Advising Others

REPORT OF THE UK RAPTOR WORKING GROUP

Implementation of the report's recommendation by SNH

Chaired by the Department of the Environment, Transport and the Regions (DETR) and the Joint Nature Conservation Committee (JNCC)

Executive summary

1 The Raptor Working GroupThe Raptor Working Group was established by the former Department of the Environment (now the Department of the Environment, Transport and the Regions - DETR) in 1995 following a meeting of parties interested in the implications of the growth of raptor populations. The Working Group's Terms of Reference were to: consider population status of birds of prey; identify species alleged to be causing problems; identify, in particular, the impact of such species on game birds and moorland management and on racing pigeons; identify gaps in research and future needs, and identify possible sources of funding; and consider statutory and other mechanisms for the resolution of problems. The Group has met 25 times, received a large number of submissions, and had discussions with the national Forum of interested parties in 1996, 1997 and 1998.

2 Status of birds of prey

The Group has reviewed the numbers and trends of UK populations of birds of prey. The UK has particular international obligations for the conservation of its bird of prey populations: 11 of the 16 UK species are listed as UK Red Data birds. Whilst some species have recovered from earlier declines caused by killing by man (which has been completely illegal since 1954), or by the effects of persistent organochlorine pesticides, most have not yet fully recovered their former range or numbers. Two species (sparrowhawk and kestrel) are known to be declining nationally.

Generally there is good information on breeding population sizes of all British raptor species with systematic monitoring in place. The intensity of bird surveys in the UK is unparalleled in the world. We have reviewed the available data, and concluded that there is a sound basis for making recommendations to government on the conservation management of British birds of prey. This has enabled the Group to make objective assessments of bird of prey populations, and the problems attributed to them. There are some gaps, however, and we have made recommendations concerning desirable enhancements to monitoring activity for some species.

Results of a national hen harrier survey in 1998 showed no change in national numbers over the previous decade, although there have been some increases and decreases in different countries and regions. Overall, however, the hen harrier remains in an unfavourable conservation status in the UK. In England, breeding is restricted to a few sites where active protection measures are in place.

In the four years since the establishment of the Working Group in 1995, there have been 371 confirmed reported incidents in Britain of illegal killing of raptors. These reported incidents probably reflect only a very small proportion of the total incidents that actually occurred in this period. There is evidence that this activity has limited both the distribution and numbers of hen harriers, golden eagles and red kites below levels they would otherwise achieve. The number of incidents relative to national population size is greatest for hen harrier, followed by red kite, white-tailed eagle and peregrine. Hen harriers are considered at risk of extinction as a breeding species from England. In both England and Scotland, there is strong evidence of adverse impacts on numbers and productivity associated with illegal killing on grouse moors.

We have recommended enhanced enforcement of existing legislation to seek to eliminate illegal killing of birds of prey. Such enforcement would underpin efforts to encourage game managers, and others, to pursue legal options of enhancing game stocks by other means. There is a range of measures relating to better co-ordination of activities that could be put in place rapidly. We have recorded our general sympathy with the recommendations made by the Partnership against Wildlife Crime (PAW) relating to a range of enforcement and legislative issues. The specific PAW recommendations are, however, for government to take forward in their detail. Legal measures alone, however, are unlikely to solve these issues, and we outline below a range of positive measures that seek to resolve the current conflicts.

3 Birds of prey and grouse moors

There has been a long-term and extensive loss of heather moorland throughout the uplands. A fundamental issue is the loss of nearly a quarter of all heather moorland in Scotland in just 40 years. This has been caused by agricultural intensification, afforestation and overgrazing. In the light of the importance of grouse moors for the upland rural economy, including fragile human communities, as well as for nature conservation and wildlife, there is a proportionate need to restore the quality and extent of heather moorlands. We suggest a national campaign to help focus attention on heather moorland restoration, linked to the Habitat Action Plan for Upland Heathland - part of the government's biodiversity conservation initiative.

