Proposal to designate an area of Scottish territorial ... · Scapa Flow Historic MPA, as set out in this document. ... Proposal to designate a Historic Marine Protected Area under

Proposal to designate an area of Scottish territorial waters as the Scapa Flow Historic Marine Protected Area, under

the Marine (Scotland) Act 2010

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Table of contents Background and purpose ................................................................................. 3 Proposal to designate and Historic Marine Protected Area under the Marine (Scotland) Act 2010 ......................................................................................... 4 Supporting information ..................................................................................... 7

Description ....................................................................................................... 7 Maps ................................................................................................................ 8 Statement of National Importance .................................................................. 13 References .................................................................................................... 23 Preservation objectives .................................................................................. 27

Management .................................................................................................. 31

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Background and purpose The Scottish Government is committed to a clean, productive, healthy and biologically diverse marine and coastal environment that meets the long term needs of people and nature. This vision includes protecting and, where appropriate, enhancing our most important marine heritage sites in such a way that they can be valued and understood (Scottish Government 2010). To help deliver this vision, Historic Environment Scotland is working with Marine Scotland, Scottish Natural Heritage, the Scottish Environment Protection Agency (SEPA) and the Joint Nature Conservation Committee to develop a network of Marine Protected Areas, and to make recommendations to Scottish Ministers on the selection, designation and management of three types of Marine Protected Area through powers available under Part 5 of the Marine (Scotland) Act 2010:

Nature Conservation MPAs – to help deliver national priorities on biodiversity and geodiversity, including Scotland’s contribution to European and international commitments on biodiversity;

Demonstration and Research MPAs – to demonstrate, or develop research into, sustainable and ideally novel marine management approaches. They will be established within Scottish territorial waters only.

Historic MPAs – to protect marine historic assets of national importance within the Scottish territorial waters (out to 12 miles). Historic Environment Scotland advises the Scottish Government on this type of marine protected area.

This document sets out for consultation a proposal to designate an area of seabed amounting to 11.36 km2 within Scotland’s territorial waters as the Scapa Flow Historic MPA, as set out in this document. This proposal has been prepared with reference to Guidelines for the selection, designation and management of Historic MPAs (Historic Environment Scotland 2012a).

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Proposal to designate a Historic Marine Protected Area under the Marine (Scotland) Act 2010

Boundaries of proposed Historic Marine Protected Area The area proposed for designation to be known as the Scapa Flow Historic Marine Protected Area is described in paragraphs a) and b) a) The marine area (area of seabed seaward of mean high water spring tide) of Scapa Flow, enclosed by 24 boundary lines described as follows in each case by reference to:

(i) the co-ordinates(a) of the points joined by the line; and (ii) a topographical description of the line.

Set of coordinates which the boundary lines join

Topographic description of the boundary line

A, B Geodesic line

B,C Geodesic line

C,D Geodesic line

D,A Geodesic line

E,F Geodesic line

F,G Geodesic line

G,H Geodesic line

H,I Geodesic line

I,J Geodesic line

J,K Geodesic line

K,L Geodesic line

L,M Geodesic line

M,N Geodesic line

N,O Geodesic line

O,A Geodesic line

P,Q Geodesic line

(a) Geographic co-ordinates are defined with reference to the World Geodetic System 1984 (WGS84)

Name Scapa Flow Historic MPA Date of designation TBC Date last amended N/A Duration of proposed designation (urgent designations only)

N/A

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Q,R Mean High Water Spring Tide

