Orkney Islands Regional Marine Plan

Islands Communities Impact Assessment

IMAGE: Cover page for the Orkney Islands Regional Marine Plan Islands Communities Impact Assessment, featuring the title, Orkney Islands Council and Scottish Government logos, and a stylised map of Orkney and surrounding land and sea areas.

IMAGE: Map titled “Figure 1: Overview of Orkney Islands Marine Region”. It shows the Orkney marine region extending to 12 nautical miles around the islands, with adjoining marine regions labelled Moray Firth, North Coast and Shetland Isles. The map states: “Area of Orkney Marine Region 9,258 km²”; “Number of islands 68+”; “Population of Orkney 22,190”; “Number of ports and harbours 30”; “Total length of coastline at Mean High Water Springs (MHWS) >1,024 km”; “Area of marine waters within 3 nm 3,030 km²”; “Area of marine waters within 6 nm 4,925 km²”; “Area of marine waters within 12 nm 9,258 km²”; and “Area of Orkney Islands (land) 990 km²”.

Contents

List of Figures

• Figure 1: Overview of Orkney Islands Marine Region — i
• Figure 2: Map highlighting permanent populated isles of Orkney based on census data — 6
• Figure 3: Population change across Scotland — 11
• Figure 4: Map highlighting some the recently previously populated isles according to census data from 1961 – 2011 — 13
• Figure 5: Map of designated nature conservation sites within the Orkney marine region. — 15

List of Tables

• Table 1: Draft objectives of the Orkney Islands Regional Marine Plan — 4
• Table 2: Population of Orkney Islands — 7
• Table 3: Previously recently inhabited islands in Orkney — 14

Acronyms

Background

This report provides an assessment of impacts on island communities in relation to the Orkney Islands Regional Marine Plan (OIRMP). The OIRMP guides sustainable development, activities and use in the Orkney Islands marine region, whilst ensuring environmental protection. The statutory policies and spatial information guides decision making on marine licensing and consenting.

The production of the Plan is a statutory function of the Council in accordance with The Delegation of Functions (Regional Marine Plan for the Scottish Marine Region for the Orkney Islands) Direction 2020¹. The Orkney Islands marine region includes the marine waters around Sule Stack and Sule Skerry, as shown in Figure 1 above. This area covers 9,258 km2 from Mean High Water Springs to 12 nautical miles (nm).

The Island Communities Impact Assessments (Publication and Review of Decisions) (Scotland) Regulations 2020 were laid on 3 November and came into force on 23 December 2020. This means that the duty to carry out an Island Communities Impact Assessment (ICIA) became a legal requirement for relevant authorities (listed in the Act) from 23 December 2020 and requires Scottish Government and relevant authorities to take island issues into account when developing or reviewing policies, strategies or services². This report has been prepared with regard to the steps outlined in the ‘Island Communities Impact Assessments: Guidance and Toolkit’³ and is in accordance with Sections 7 and 12 of the Islands (Scotland) Act 2018⁴.

As the OIRMP only applies to the Orkney Island marine region, any potential differential impacts in relation to mainland Scotland are not applicable, as per the guidance provided in the ‘Island Communities Impact Assessments: Guidance and Toolkit’ document⁵. However, this report examines if there are likely to be any significant differences in application of the OIRMP policies between the different Orkney Island communities.

Appendix 1 sets out key information in relation to the ICIA under the Orkney Islands Council ICIA format.

¹ Delegation of Regional Marine Planning Functions in the Orkney Islands 2020 - gov.scot (www.gov.scot)

² National Islands Plan Annual Report 2020 (www.gov.scot)

³ Carrying out your Island Communities Impact Assessment - Island communities impact assessments: guidance and toolkit - gov.scot (www.gov.scot)

⁴ Islands (Scotland) Act 2018 (legislation.gov.uk)

⁵ Carrying out your Island Communities Impact Assessment - Island communities impact assessments: guidance and toolkit - gov.scot (www.gov.scot)

Step 1: Define the issue

The OIRMP enables sustainable development and activities in the Orkney marine region by providing a strategic planned approach that supports:

• sustainable licensing, consenting and management decisions in relation to development and activities in the Orkney Islands marine region;
• marine developers in early identification of localities of most and least constraint;
• environmental protection, and where appropriate, enhancement measures, to satisfy statutory requirements and policy commitments; and
• provision of identifiable socio-economic benefits for local communities and wider stakeholders.

