Lowland Deer Panel Report to Scottish Natural Heritage February 2019 Contents Page Executive summary 1 1. Background 4 1.1. Introduction 4 1.2. Purpose of review 4 1.3. The review process 5 2. Issues considered by the Panel 8 2.1. The distribution of deer in the lowlands 8 2.2. Positive effects of lowland deer 9 2.3. Negative effects of lowland deer 11 2.4. Public perceptions of deer management 17 2.5. Current approaches to deer management in the lowlands 19 2.6. Collaboration 21 2.7. Barriers to sustainable deer management 24 2.8. Other action required to achieve sustainable deer management 27 2.9. Information requirements 28 3. Conclusions and recommendations 31 3.1. Collaboration 31 3.2. Information requirements 34 3.3. Public perceptions 35 3.4. Further SNH action 36 References 39 Annexes 1. Lowland Deer Panel terms of reference 43 2. Members of the Lowland Deer Panel 45 3. Key questions circulated to stakeholders 46 4. Key questions for stakeholders: online version 48 5. List of submissions received 54 6. Analysis of online submissions 56 7. Other current SNH activity relating to lowland deer 90 8. Summary of analysis of SNH Site Condition Monitoring data 92 9. Deer impact indicator matrix 94 Executive summary The Lowland Deer Panel was convened in January 2018 with a remit to address the following five key questions: Do lowland deer managers need to collaborate to achieve sustainable deer management? If so, at what scale does this need to take place, and what is the most efficient and effective approach? What knowledge and information are needed to support this process and to determine whether the public interest is being met? What are the practical implications of public perceptions of deer and deer management in the lowlands? What further action could SNH take in the context of the existing legislative and policy framework? Different deer species occur in various lowland areas, and although roe deer are the typical focus for management, red, sika or fallow deer may also be present in some places. The contrasting ecological characteristics of these species, including the distinction between territorial and herding behaviour, can have significant implications for deer management. The range of stakeholders with an interest in lowland deer is also very diverse and it was clearly necessary for the panel to fully consider this range of perspectives. The panel therefore circulated an open invitation to lowland deer stakeholders to contribute and answer a list of key questions. The Panel noted widespread support among stakeholders for some sort of “collaboration” in the lowland context (and this is a key facet of Scotland’s Wild Deer: A National Approach). However, it is clear that the upland Deer Management Group model is not applicable to large areas of the lowlands. We would not recommend any approach that seeks to impose a rigid structure on what is a complex, heterogeneous environment, and we would wish SNH to continue to recognise the current multiplicity of approaches, while identifying ways to obtain data on population dynamics and impacts. Where there are populations of the herding species - red, sika and fallow - we can see no reason not to adopt the ‘upland model’ regardless of the habitat or land use. Sustainable management of these species needs to be undertaken at a herd scale, and requires more extensive population and impact data. Where, as is widely the case, the primary species is roe, effective management can be achieved on a much more local scale to ensure that negative impacts are addressed. Questions: Do lowland deer managers need to collaborate to achieve sustainable deer management, and; if so, at what scale does this need to take place, and what is the most efficient and effective approach? Recommendations: The panel encourages the wider use of the current range of collaborative deer management approaches that are in place in the lowlands. The panel recognises that various approaches are appropriate depending on the habitat, species and landholding patterns, and recommends that the application of these approaches should be described in ‘Best Practice’ guidance. 1 We would suggest that SNH support relevant stakeholder engagement fora, which include local authorities, NGOs and others, where specific issues are identified, to deliver local deer management planning, actions and solutions. Question: What knowledge and information are needed to support this process, and to determine whether the public interest is being met? Recommendation: The panel supports the findings of the recent report on Lowland Deer Management: Assessing the Delivery of Public Interests (McMorran et al, 2018), and encourages SNH to work more closely with other agencies to harmonise existing spatial data, and where possible fill gaps on culls, as well as collect stalker effort, through collaboration with hunting bodies. Combined with local expert knowledge on both deer numbers and habitat impacts, these data can be incorporated into an updated Impact Indicator Matrix (Putman et al, 2011) of public interests and could, in future, form a basis for multi-criteria decision support models. Question: What are the practical implications of public perceptions of deer and deer management in the lowlands? Recommendation: The Panel recommends that SNH should work more extensively with LAs and other stakeholders to provide guidance on the need for deer management and to make them aware of their obligations under the’ Deer Code’, through education and direct help in deer management planning and implementation. Question: What further action could SNH take in the context of the existing legislative and policy framework? Recommendations: The panel recommends that SNH encourages the wide use of the Impact Indicator Matrix of public interests, and establishes a systematic approach to reviewing the evidence across the lowlands, in order to identify areas where a regulatory approach may be necessary (prioritising the herding species, but where appropriate also roe deer). SNH should support the provision of venison storage and processing facilities where lack of such facilities are a barrier to sustainable deer management and consider using such support as a lever for better reporting of cull returns by groups or individuals. Other issues Whilst not covered by the questions the Panel was asked to address, we identified a strongly held view by recreational deer stalkers (particularly in the Central Belt) that their expertise is not being used to provide sustainable deer management in their local area. They point to the large areas of Local Authority land where culling of deer does not take place and suggest that this is the source of many of the issues surrounding roe deer management in urban and peri-urban areas. The Panel recognised that this is an issue but noted that Scottish Natural Heritage were already addressing it through various initiatives. 2 Our consultation with stakeholders also suggests that there is a widely held belief amongst recreational deer stalkers that larger areas of the National Forest Estate could be opened up to them, thus reducing the cost of deer control to Government and providing locally sustainable deer management and venison production. 3 1. Background 1.1. Introduction Deer are a key part of Scotland’s lowland environment, providing wildlife encounters that enrich our daily lives, and venison: a nutritious, low fat food. Deer can also, however, damage natural habitats and economic interests, and can cause road traffic accidents. The management of deer aims to reconcile these benefits and impacts and ensure that public interests are met, in line with the vision in Scotland’s Wild Deer: a National Approach (WDNA; Scottish Government, 2015). This is supported by the Code of Practice on Deer Management or “Deer Code”, which provides corresponding guidance for land managers (SNH, 2012). During 2018, Scottish Natural Heritage (SNH) established a Lowland Deer Panel to consider the management of deer throughout lowland Scotland and advise on any changes that SNH could facilitate to provide greater public benefits, within the existing legislative framework. This report presents the Panel’s conclusions and recommendations. 1.2. Purpose of review In 2013, the Scottish Parliament’s Rural Affairs, Climate Change and Environment (RACCE) Committee held an inquiry into deer management in Scotland, and the Scottish Government asked SNH to review the effectiveness of deer management. This review was concluded in November 2016 (SNH, 2016) and the Parliament’s successor Committee responded to this report in the following year (Environment, Climate Change & Land Reform Committee, 2017). Ministers have now established an independent Deer Working Group (DWG) to take this process forward and recommend any changes that may be required. The DWG will report to Ministers in April 2019. The 2016 SNH review addressed the whole of Scotland and placed considerable emphasis on the collaborative management of red deer in the uplands through the established network of Deer Management Groups (DMGs). However, the review also identified a number of perceived issues linked to deer management in the lowlands. These included a possible need for greater involvement of, and collaboration between, lowland land managers, and for better information to support this process. Potential issues were also identified with regard to the supply chain for lowland venison and the availability of deer larder facilities. In order to examine the issues surrounding