R,S Geodesic line

S,E Mean High Water Spring Tide

T,U Geodesic line

U,V Geodesic line

V,W Mean High Water Spring Tide

W,X Geodesic line

X,T Mean High Water Spring Tide

Where: “A” is 58º 55.688′ N, 003º 15.234′ W “B” is 58º 55.831′ N, 003º 15.376′ W “C” is 56º 56.048′ N, 003º 14.281′ W “D” is 55º 55.917′ N, 003º 14.149′ W “E” is 58º 51.776′ N, 003º 12.117′ W “F” is 58º 51.787′ N, 003º 12.523′ W “G” is 58º 52.384′ N, 003º 11.856′ W “H” is 58º 53.169′ N, 003º 12.521′ W “I” is 58º 53.997′ N, 003º 11.010′ W “J” is 58º 53.965′ N, 003º 08.302′ W “K” is 58º 53.712′ N, 003º 08.268′ W “L” is 58º 53.609′ N, 003º 09.632′ W “M” is 58º 53.539′ N, 003º 09.712′ W “N” is 58º 52.975′ N, 003º 08.075′ W “O” is 58º 52.756′ N, 003º 08.390′ W “P” is 58º 53.362′ N, 003º 10.188′ W “Q” is 58º 53.189′ N, 003º 10.454′ W “R” is 58º 52.321′ N, 003º 10.153′ W “S” is 58º 51.648′ N, 003º 11.394′ W “T” is 58º 50.688′ N, 003º 06.157′ W “U” is 58º 50.890′ N, 003º 06.235′ W “V” is 58º 51.114′ N, 003º 04.841′ W “W” is 58º 51.166′ N, 003º 04.202′ W “X” is 58º 50.958′ N, 003º 04.111′ W b) The marine area within a distance of

(i) 400 metres of co-ordinates (b) latitude 58° 55.554′ north, longitude 003° 18.841′ west excluding any seashore lying above mean high water spring tide; (ii) 50 metres of co-ordinates latitude 58° 55.124′ north, longitude 003° 07.097′ west; (iii) 180 metres of co-ordinates latitude 58° 50.841′ north, longitude 003° 07.958′ west;

(b) Geographic co-ordinates are defined with reference to the World Geodetic System 1984 (WGS84)

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(iv) 100 metres of co-ordinates latitude 58°49.578′ north, longitude 003° 04.744′ west; (v) 100 metres of co-ordinates latitude 58° 50.085′ north, longitude 003° 04.194′ west; (vi) 100 metres of co-ordinates latitude 58° 49.685′ north, longitude 003° 02.972′ west; (vii) 250 metres of co-ordinates latitude 58° 53.551′ north, longitude 002° 53.967′ west, excluding any seashore lying above mean high water spring tide; (viii) 350 metres of co-ordinates latitude 58° 52.927′ north, longitude 002° 54.096′ west, excluding any seashore lying above mean high water spring tide; (ix) 200 metres of co-ordinates latitude 58° 52.233′ north, longitude 002° 54.865′ west, excluding any seashore lying above mean high water spring tide; and (x) 250 metres of co-ordinates latitude 58° 50.432′ north, longitude 002° 54.121′ west, including an area of seashore lying above mean high water spring tide that adjoins the area of sea.

Marine historic asset(s)

The marine historic assets located within the proposed Scapa Flow Historic MPA are: a) the remains of vessels that lie wrecked on or in the seabed; b) objects contained in, or formerly contained in the vessels; c) the structure known as the Clestrain Hurdles (and any part of the

structure); d) deposits or artefacts which evidence previous human activity on board the

vessels or the salvage of the vessels; and e) remains of anti-torpedo close protection pontoons and boom defences

which evidence previous human activity in connection with the operation and defences of the naval harbour of Scapa Flow during wartime.

Preservation objectives The preservation objectives for the proposed Scapa Flow Historic MPA and the marine historic assets are: a) to minimise loss of marine historic assets within the area; b) to prevent the removal, wholly or partly, of the marine historic assets from

within the Scapa Flow Historic MPA, except where Historic Environment Scotland and/or the Scottish Ministers are satisfied that this is desirable for the purpose of making a significant contribution to the protection of the marine historic asset or to knowledge about marine cultural heritage; and

c) to prevent the commercial exploitation of the marine historic assets for trade, speculation or its irretrievable dispersal other than provision of professional archaeological or public access which is consistent with preservation objectives a and b.

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SUPPORTING INFORMATION The Scottish Ministers are satisfied that designation of the Scapa Flow Historic MPA is desirable for the purpose of preserving marine historic assets of national importance which are located within the area.