The Vision of the Plan is:

‘The Orkney Islands marine region is clean, healthy, safe and productive; Orkney’s marine and coastal environment is rich in biodiversity and managed sustainably to support thriving and resilient local communities’.

The draft objectives of Plan are in Table 1 below; they relate to environmental, economic and climate change factors.

The intended outcomes of the Plan are to:

• Aid statutory decision-making regarding marine licensing and consenting by the Marine Directorate of the Scottish Government, Local Authorities and other regulators;
• Enable sustainable development in the marine environment;
• Provide local marine regional data and information to allow greater certainty for developers regarding prospective proposals;
• Allow more local involvement, ownership and input into decision-making about specific issues within the local area;
• Provide a transparent plan-making process and promote good governance; and
• Ensure marine environment is protected.

The Plan therefore also contributes to a number of the strategic objectives of the National Islands Plan⁶ e.g. Strategic Objective 2: Sustainable Economic Development; Strategic Objective 8: Environmental Wellbeing and Biosecurity; Strategic Objective 9: Climate Change and Energy; Strategic Objective 10: Empowered Island Communities and Strong Local Partnership; Strategic Objective 13: Implementation.

National Planning Framework (NPF4)⁷ guides the development and use of land to 2045. It forms part of the development plan and therefore influences the day-to-day decisions on local planning matters. It focuses on:

• Sustainable places
• Liveable places
• Productive places

In terms of policy, NPF4 is linked to the outcomes of the National Performance Framework. It aims to rebalance the planning system so that climate change and nature recovery are the primary guiding principles for all our plans and all our decisions.

The Government’s aim is to also help stimulate the green economy by facilitating innovation, greener design and place-based solutions.

NPF4 is required by law to contribute to six high level outcomes:

• Meeting the housing needs of people living in Scotland including, in particular, the housing needs for older people and disabled people,
• Improving the health and wellbeing of people living in Scotland,
• Increasing the population of rural areas of Scotland,
• Improving equality and eliminating discrimination,
• Meeting any targets relating to the reduction of emissions of greenhouse gases, and
• Securing positive effects for biodiversity.

It also includes land use planning policies supporting key issues for island communities such as engagement, transport, local living, housing, spaces and places, rural and coastal policies, aquaculture, health and wellbeing and connectivity.

The OIRMP, its policies, along with all the supporting assessments, are applicable to all of the islands’ regional marine waters and communities in Orkney equally. The Plan, including all aims, objectives and policies, along with all the supporting assessments, has been modified in light of public and stakeholder consultation in order to pay due regard to the National Marine Plan and NPF4.

⁶ The National Plan for Scotland's Islands - gov.scot (www.gov.scot)

⁷ National Planning Framework 4 - https://www.gov.scot/publications/national-planning-framework-4/

Table 1: Objectives of the Orkney Islands Regional Marine Plan

Step 2: Understand the situation

Introduction

The Orkney archipelago consists of 68+ islands over an area of 990km2. Sixteen of the islands are populated according to census data, some uninhabited islands are still used for farming, whilst others are relatively small rocky outcrops (see Figure 2). In addition, although the 2022 census does not show any population for Papa Stronsay, there are currently nine monks living on the island (per comm).

In Orkney, no one lives further than five miles from the coast⁸; the vast majority live much closer. Thus, all Orkney communities are classed as ‘coastal’. The capital is Kirkwall; it, along with Stromness, are the two towns in Orkney, whilst the rest of the population live in villages, rural settlements and scattered housing across the Mainland Orkney parishes and Islands.

Orkney Mainland is connected to Lamb Holm and Glimps Holm, both unpopulated islands, and to the Islands of Burray and South Ronaldsay, via the Churchill Barriers. The rest of the populated islands are ferry and/or air connected; the Orkney Local Development Plan (OLDP)⁹ Strategy establishes the ‘Isles Approach’ which applies to this latter category:

• Eday
• Egilsay
• Flotta
• Graemsay
• Hoy
• North Ronaldsay
• Papa Westray
• Rousay
• Sanday
• Shapinsay
• Stronsay
• Westray
• Wyre

The Isles Approach is stated in the OLDP as “Development within the islands, which support permanent resident populations and are served by public transport services, will be supported where it accords with relevant Plan policies and where it shall not place any unacceptable burden on existing infrastructure and services.”

