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Submission
from ALGAO:Scotland/ALGAO:UK Maritime Committee
Environment
and Rural Development Committee
Scottish Parliament
Edinburgh
19/12/06
Dear Sirs,
Scottish
Parliament Environment and Rural Development Committee: Marine Environment
Inquiry 2006-07
This response
is offered jointly on behalf of ALGAO:Scotland, which represents
archaeologists working for Local Authorities and National Parks
in Scotland, and ALGAO:UK's Maritime Committee. The Association
was formed in June this year as part of the restructuring of ALGAO
with the Association of Regional and Island Archaeologists (ARIA)
to form a fully UK-wide organisation, ALGAO:UK. Member Local Authorities
are represented by the senior professional archaeologist responsible
for providing advice to the authority on archaeological conservation
and management.
Scotland has
70% of the UK coastline. As one of the world's principal maritime
nations the sea has been a fundamental resource for people living
in Scotland from the earliest times. Since the last Ice Age people
have traveled and made their living from our coast and Sea. Scotland
has long been at the forefront of the technology of sea travel and
for centuries has been a hub for international trade. Evidence of
this activity is known to survive underwater, and forms a key part
of our marine historic environment - often representing unique time
capsules of a past existence and past environments.
Recent research
has however indicated that the potential of the underwater cultural
heritage in Scotland is even greater. Analysis of relative sea level
over time proves the likelihood of the existence of extensive submerged
landscapes, generally dating from prehistoric times for example
across the southern North Sea, Northern Isles and the Western Isles.
Fragments of these drowned landscapes offer the potential to reveal
aspects of human life that are not able to be recovered in land-based
archaeology, and they hold the key to understanding important elements
of daily life particularly during the Mesolithic (c.10,000-6000
years ago).
The marine
historic environment includes other important elements, including
the wrecks of boats, ships, submarines and aircraft, marine crannogs,
and debris related to maritime activity along with the presence
of casual finds - perhaps even dating from the Palaeolithic period
(before the last ice age), a period at present entirely unrepresented
in the Scottish land-based record.
Scotland's
marine historic environment is under threat. Probably the greatest
threat is a natural one; a threat that is accelerating due to increased
storminess and changes in weather patterns. Sites and landscapes
are also vulnerable to threats from a variety of human sources,
some on the increase, including: Fishing and trawling - especially
where the sea bed is affected; Renewables - wind farms, wave power,
tidal, and their cables and associated infrastructure; Coastal defences
- changing current patterns; Harbour works, dredging and redevelopment
and souvenir hunting from historic wrecks.
1. It is
becoming increasingly clear that an integrated and holistic approach
to the marine environment is required in order to resolve the
sometime competing claims of economic activity and the sustainability
of the marine environment. Current approaches would envisage these
matters being resolved through the dual mechanisms of Integrated
Coastal Zone Management (ICZM) and Marine Spatial Planning. The
former being partially informed through Shoreline Management Plans.
2. Both ICZM
and Marine Spatial Planning are at an early stage in their development
and in order for each to be robust and inspire confidence they
must be based on a sound organisational and information structure.
3. Scotland's
cultural and archaeological heritage is a key component of its
national identity. It serves to reinforce the identity of communities,
enhance the quality of life and provide economic activity through
tourism.
In the coastal
and marine environment the cultural and archaeological resource
comprises structures and sites which are threatened by erosion;
it comprises drowned landscapes of prehistoric date and vessels
and aircraft lost at sea.
Scotland's
'coastal and marine areas are of outstanding scenic, historic
and cultural value boosting Scotland's image at home and abroad'
(para 2.14, SEAS the Opportunity, Scottish Executive 2005)
It is however
a finite and irreplaceable resource which requires careful documentation
and management. The consideration of the cultural and archaeological
resource should be a key element in the development of ICZM and
Marine Spatial Planning in the same way that it is for terrestrial
planning.