Description The area comprises places within the sheltered natural harbour of Scapa Flow, Orkney, where marine historic assets are located that originate from Scapa Flow’s role as a Royal Navy base during the First (1914-18) and Second World Wars (1939-1945), as the anchorage where the German Imperial Navy’s High Seas Fleet was interned in 1918, scuttled on 21 June 1919, and where a major programme of marine salvage took place during the years 1919-1939, and 1956 to the 1970s. The wrecked vessels lying on the seabed within the area are the auxiliary vessels SS Prudentia and HMD Chance close to the north coast of the island of Flotta, the HMS Strathgarry in Hoxa Sound, the German submarine UB-116 close to the east coast of Flotta, merchant vessels purposefully sunk as blockships in Burra Sound, Kirk Sound, Skerry Sound, East Weddel Sound and Water Sound to prevent enemy access through these channels, and wrecked vessels of the German High Seas Fleet, scuttled close to the islands of Cava and Rysa Little. The remains of the German High Seas Fleet comprise the wrecks of three battleships, four light-cruisers, and three torpedo boats, as well as widespread debris remains of other vessels and objects left on the seabed in the course of the salvage activities. The Clestrain Hurdles is an upstanding steel structure extending around 1km across Clestrain Sound where it acted as a fixed barrier to prevent access by enemy shipping into Scapa Flow from the west. An area of seabed adjacent to the north-eastern tip of the island of Flotta is included as the remains of anti-torpedo close protection pontoons and boom defences are preserved there which provide evidence for the design and operation of defences to protect the Royal Navy at Scapa Flow during wartime. The area does not include the wrecks of HMS Vanguard and HMS Royal Oak, wrecks designated as controlled sites under the Protection of Military Remains Act 1986. Although located or partially located within the area, the built structures known as the Churchill Barriers are also not included in the designation as they are not specified as ‘marine historic assets’ in the designation order.

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Maps

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Statement of National Importance The range and quality of marine historic assets surviving on the seabed of Scapa Flow is outstanding and represents the largest relatively accessible concentration of warship wrecks and associated features in the UK, and possibly in European waters. These assets have a high potential to enhance our understanding about the key role Scapa Flow played as a naval base of outstanding strategic significance to the United Kingdom during both the First and Second World Wars of the 20th Century, and significant events in the wartime naval history of the North Atlantic that took place there. The remains of auxiliary vessels help us to understand the important role of the merchant marine in supporting the Grand Fleet at Scapa Flow during the First World War. The substantially intact wrecks of the High Seas Fleet retain structural, technical and other characteristics that provide an important insight into the design and operation of German naval ships during the First World War. The widespread debris fields of scattered structure and artefacts left behind by historic salvage of the High Seas Fleet also preserve important information about the ships while helping us to understand the major programme of marine salvage that took place in Scapa Flow during the interwar years and continued after the Second World War. The remains of blockships, fixed barriers, vessel protection pontoons and boom defences provide an important insight about the Admiralty’s ingenious and evolving strategies for defending Scapa Flow during two world wars, through a network of defences which extended from land out to sea. Our understanding of these marine historic assets is enhanced by the rich body of information about the naval history of Scapa Flow in the form of documents, film, and photographs in archives, and artefacts in museums. Nonetheless, many of them are extremely rare and have become a fundamental part of the coastal landscape, a reminder of Orkney’s major contribution to the national war effort during both World Wars. The loss of the assets within the area would significantly hinder our ability to understand these events and the key role played by Scapa Flow during two world wars. The history of the naval harbour of Scapa Flow and many of the events that it witnessed, such as the internment and scuttling of the German High Seas Fleet, resonate with the public and are part of the national consciousness, being promoted widely through museums and digital media. The salvage of the German Fleet remains one of the greatest marine salvage events ever undertaken through the ingenuity of firms such as Cox & Danks. The marine historic assets are located within an area that is an important economic marine resource and many of the wrecks are very popular for recreational diving. It is expected that designation will help to promote their cultural significance and ensure that their national importance is considered in the management of change through planning and other regulatory processes, while fostering understanding and enjoyment amongst sea users.