⁸ Orkney Islands Marine Region: State of the Environment Assessment

⁹ Orkney Local Development Plan

IMAGE: Map highlighting the permanent populated isles of Orkney based on census data. A legend identifies Burray, Eday, Egilsay, Flotta, Graemsay, Hoy, Mainland, North Ronaldsay, Papa Stronsay, Papa Westray, Rousay, Sanday, Shapinsay, South Ronaldsay, Stronsay, Westray and Wyre. Papa Stronsay is excluded from Table 2 because it was not included in the census data.

Orkney’s Island Communities

Fragile areas

Highlands and Islands Enterprise (HIE) identified fragile areas across Scotland. Fragile areas are characterised by declining population; under-representation of young people within the population; lack of economic opportunities; below average income levels; problems with transport, and other issues reflecting their geographic location¹⁰. Although somewhat dated, these HIE data are reflected in the population information below.

In Orkney, there were 5 data zones (2014 data zones) classed as fragile:

• S01004968: Rousay, Egilsay, Shapinsay and Wyre
• S01004969: North Ronaldsay, Sanday and Stronsay
• S01004970: Eday, Westray and Papay
• S01004971: Hoy, Flotta, South Walls and South Ronaldsay
• S01004972: Burray and St. Margaret Hope

These five data zones cover 14 of the 16 populated islands; South Walls is attached to Hoy by a causeway and Burray and South Ronaldsay are connected by the Churchill Barriers. The main area not classed as fragile is Mainland. Graemsay was classified as fragile but was included in the Stromness data zone (pers comm), therefore not covered in the list above.

Population

The Orkney population from the 2022 census is 21,961 and is estimated to be 22,000 for 2023, across 16 islands (see Tables 2). A small number of other islands e.g. Auskerry, Copinsay and Hunda have seasonal populations (see below).

Table 2: Population of Orkney Islands

* Data sources include www.orkney.com ; www.graemsay.org.uk ; briefing-population-growth-and-decline-in-orkney-updated-6-january-2025.pdf and Sandside, Graemsay Website & blog ; The Orkney Islands of Scotland - WorldAtlas

National Records of Scotland data shows that the population for Orkney decreased between 2022-2023 (see Figure 3).¹².

¹⁰ Highlands and Islands Enterprise | HIE

¹¹ The 2022 figure is based on the new zone of Island Groups 2022, which is compatible for Orkney, except that North Ronaldsay is now combined with Sanday and Egilsay and Wyre are now combined with Rousay.

¹² https://www.nrscotland.gov.uk/publications/mid-2023-population-estimates/?form=MG0AV3

IMAGE: Graphical map titled “Percentage population change mid-2022 to mid-2023”. The legend identifies population decrease, population increase of less than 0.8%, and population increase of 0.8% or more. It maps population change across Scottish local authority areas, including Orkney Islands, Shetland Islands, Highland, Moray, Perth and Kinross, Angus, Fife, and other council areas. The map shows a mixture of population decreases and increases across Scotland.

Now unpopulated islands

A number of islands around Orkney used to be inhabited in the relatively recent past (see Figure 4). Census data between 1961 – 2011 shows the islands that were formally populated during this time, as outlined in Table 3. Populations ranged from one person on Auskerry and Sule Skerry respectively, up to ten people on Papa Stronsay in 2010.

Although the 2011 census does not show any population for Papa Stronsay, there are currently nine monks living on the island (per comm).

Some of the islands may be occupied (e.g. Gairsay) or are habitable on a temporary basis, but are not included in the population figures in Table 2 above.

Smaller islands

The rest of the islands are relatively small low-lying islands, skerries or rock stacks. Some are used for farming e.g. sheep grazing or are being considered for potential wind energy generation. Several are designated nature conservation sites for a range of qualifying features such as seals and seabirds.

IMAGE: Map highlighting recent previously populated isles according to census data from 1961–2011. A legend identifies Auskerry, Cava, Copinsay, Fara, Gairsay, Pentland Skerries, Sule Skerry and Swona, with numbered locations shown around the Orkney Islands.