There are significant differences with respect to grouse shooting between Scotland, England, Wales and Northern Ireland. Over the last 50 years Scottish, but not English grouse bags have declined. In the last ten years, grouse densities on monitored moors have not declined in either country. Since 1950, 127 heather moors in Scotland - 30% of the total - have ceased to be managed for significant sport shooting of red grouse, but only 50 have ceased in England. In Wales and Northern Ireland, management of moorland for red grouse has virtually ceased. Widespread overgrazing in the uplands, especially by sheep but also by red deer in Scotland, has had major ecological impacts on many heather moorlands and other upland vegetation types, particularly in Wales and parts of Scotland. Thus there are a variety of factors that point to grouse moors in Scotland, for several reasons, being less intensively managed and of lower viability than those in England. This influences priorities in addressing the current situations, with continued emphasis needed to be given to moorland management in Scotland.

There is a substantial body of information on the ecology of grouse and grouse moor management. In many areas, grouse bags have shown a long-term decline for much of this century for reasons unconnected with raptors. These are probably linked to quality and quantity of habitat, and intensity of moorland management. The current low level of harvestable grouse in some areas is such as to reduce significantly the viability of driven grouse shooting on some moors. After 1990, at Langholm, autumn red grouse stocks were significantly reduced by raptor predation, at a time when grouse stocks were low and raptor densities were high. This affected red grouse bags and, subsequent to the study, spring densities at Langholm were reduced and driven grouse shooting was suspended. To what extent this pattern would be repeated on other moors is not known. The fear that this would be a widespread pattern undoubtedly fuels much of the persistent illegal killing of birds of prey on grouse moors. Such concerns are a major impediment to the development of the active partnerships that are so urgently needed between conservationists, and others living and working in the uplands (as well as the lowlands).

The Group suggests that much of the long-term solution to the current problems faced by grouse moor owners lies in the need to restore and enhance the extent and quality of heather moorland. There is an important need for dissemination of 'best-practice' guidance relating to management techniques that will optimise grouse production and biodiversity. Further steps should be undertaken in the context of a national campaign to restore heather moorlands rich in grouse and associated wildlife - including birds of prey. No incentive scheme exists that is specifically designed to encourage the restoration of heather moorland, or is targeted at heather moors aside from their agricultural uses. Future development of incentives for encouraging good moorland management, and the sharing of good practice from existing, well-received schemes that encourage good moorland management, will be important. A new specific incentive scheme for heather moorland would be ideal; however the refocusing of existing schemes to include additional elements that encourage good moorland management is a more realistic short-term objective.

The Group has considered all possible immediate options to resolve raptor-grouse conflicts. Only a few of the measures that are theoretically possible to alleviate problems would be legal without a licence, and consequent derogation from the EEC Wild Birds Directive (EC/79/409). Diversionary feeding of birds of prey during important periods of grouse vulnerability is within the law provided there is no disturbance of the birds of prey. Results of trials in Scotland, under the auspices of Scottish Natural Heritage's Moorland Working Group, involving the feeding of hen harriers in 1998 and 1999 were successful and diversionary feeding is a technique that should be widely promoted as a means of greatly reducing hen harrier predation on red grouse during critical periods. It would be an effective short-term measure before achieving a longer-term solution, possibly based on habitat restoration. Trials of diversionary feeding of peregrines on grouse moors should be undertaken.

Other options involve a range of legal impediments, given the unfavourable conservation status of the UK hen harrier population and varying, but greater degrees of intervention, with consequent impacts on hen harrier populations. The EEC Wild Birds Directive allows lethal control as a legal option only in particular circumstances. Any derogation for lethal control would need to consider a range of factors and would have a very high public profile. Thus, in the current circumstances, where not all other satisfactory solutions to conflicts have been tried, the Working Group has ruled out lethal control of raptors. Similar legal issues apply to species management options for other birds of prey in the context of moorland conservation.

The Group concludes that it is timely that conservationists, grouse moor owners and gamekeepers should all realise that they share many common objectives. All share concerns for the future of the uplands. There are many clear signs of this common thinking developing within the Moorland Working Group in Scotland, and similar dialogue is needed in England, Wales and Northern Ireland. This will give an opportunity to show that on heather moorlands there is the potential to integrate the management of grouse with the conservation of the natural environment, to produce and maintain a high quality of life for residents and visitors alike.

