ENHANCING PROTECTION OF UNDERWATER HERITAGE ASSETS (Project 7146) Prepared by: The School of Law, Criminology & Government, Plymouth University Prepared for: Historic England © School of Law, Criminology and Government, Plymouth University Document Control Grid Project Name Enhancing Protection of Underwater Heritage Assets HE Project Reference Number (Project 7146) Author(s) and contact details Jason Lowther University of Plymouth [email protected] Dr. Sarah Gall University of Plymouth [email protected] Michael Williams University of Plymouth [email protected] Emma Bean University of the West of England [email protected] Origination date 31st October 2018 Date of last revision 25th February 2019 Version Final Summary of changes Amended following HE comments Cover image: Bell from SS Mendi, a troop transport sunk in collision in fog with the Royal Mail steamer SS Darro on 2nd February 1917, off the Isle of Wight. Mendi sunk with the loss of 646 lives, most native South African troops. The wreck was identified in 1974 and heavily stripped of non-ferrous items by recreational divers. The Bell was not reported as recovered but in 2017 was passed anonymously by a diver to the BBC, fearing it would be lost on his death. The bell was returned to South Africa in2018 by the Crown as a memorial to those troops lost. (Picture Credit: Ms. Alison Kentuck) ii Table of Contents Acknowledgements……………………………………………………………… v 1. Executive Summary……………………………………………………………....1 2. Introduction………………………………………………………………………...4 2.1 - Objectives and Parameters………………………………………………...4 2.2 - Literature Review………………………………………………………….....6 2.2.1 Threats to Underwater Heritage Assets…………………………....6 2.2.2 Protection for Underwater Heritage Assets…………………….....7 2.2.3 Enforcement Provisions in the Acts……………………………......9 2.2.4 Enforcement of Protections for UHA………………………….......11 2.2.5 The Problems for Enforcement………………………………….....13 3. The Statutory Framework for Protection of Underwater Heritage Assets……………………………………………….…...20 3.1 The Protection of Wrecks Act 1973……………………………………....20 3.2 The Ancient Monuments & Archaeological Areas Act 1979………....22 3.3 The Protection of Military Remains Act 1979…………………………...24 3.4 The Marine and Coastal Access Act 2009: Marine Licensing….........28 3.5 The Salvage Regime………………………………………………………...30 3.6 The Merchant Shipping Act 1995 and Receiver of Wreck…………....31 4. Marine Enforcement Resources.……………………………………………...33 4.1 Context and Maritime Presence.............................................................33 4.2 Statutory Basis........................................................................................34 4.2.1 Police............................................................................................. 34 4.2.2 Border Force...................................................................................39 4.2.3 Inshore Fisheries Conservation Authorities...............................46 4.2.4 The Marine Management Organisation........................................55 4.2.5 The Ministry of Defence............................................................... 61 4.2.6 The Ministry of Defence Police.................................................... 61 4.2.7 The Royal Navy..............................................................................67 4.2.8 The RN Fisheries Protection Squadron.......................................68 4.2.9 The United Kingdom Hydrographic Office...................................74 4.2.10 Military Aid to Civil Authorities...................................................75 4.2.11 Queen’s Harbour Master: Plymouth and Portsmouth..............77 iii 4.2.12 Maritime and Coastguard Agency.............................................80 4.2.13 The National Maritime Information Centre................................80 4.2.14 National Coastwatch Institution.................................................81 4.2.15 Environment Agency...................................................................82 4.2.16 Natural England...........................................................................83 Chapter Summary.................................................................................85 5. Problems of Enforcement…………………………………………………….....87 5.1 UHA Specific Challenges.......................................................................87 5.2 Enforcement Challenges.......................................................................91 Chapter Summary.................................................................................107 6. Solutions……………………………………………………………………….... 108 6.1 Utilising Joint Working Arrangements...............................................113 6.2 Memoranda of Understanding.............................................................113 6.3 Use of an Existing National Platform..................................................114 6.4 Prosecutions........................................................................................ 115 6.5 Provision of Resources to Support Joint Working............................116 6.6 Development of an Online Training Package.....................................116 6.7 Develop a Common Enforcement Manual..........................................118 6.8 Communication of the Impact of UHA Crime.....................................119 6.9 Potential for Agency/Organisations to be Involved.......................... 120 Chapter Summary................................................................................. 127 7. Conclusions and Recommendations………………………………………. 129 7.1 Conclusions........................................................................................ 129 7.2 Recommendations.............................................................................. 131 References...…………………………………………………………………….135 Annex: Interviewee Organisations...................................………………..146 iv Acknowledgments This project was commissioned by Historic England and delivered by a project team based at the University of Plymouth. We would like to take the opportunity to pass on our thanks to Mark Dunkley (Designation Advisor), DeAnna Cardoza (Project Officer, Documentation) and Caroline Howarth (Project Officer, Publications) for their help and assistance throughout the commissioning, production and publication of the project. In addition, we would very much like to thank the large number of people who have helped to inform the development and assembly of the project. In particular interviewees from the organisations listed in Annex 1, without whom we would not have been able fully to capture the richness of their experience and identify where closer synergies might be fostered. We are also grateful for the assistance and insight provided by Mark Harrison, Historic England’s Head of Heritage Crime & Policing Advice. Thanks are also due to the individuals and organisations who have provided us with the images used in the report. Each image is credited to the relevant individual or organisation. The work for the project took place over a period between April 2017 and October 2018. The report is a statement of the law and policy in effect at the date of submission. Disclaimer: This project was prepared for Historic England. It is not to be regarded as providing advice to any third party organisation. The authors, Plymouth University and Historic England expressly exclude all liability for any loss caused by third party reliance upon the contents of this project. This project should be cited as: Lowther, J., Gall, S. Bean, E. and Williams, M. (2018) Enhancing Protection of Underwater Heritage Assets. (Historic England Project Number 7146) v 1. Executive Summary Historic England holds the primary responsibility for the preservation of underwater heritage assets (UHA) in the English Inshore Marine Planning Area. Contemporary threats to UHA, whether protected by virtue of a specific legal designation or otherwise, are potentially increasing with the march of technology – enabling discovery of and access to UHA at an unprecedented level. Effective protection of UHA must incorporate effective enforcement of the laws designed to that end – whether in the case of specifically focused heritage laws or those related to salvage or marine licensing. This project helps to identify areas where potential synergies in enforcement effort might exist. Further, it explores the limitations and obstacles to effective cross-party working and offers some solutions for overcoming them. As well as extensive desk-based research, structured interviews were held with key individuals within the relevant organisations. Their insights and sharing of experience has been invaluable and provided an opportunity to confirm the reality of enhanced UHA enforcement opportunities and capabilities. Arranged over five substantive chapters, the project considers the underpinning issues, the law, the capabilities of the principal actors (and others) offshore, their limitations in the context of UHA protection and finally some potential solutions. It concludes with a number of recommendations. As the end of Chapters 4, 5 and 6, there are short summaries of the key points for ease of reference. Key Findings and Recommendations Numerous public (and other) bodies with a significant range of primary responsibilities operate in the English Inshore Marine Planning Area. These bodies have a variety of enforcement powers, some of which are generic and available to more than one body. More extensive use of collaborative working