Table 3: Recent previously inhabited islands in Orkney

The marine environment

The Orkney Islands marine region, which is the subject area for the Orkney Islands Regional Marine Plan (OIRMP) being assessed in this ICIA, covers 9,258 km2 from Mean High Water Springs (MHWS) to 12 nautical miles (nm). It is bound by 1,024 km2 of coastline around the 68+ islands; the latter covers 990 km2. Thus, the marine regional area is virtually ten times the land area.

The Orkney Islands Marine Region: State of the Environment Assessment 2020 (SoEA)¹³ provides a baseline assessment of the environment of Orkney. It presents a summary of the environmental pressures and impacts of human activities affecting the Orkney Islands marine region. It includes geographical, ecological, social and economic factors and associated trends, where known. It provides a snapshot in time of the current issues facing Orkney’s marine environment, as of November 2020, and the current status of the key economic sectors.

This assessment therefore highlights the importance of e.g. lifeline ferries, fishing, aquaculture, energy and tourism for the island communities. Appendix 4 of the SoEA outlines the summary of the sectors and the status of the pressures and trends, along with the data confidence measures. Appendix 4 of the SoEA also provides a summary of the climate change pressures and interactions with the various ecological and commercial sectors.

¹³ Orkney Islands Marine Region: State of the Environment Assessment

Designated nature conservation sites

Most of the designated sites around Orkney have coastal and marine elements (see Figure 5). A full list of sites and background information can be found in Appendix 2 of the SoEA¹⁴.

IMAGE: Map of nature conservation designated sites within the Orkney marine region. The key identifies Geological Conservation Review sites, Ramsar sites, Special Areas of Conservation, Sites of Special Scientific Interest, Special Protection Areas, Marine Protected Areas and the Orkney Islands marine region. The map shows the distribution and overlap of these designated sites around Orkney, Sule Skerry and surrounding marine waters.

¹⁴ Orkney Islands Marine Region: State of the Environment Assessment

Step 3: Consultation

During the early stages of preparation of this ICIA report, input and guidance was sought from OIC officers across several departments, the Orkney Marine Planning Advisory Group (OMPAG), see Appendix 2, Scottish Government and local stakeholders. Further details of the stakeholders contacted directly can be found in Appendix 3. OMPAG work closely with OIC, (the latter as sole delegate), to ensure expertise on a range of topics is considered throughout the plan-making phase.

In addition, the Statement of Public Participation¹⁵ sets out the indicative timescales and methodology for engaging and consulting a wide range of stakeholders on the consultation draft OIRMP and associated supporting documents.

Appendix 5 contains some feedback received during early engagement visits from the OIC Marine Planning team outlining the purpose and scope of the regional marine plan to local communities and school pupils, and seeking early feedback. This extra stage of engagement, not outlined in the SPP, was seen to be important as otherwise local communities would likely not fully understand what they were being consulted on if presented with the draft Plan, without this earlier level of engagement to explain both what the plan was, and equally important, what it was not i.e. not a strategy/action plan type document.

Visits were made to Sanday, Hoy, Stronsay, and Westray, as well as St. Margaret’s Hope, Stromness and Kirkwall in Spring/Summer 2022 and included school sessions with a range of different class groups.

The OIRMP: Consultation Draft and supporting assessments including the partial ICIA were deposited for public consultation from 1 August to 25 October 2024. The aim of the consultation, and wider engagement process, was to engage a diverse audience as effectively as possible. This included targeting and designing engagement activities to each island community and capturing a diverse range of views and interests. This consultation and engagement process provided valuable information and local knowledge that has informed the preparation of the final Plan and the ICIA process.

¹⁵ Orkney Islands Council 2020. State of the Environment Assessment https://www.orkney.gov.uk/our-services/planning-and-building/development-and-marine-planning-policy/marine-planning/state-of-the-environment-assessment/

Step 4: Assessment: Is a full ICIA required?

All the policies within the OIRMP will be applied equally to all islands within the Orkney Islands marine region area. In addition, as the adjacent island communities of Shetland have a draft regional marine plan and also have to abide by the National Marine Plan and related guidance, it will not have a significantly different effect on either the local Orkney or the Shetland island communities.