4. In order
for Scotland's cultural and archaeological heritage to be fully
incorporated into ICZM and Marine Spatial Planning it must be
adequately documented and there must be a proper organisational
structure in place to provide informed advice.
5. There
is at the moment an inadequate level of knowledge of the archaeological
resource of both the Scottish coast and the marine environment.
'Many
historic assets and archaeological sites are irreplaceable assets
which need to be safeguarded or maintained in situ. Also, with
over 80% of the coastline still inadequately surveyed for features
of archaeological interest, many artefacts and sites probably
remain to be discovered' (para 2.10, A Strategy for Scotland's
Coast and Inshore Waters, Scottish Coastal Forum 2004)
6. It is
essential that this knowledge base is improved to provide quality
information to allow informed decision making. The most effective
way to do this is through the establishment of marine components
within local authority Historic Environment Records/Sites and
Monuments Records. In order for this to be achieved there needs
to be adequate provision for the Historic Environment within each
Local Authority. This is not the case across Scotland at the moment.
There is also need for better education at all levels to build
capacity across both within the decision-maker sector (LA's, Central
Government & Non-Government Agencies) and also of those working
or developing within the marine environment
7. At the
local level records of the local Historic Environment and archaeological
resource can be developed with the active input of the local community
and can be fed into the ICZM and Marine Spatial Planning process.
At the moment there are insufficient resources both in terms of
staff and information to allow an effective local input into the
developing sphere of Marine Planning and this needs to be addressed
urgently.
8. In order
to develop a local component to ICZM and Marine Spatial Planning
there is a need for a clearer definition of the role of Local
Authorities in dealing with the maritime sphere. The role of Local
Authorities in relation to ICZM is well developed however this
is not the case with Marine Spatial Planning.
9. The concept
of Marine Spatial Planning has been largely developed to address
development issues related to major marine industries such as
aggregate extraction and oil and gas exploration and to address
questions of the sustainability of the marine environment. These
would presumably be the core brief of any Marine Agency developed
as part of a UK wide Marine Bill. There is a danger with such
an emphasis that there is insufficient flexibility to allow for
the different concerns of the coastal zone compared to blue water
areas. In order to address this there needs to be a requirement
for Local Authorities to input into the Marine Spatial Planning
process.
10. The development
of Marine Spatial Planning has to date been driven by concerns
other than those of the marine historic environment. There is
therefore an urgent need to ensure that the marine historic environment
is fully incorporated into the Marine Spatial Planning process
and that whichever agency has responsibility for Marine Spatial
Planning should either contain or have ready access to expertise
in the marine historic environment.
11. This
could be achieved through two mechanisms, through Historic Scotland
and Local Authority Historic Environment Professionals. At the
moment the role of local authorities in these matters is uncertain
and circumscribed and requires clarification.
Conclusion
Scotland boasts
an underwater heritage of enormous significance. We fully welcome
the important opportunity this inquiry provides us to highlight
this very important part of Scotland's heritage, to look at the
issues and challenges it faces and, integrated with other marine
environmental issues, to consider how to improve its protection
and management.
As such we
would like to emphasise the following main points:-
1. That there
is a need to invest resources in Local Authority Archaeologists
and Historic Environment Record systems in order to ensure that
sound information is available to inform the effective management
of the marine environment.
2. That the
role of local authorities and their professional advisors needs
to be clearly set out in relation to the developing framework
of marine planning.
3. There
is a need for better education at all levels, including decision-makers
who affect or are affected by the underwater cultural heritage,
and of those working or developing within the marine environment
In summary
this submission can do little more than scratch the surface of the
issues facing Local Authorities in dealing with the management of
our marine historic environment. As such we would be keen to discuss
and expand upon any of the points raised by our response and would
be pleased to provide oral evidence in due course.
John A Lawson,
Chair ALGAO Scotland
Robin Daniels, Chair ALGAO:UK Maritime Committee
Consultations
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