4 Birds of prey and racing pigeons

The sparrowhawk and peregrine are the two species of bird of prey that most frequently interact with racing pigeons. Goshawks also occasionally kill pigeons. There are two problems primarily associated with raptor predation on racing pigeons - raptors killing pigeons whilst training and racing, and raptors killing pigeons whilst exercising around lofts. Evidence of the precise circumstance and scale of losses to raptors has been obtained by a DETR commissioned research project, together with surveys undertaken by the Scottish Homing Union and the Royal Pigeon Racing Association.

Losses to raptors are just one cause of the mortality of racing pigeons, and we note that pigeon fanciers accept that their sport carries a degree of risk from attacks by predators. Accordingly, data and information on the different causes of failure of pigeons to return to lofts will be important in the development of a strategy to resolve problems. We note that there is no legal provision in the UK for the killing of raptors which take liberated racing pigeons.

The Group has thus concluded that there is a clear need for the development, testing and scientific evaluation of the effectiveness of deterrents at the loft, and during the training and racing of pigeons. There are other techniques that may reduce losses during racing, and these need to be fully evaluated. It is clear that no single technique will solve these problems since they are caused by several species of raptor, and their intensity varies in different places and at different times. A range of measures will be needed to address the separate issues of predation at lofts, during training and on races.

Priority attention should be given to understanding the causes of straying during racing, especially for young birds. Minimising straying is likely to be the single most effective way of enhancing pigeon return rates. Consideration should also be given to delaying the start of the 'old bird' racing season in order to avoid the current coincidence with the start of the peregrine's breeding season, as well as to re-organising race routes, especially for young bird racing, in an attempt to establish 'flight corridors' and reduce the current complexity of north/south and east/west 'crossovers' in the flightpaths of pigeons during racing.

Different techniques should be refined progressively as experience and knowledge develops. The development of sound scientific studies, undertaken as collaborations between the racing pigeon community, academic institutions and, where appropriate internationally, would help derive effective long-term measures to reduce the scale of losses currently experienced both at lofts and during racing or training.

5 Birds of prey and lowland gamebirds

Sparrowhawk, buzzard, tawny owl and goshawk have been identified as preying upon pheasants and partridges. However, in the context of the total number of gamebirds released, losses are minimal. There are localised problems, particularly related to predation around pheasant release pens.

Whilst there has been some previous research on means of deterring predators at release pens in the 1970s, the Group has initiated further work to establish an objective approach to deterrence and other preventative measures, and to enable game and conservation bodies jointly to disseminate clear advice on best practice. The study will report in 2000.

6 Birds of prey and songbirds

It has been suggested that the recovery of some birds of prey has caused declines of formerly common farmland birds. Although the declines of many formerly common songbirds have coincided with the recovery of sparrowhawks, on the basis of a range of evidence presented to the Working Group, we have concluded that there is no scientific evidence that birds of prey have affected population levels of British songbirds. These declines are rather a consequence of changing types of lowland agriculture.

7 Integration of solutions

The Group considers that solutions to these issues involve a combination of different approaches, working at different scales, and over varying time periods. Given the contributions that properly conducted field sports and game conservation make towards the maintenance and enhancement of the natural heritage, and towards rural employment, partnerships need to be established and maintained between all interested bodies in order to develop and implement solutions. The Group welcomed the document Action for Scotland's moorlands: a statement of intent signed by 14 organisations in 1998, which was one outcome of the formation of the Moorland Working Group in Scotland. Such shared goals are a useful step towards achieving sustainable solutions. There is scope for similar such initiatives elsewhere in the UK, and we have recommended that the statutory conservation agencies in England, Wales and Northern Ireland consider a means of sharing expertise, and exchanging of information and good practice between those involved in the conservation and management of heather moorland.

The issues raised by raptor predation remain contentious and will not be resolved easily. The Working Group considers that we will need better education, a public awareness of the problems, and a focus on best practice by those concerned with management of gamebirds and racing pigeons. We have made recommendations in these areas.

Compatibility between conservation and game management cannot be left to evolve by default: it must continue to develop by design - with the due support that it so rightly deserves from all interested parties.

Copies of the full report are available from Publications at Battleby, priced £9.99, telephone (01738) 444 177.