As outlined in Step 1, the intended outcomes of the Plan are to:

• Aid statutory decision-making regarding marine licensing and consenting by the Marine Directorate of the Scottish Government, Local Authorities and other regulators;
• Enable sustainable development in the marine environment;
• Provide local marine regional data and information to allow greater certainty for developers regarding prospective proposals;
• Allow more local involvement, ownership and input into decision-making about specific issues within the local area;
• Provide a transparent plan-making process and promote good governance; and
• Ensure marine environment is protected.

Thus, as the demonstrated intended outcomes of the Plan are to provide a clear framework for sustainable marine development whilst safeguarding the marine environment, and this framework will apply equally to all of the marine waters and island communities within the plan’s jurisdiction, and has been prepared in accordance with the National Marine Plan, with due regard to NPF4, the policy, strategy or service (i.e. the OIRMP) is not likely to have an effect on an island community which is significantly different from its effect on other communities (including other island communities).

Following the public consultation on the draft OIRMP and its associated assessments, this ICIA has been reviewed and updated to include up to date data. No feedback was received that a full ICIA should be carried out, therefore, the above information is considered sufficient to demonstrate that a full ICIA is not required for the OIRMP.

Step 5: Preparing the ICIA

As a full ICIA is not required, Step 5 of the process in accordance with ‘Island Communities Impact Assessments: Guidance and Toolkit’ is not applicable.

Step 6: Making adjustments

The published Plan will be subject to ongoing monitoring, evaluation and review, which will include an assessment of ICIA status.

Appendix 1: Orkney Islands Council Islands Communities Impact Assessment

You must now determine whether in your opinion your policy, strategy or service is likely to have an effect on an island community, which is significantly different from its effect on other communities (including other island communities).

If your answer is NO to the above question, a full ICIA will NOT be required and you can proceed to Step SIX. If the answer is YES, an ICIA must be prepared and you should proceed to Step FIVE.

To form your opinion, the following questions should be considered:

• Does the evidence show different circumstances or different expectations or needs, or different experiences or outcomes (such as different levels of satisfaction, or different rates of participation)?
• Are these different effects likely?
• Are these effects significantly different?
• Could the effect amount to a disadvantage for an island community compared to the Scottish mainland or between island groups?

Appendix 2: Orkney Marine Planning Advisory Group members

Appendix 3: Orkney Islands Council officers and organisations contacted during early plan-making process

* These c. 360 stakeholders receive updates on the plan-making process via a newsletter circulated c.2-3 times per annum (see Marine Planning (orkney.gov.uk) ‘Related Sites’ section).

Appendix 4: Summary of the sectors and the status of the pressures and trends, along with the data confidence measures for the Orkney Islands marine region and climate change summary

3a) State of the Environment Assessment (SoEA) Summary

3b) SoEA Productive sector assessment summary adapted from the SoEA¹⁶

¹⁶ Orkney Islands Council 2020. State of the Environment Assessment https://www.orkney.gov.uk/our-services/planning-and-building/development-and-marine-planning-policy/marine-planning/state-of-the-environment-assessment/

3c) Climate Change pressures: adapted from SoEA¹⁷

¹⁷ Orkney Islands Council 2020. State of the Environment Assessment https://www.orkney.gov.uk/our-services/planning-and-building/development-and-marine-planning-policy/marine-planning/state-of-the-environment-assessment/

Appendix 5: Feedback from early engagement island visits (Spring 2022)

The following comments have been paraphrased from notes of face-to-face discussions at community engagement events to outline the purpose and scope of the regional marine plan:

When discussing commercial fishing representation: “I’m pleased to hear that the Orkney Fisheries Association and Orkney Sustainable Fisheries are being included in the plan making process, as fishermen from smaller islands are increasing getting squeezed out [from development plans]” Westray

“I’m concerned about the level of litter washing up that doesn’t originate from here. It washes up from elsewhere and we are stuck with it”. Sanday

“Development plans often overlook the people who live in the remote areas. Plans can sometimes see remote islands as areas for commercial development and nature conservation. There should be emphasis on the people that live here and their wellbeing” Hoy

“The biggest worry for people living here [Stronsay] is the ferries” Stronsay

“I’m concerned about big decisions being made elsewhere, such as the Scottish Government and Marine Scotland, as they don’t understand what life is like for fishermen on small islands” Westray

This publication is available at www.orkney.gov.uk

Published by Orkney Islands Council 2026.