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Intrinsic characteristics The remains of wrecked vessels, built structures, and scattered debris fields of artefacts within the area fall under the following thematic groups – Royal Navy support, German navy, and marine defences. Where there are multiple assets within these groups, they are described in chronological order (for wrecked vessels this is using the date of sinking). Royal Navy support The wrecks of HMS Strathgarry, SS Prudentia, and HMD Chance, are surviving examples of auxiliary vessels that were requisitioned from merchant naval duty to service the Royal Navy’s Grand Fleet while at station in Scapa Flow during the First World War. The substantially intact remains of HMS Strathgarry (34m in length), lies on her side in Hoxa Sound. Divers observed deck timbers, a wheelhouse structure, binnacle and wheel on the wreck (Wessex Archaeology 2012a). Of particular technological interest in understanding the operation of the boom defences are the survival of coiled cable and four large winches. Originally an Aberdeen-built (1906) steel steam trawler, Strathgarry was requisitioned by the Admiralty in June 1915. She was assigned to operate the gate in the boom defences in Hoxa Sound, but sank following collision with HMS Herald in Hoxa Sound on 6 July 1915. The wreck of Prudentia (95m in length) lies on her side 1km west-north-west of Flotta Oil Terminal (Anderson, 2016). Built in Newcastle in 1889, at the time of her loss, Prudentia had been requisitioned as an Admiralty oiler, supplying fuel to the fleet, before sinking following a collision with SS Hermione on 12 January 1916. The wreck survives structurally intact and has not been subjected to salvage activity. A diver inspection identified visible loose artefacts (e.g domestic items and navigational equipment) and structures such as gantries that illustrate her role as an oiler. There is a debris field, mostly of coal, on the seabed, deck-side. The broken up remains of a drifter (a type of fishing vessel), probably HMD Chance (WK 270), lie a short distance from the wreck of SS Prudentia (Sula Diving 2016). Chance was lost in Scapa Flow 26 January 1916 (14 days after the Prudentia). Although most of the vessel’s timbers have rotted away, metal features survive such as the engine, the ship’s wheel (eroded but in place), pressure gauges, sighting gauges, lamp housings, a capstan winch, anchor and other miscellaneous wreckage. Discovery of a funnel with markings supports identification of the wreck as the Chance. Piles of cable overlying the wreck add to the interest of this site as they are likely to be the remains of Second World War telecommunications cable used for ship-to-shore communications from mooring buoys nearby. The relatively high degree of survival of Prudentia, Chance and Strathgarry mean that they are of archaeological, historic and technological interest in improving our understanding of ships and boats, in particular the adaptation of merchant vessels requisitioned for wartime use and the role they played in supporting the Grand Fleet while at Scapa Flow during the First World War.

