being followed.
We are a global leader in protecting the marine environment. Our updated UK marine strategy will include targets to ensure that good environmental status is achieved for seabirds, and it will also set the indicators we use to assess seabirds’ status and identify the pressures affecting them. We will continue to protect marine birds, for example, by reducing the risks to island seabird colonies from invasive predatory mammals, such as rats, by delivering the UK plan of action on seabird bycatch, and by reducing marine litter. The UK has a well-respected bycatch monitoring programme in place, which is run by the Sea Mammal Research Unit. The data that is gathered is currently being used to conduct a preliminary assessment of the extent of seabird bycatch across the UK, which will inform the initial focus of our plan of action.
As we have heard, plastic in the seas is a hazard for seabirds. I was pleased to take part in a debate here in Westminster Hall on packaging on Monday, which was secured by the hon. Member for Cambridge (Daniel Zeichner). Evidence shows that marine birds, particularly diving birds, can be injured or even killed by abandoned, lost or discarded fishing gear. Diving birds may become entangled in such gear when chasing fish, becoming trapped underwater and drowning. Indeed, as we heard from the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard), the scourge of micro-plastics and nurdles impacts upon a whole variety of species, including puffins and other seabirds.
In 2017, the UK signed up to the Global Ghost Gear Initiative, a pioneering scheme to tackle lost and abandoned fishing gear on a global scale. Through this initiative, we are committed to working with our partners to address the management of existing fishing gear, and the mitigation of the potential effects of abandoned, lost and discarded fishing gear. In addition, the UK continues to lead the way in tackling the scourge of plastic pollution entering our oceans.
We recognise the importance of protecting the marine environment and we see the health of the ocean as key to tackling climate change. We have already exceeded the current global sustainable development goal to protect 10% of our marine and coastal areas by 2020, with 25% of UK waters currently protected. At the UN General Assembly in New York in September 2018, the Secretary of State for Environment, Food and Rural Affairs called for 30% of the world’s oceans to be marine protected areas by 2030.
My hon. Friend the Member for Berwick-upon-Tweed will be pleased to hear that we are extremely committed to protecting the marine environment as we leave the EU. Through the EU (Withdrawal) Act, we will make sure that marine protected areas set up under European directives, including SPAs, will continue to be effectively protected post exit. The Office for Environmental Protection will monitor and report on our progress, holding the Government to account. After we have left the EU, we will be able to manage our marine environment in a more dynamic and flexible way than is possible under the common fisheries policy. Using powers that we are seeking through the Fisheries Bill, the Marine Management Organisation will be able to apply byelaws to manage the resources of sea fisheries for conservation purposes throughout English waters.
I now turn to one or two of the points made by the hon. Member for Plymouth, Sutton and Devonport. He talked about disturbance of seabirds. That brought to mind an experience I had when visiting Immingham, which is not far from the constituency of the hon. Member for Great Grimsby, where I visited an oil refinery. I was told that it was probably the best habitat for a number of seabirds, because there were lots of things to perch on, such as fences and pipes, but I was told that the most important aspect was that there were virtually no people and in particular no dogs whatsoever.
We need to be very thoughtful about how we allow access to some of these marine protected areas, in the same way that we are in some of our national parks and other areas on land. Yes, it is great to have more public access, but we must ensure that the people who gain that access understand the effect they can have. Indeed, we heard from my right hon. Friend the Member for Preseli Pembrokeshire (Stephen Crabb) how well-meaning visitors can sometimes cause damage.
The hon. Member for Plymouth, Sutton and Devonport asked me in particular about the funding of environmental schemes. We are a net contributor to the European Union, so there will be scope for innovative and UK-centric schemes, and I can reassure him that there will be no changes to funding. In particular, he mentioned the scourge of plastics, an issue on which we need to take global action. I was recently talking to a friend in my constituency who had been on holiday to Vietnam, and sailing down the coast he saw three separate locations where whole truckloads of plastic and other rubbish were being tipped straight into the sea. We in this country take plastic pollution very seriously, and important moves have been made to address plastic straws and other types of pollution and litter. However, looking around the world, we see some egregious examples of how pollution can cause problems.
The hon. Gentleman also mentioned sand eels, which I would like to say a little bit about, because they are an important component of marine food webs that provide food for many species of marine predator, such as seabirds, mammals and fish. The sand eel life cycle is affected by climate change, as warmer seas have a direct effect on plankton. The puffin breeding cycle is less adaptable, so if the sand eels are not available at the time puffins are breeding, that affects how many birds breed and how many chicks they raise. We also know that that varies annually, and in different parts of the country.
The RSPB’s citizen science project, Puffarazzi, is currently collecting data on puffin diet to complement research being done by several academic groups, which will give us an insight into puffins’ current diet and changes over time. There is some evidence that the exploitation of sand eels affects the wider ecosystem, such as causing a decline in seabird populations. For example, a recent study has found a correlation between kittiwake breeding success and sand eel fishing mortality, although there are many other factors that could have an impact on small fish populations, such as climate change.
The UK does not have a strong commercial interest in sand eels, although we have some quota that is fished occasionally. Most of the fishing of sand eels in UK waters is by the Danish fleet, although Sweden has a commercial interest. Fishing is concentrated around Dogger Bank, which in most years accounts for over 90% of sand eels caught in the UK’s exclusive economic zone. Sand eels are a quota species; the International Council for the Exploration of the Sea provides annual recommendations on the total allowable catch for sand eel in management area 1r, Dogger Bank. In recent years, with the exception of 2016, the TAC has been set in line with ICES’ recommendations. However, catches have often exceeded that TAC.
Sand eels are not used for direct human consumption, but their fishery provides livestock and aquaculture feed and fertiliser. Arguably, alternative ways to produce those goods that should not interfere with marine ecosystems and food webs would be more sustainable; however, we do not currently have evidence on whether production of alternative feed stocks and fertilisers would actually have a lower overall environmental impact. A sand eel fishery closure has been in place off the east coast of Scotland since 2000. It is prohibited to land or retain sand eels on board within the closure area, although a limited scientific fishery is permitted to monitor the stock.
Again, I thank hon. Members for contributing to the debate. I emphasise that we are a world leader in protecting our precious coastline, and we continue to increase protection in the UK to safeguard our puffins’ future. The relatively new Northumberland marine SPA is a welcome addition to that suite. With rising populations in some colonies, the UK continues to play its part in improving the chances of one of our most vulnerable and iconic species.