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German navy The wreck of UB-116 is the only example of a First World War submarine lost within Scapa Flow. A UB-III class submarine, UB-116 entered service in 1918 and completed only four patrols before the loss in Hoxa Sound in October 1918. Although salvage has impacted the degree of survival of UB-116, key identifiable features survive such as the conning tower - this is separated from the main wreck structure. Survival of such features means that this site can still enhance our understanding and appreciation of the threat posed by German submarines to the naval anchorage of Scapa Flow. As a condition of the Armistice in 1918, 74 vessels of the German Imperial Navy’s High Seas Fleet were surrendered, disarmed and interned in Scapa Flow until a peace treaty could be agreed. The interned fleet amounted to 24 capital ships (a navy’s most important warships) comprising eleven battleships (‘linienschiffe’), five large cruisers (‘große kreuzer’), six light cruisers and two fast minelaying cruisers (‘kleine kreuzer’), and 50 smaller vessels of various classes (‘torpedoboot’ and ‘große torpedoboot’), referred to here as torpedo boats. On hearing the terms of the Treaty of Versailles, Admiral Von Reuter (commanding officer of the interned fleet) believed that no German ships should fall into enemy hands (Hewison, 2005: 126). On 21 June 1919, he ordered the scuttling of the entire fleet. The battleship Friedrich der Große, was the first to sink. By late afternoon 51 more ships had sunk to the seabed; through the intervention of Admiralty Port Officers, the rest were either beached before they sank, or they sank in very shallow water. Only seven of the wrecked capital ships proved too deep to salvage economically in one piece during the major programme of salvage works that took place in Scapa Flow during the years 1919-1939, and 1956 to the late 1970s. The wrecks of three König-Class battleships König, Kronprinz Wilhelm and Markgraf (each about 175 metres long) lie upside down to the north east of the island of Cava, their superstructure impacted into the seabed. The three battleship wrecks are examples of the most battle-proven class of German battleships of their time, the pinnacle of German naval development at the dawn of the First World War (Staff 2010). The wrecks of four light cruisers ranging from 142-155m in length lie on their sides: Cöln, Brummer and Dresden to the northeast of Cava island; Karlsruhe to the west. These wrecks are surrounded by a tightly-confined debris field. The Brummer was a mine-laying cruiser of the Brummer Class; the Cöln class vessels (Cöln and Dresden) were slightly larger and faster redevelopments of the Königsberg class of cruisers of which Karlsruhe is an example. The final class of light cruisers to be built during the war, Cöln and Dresden demonstrate Germany’s continued interest in building surface warships after Jutland. All seven of the wrecked capital ships retain significant structural survival, with the hulls more or less intact and illustrating early 20th century German naval architecture. The hulls have however been impacted by extensive salvage during the 1960s/70s. This is evident from gaping holes into the structures around the engine rooms for the purpose of salvaging valuable non-ferrous components (e.g condensers), and from removal of armoured hull plating. Furthermore, ongoing deterioration in the structural integrity of the hulls have been observed since 2001, for example, in the light cruiser Brummer, sections of the deck are peeling away from the hull. However, artefacts

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recovered in 2012 from within the compartments of Markgraf, and recovery in September 2003 of several hundred postcards from a forward compartment of Karlsruhe (Clydesdale 2007) provide evidence for the range of ship’s equipment and personal effects that still exist within the wrecks, confirming that these wrecks are not merely ferrous skeletons, but can significantly enhance our understanding of the equipment of German First World War capital ships, and life on board for German sailors after disarmament in 1918, and throughout the period of internment in Scapa Flow. The wrecks of the S54, V83 and S36 represent substantially surviving and securely identified examples of the 50 smaller vessels. The best preserved of the wrecked smaller vessels is the V83, a V67 class torpedo boat (the largest class of ships of this type in the High Seas Fleet). Only partially salvaged, the general outline of the lower section of V83 survives to almost the vessel’s fully length, in shallow water, bow to shore, on the east side of Rysa Little. Key visible features include a 4.1in deck gun and remains of the propulsion system. This site is overlain by the remains of the salvage vessel Energy, which sank while in use by salvor Peter Kerr, a foreman diver with Cox & Danks, during the salvage of V83 in 1925. The pioneering salvage techniques deployed in Scapa Flow by Arthur Cox and Thomas McKenzie involved use of floating docks, winches and steel wires/chains to lift the hulks of the smaller vessels, prior to pumping out. The majority of larger vessels, most of which lay upside down on the seabed, were sealed and pumped with air to raise them to the surface. In many cases turrets, masts, funnels and other superstructure was blown off using explosives, or crushed into the hull to prevent snagging on the seabed during towage. Vessels were towed to breaking facilities at Lyness where some were dismantled completely; others were towed onwards to Rosyth. Surveys confirm seabed remains at ‘primary salvage sites’ north and west of Cava – the locations where the original lifts took place. The remains comprise discernible seabed depressions left behind after each of the large vessels was lifted, where scattered debris is located, much of it from the ships superstructure. Key features include four 600 ton gun turrets that broke free from the hull of the battleship Bayern during the first lift in July 1923, items of deck superstructure and equipment such as search lights, masts, spotting tops, the remains of diesel pinnaces (ship’s boats), splinter-proof control rooms, and davits. Further material is likely to be buried. As many of these features are not visible on the intact wrecks (either because they will be buried under upturned hulls or because they have generally been removed from the cruiser wrecks), the sites where these remain are located, retain potential to enhance our understanding about the High Seas Fleet. The primary salvage sites for Moltke, Seydlitz, Derflinnger, Von Der Tann, and Hindenburg preserve fragmentary but rare surviving evidence of the large cruisers of the High Seas Fleet, vessels designed for reconnaissance and combat (Staff 2014). Across the salvage sites, there are important surviving features such as diesel ships’ pinnaces (smaller boats carried by the large ships) which have not been identified on the intact wrecks and which therefore enhance our knowledge about the German High Seas Fleet as a whole. These remains are also particularly instructive in enhancing our understanding of how the salvage of the capital ships took place. In

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the case of the Hindenburg, this is clear from two sections of a torpedo boat filled with 600 tons of concrete. These were used during lifting operations to cushion the stern of the upright Hindenburg, to prevent her from listing. . At the primary salvage site of Seydlitz, the remains of concrete-filled boilers and a salvage barge are interspersed with blasted cruiser wreckage. Surveys have identified debris trails and, in the case of Derflinnger and Von der Tann, secondary salvage sites around the island of Rysa Little and the shallower water west coast of Cava where scattered but identifiable debris remains of the wrecks survive, arising from movement of the hulks to shallower locations where further breaking work took place before the hulks were eventually towed to the breakers. North of Rysa Little, Henry et al (2017; 31-35) identified a bridge structure cabin most likely from a Kaiser class vessel, search light platforms including one complete with two searchlight controllers, a derrick and samson post, and an 8.8cm L/45 German naval gun. Such features add to evidence we have for individual ships/classes of ships. Related remains lying outside the proposed boundary of the protected area have been identified through survey work (but not included in the designation). There is relatively limited survival of debris at the salvage site of the torpedo boat V45 on the north coast of the island of Fara, isolated objects such as anchors within Gutter Sound where the torpedo boat fleet was anchored at internment, and extensive areas of scrap on the seabed around the Lyness breaking facilities. These remains are generally considered to have relatively low research potential, on account of the low degree of survival, and the challenge in identifying the material to particular vessels or classes of vessel. Furthermore, remains of the High Seas Fleet can be traced beyond Orkney waters as vessels were occasionally lost on route to the breakers, for example the site of the V71 torpedo boat off the Caithness coastline. Marine defences In order to defend Scapa Flow, the Admiralty acquired over 50,000 gross tons of redundant merchant ships which were sunk in five channels in 1914-15 (Stell, 2010:84) to prevent passage by enemy craft. A further 19 blockships (some 70,000 tons) were added during the Second World War (Hewison, 2005: 242). Four complexes of blockships are located adjacent to the Churchill barriers at the east side of Scapa Flow. From north to south, there are 3 surveyed wrecks within Kirk Sound, 10 within Skerry Sound, 4 in East Weddel Sound and 5 within the sands adjacent to Churchill Barrier 4 (Water Sound). Fragments of other vessels are also likely to be present, for example in some cases partially buried into the Churchill barriers. As merchant vessel wrecks are relatively common across the UK and the degree of survival of fixtures and fittings is limited, the blockships are of limited archaeological, scientific, technological interest in improving our understanding of ships and boats. Their key interest relates to the secondary use by the Admiralty as a defensive naval tactic for preventing passage by sea through the narrow channels into Scapa Flow. Their location in relation to the channels is therefore of particular interest. The blockships survive to a varying degree as a result of historic salvage and clearance activities, and natural deterioration. Those on the west side of the barriers

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tend to be more intact (e.g the First World War blockships SS Thames and SS Minieh in Kirk Sound, and Second World War blockships Empire Seaman and Martis in Skerry Sound); blockships on the east side are generally well broken up, due in part to storm impacts. However, the most numerous collection is the group of both First and Second World War examples on the east side of the barrier in Skerry Sound because fewer vessels were moved from this location. As two wrecks (Cleo II and Aorangi) either moved or were removed from their original burial location and are now located more than 1km to the east of the barriers, these sites are not included within the proposed designation. A fifth group comprising up to ten fully submerged blockships, including examples from both wars, lie in Burra Sound (at the west of Scapa Flow), between Hoy and Graemsay. Burra Sound is an area of fast tidal currents and the blockships vary in survival (Wessex Archaeology 2012a: 15-32) from relatively intact wrecks (e.g the Second World War blockships Tabarka; Inverlane) to well broken-up remains (e.g the First World War blockships: Urmstone Grange; Ronda). The site of the Clestrain Hurdles across Clestrain Sound is of technical interest in enhancing our understanding of the marine defences of Scapa Flow. This structure was built around 1917 by the renowned London engineering firm Topham Jones and Railton (Stell, 2010; 84-87) and consisted of a fixed barrier of bolted steel rails 30ft wide, and up to 70ft high in places. Geophysical surveys (Christie et al., 2014) indicate that the Clestrain Hurdles survive as an upstanding structure extending c.1km across Clestrain Sound, oriented east-north-east to west-south-west. The surviving height of the structure above the seabed varies between 1.5-5m. It is notable that the hurdles have survived at all given that the hindrance they posed to navigation in peacetime resulted in clearance activities being carried out by the 1920s. The Admiralty also tested ingenious vessel protection systems in Scapa Flow. Anti-Torpedo Close Protection Pontoons (ATCPPs) were used for only a short period March 1941-April 1942 to act as close protection for vessels in Scapa Flow from the threat of aircraft launched torpedoes (Christie et al 2015). Surveys confirmed presence of at least two pontoons of an apparently standardised design on the seabed at the north-eastern tip of the island of Flotta, and three other structures which are likely also to be ATCPPs. The two confirmed pontoons are intact including key features of the asset type (Christie et al., 2015) while an intertidal site between Roan Head and the Calf of Flotta is also largely intact. The fragmentary remains of a pontoon survive onshore at Hoxa Head (outside the proposed protected area - see Canmore ID 314006). Mobile boom defences were also deployed to protect the fleet, according to the ‘Munro’ model. The presence of boom buoys and netting at this site adds interest although it is unclear if the boom buoys formed part of the defensive pontoon system. These remains are of technological interest and offer potential to investigate the marine defensive network of Scapa Flow and how mobile pontoons were used as an experimental device to defend naval ships against airborne torpedoes. Contextual characteristics Scapa Flow is a relatively shallow inland sea (around 310 km² in area), almost totally encircled by islands that provide shelter from the Atlantic and the North Sea. The

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advantages to mariners of the natural anchorage afforded by Scapa Flow’s sheltered waters have long been recognised and these factors, together with Orkney’s strategic position in Britain’s coastal defences led to Scapa Flow being chosen as the war station for the British Grand Fleet during the First World War. As the major military and naval threat moved northwards in the early 20th century (ie Germany) its importance became clear. Admiral Jellicoe claimed ‘for whoever controls it commands the North Sea with easy access to either side of the British Isles and the wide oceans of the world beyond’ (Hewison, 2005: 1). The location of assets within Scapa Flow helps us to understand the naval wartime landscape. The main fleet anchorage was located east of the island of Cava and north of the island of Flotta in the large expanse of open water at the centre of Scapa Flow. The wrecks of SS Prudentia and Chance are located close to this, in an area north of Flotta that was used for fleet refuelling operations during wartime. Also located within the main naval anchorage are the wrecks of the battleships HMS Vanguard, exploded at anchor on 9 July 1917 with the loss of over 800 men, and HMS Royal Oak, torpedoed early in the morning of 14 October 1939, with the loss of 834 men. Both these wrecks are separately designated as controlled sites under the Protection of Military Remains Act 1986. The network of marine defences established to protect the fleet during the First World War, and further developed during the Second World War is depicted in a series of Admiralty plans and charts from 1915-1943. These maps are reflected in the surviving remains. Strathgarry lies in the middle of Hoxa Sound, the primary fleet entrance into Scapa Flow, where Strathgarry was operating boom defences in 1915. The complexes of blockships at Burra Sound (at the west side of Scapa Flow), and those in the four channels at the east of Scapa Flow, prevented enemy incursion through narrow channels between islands. The blockships formed an important component of a wider network which extends on land, including coastal batteries, barriers and camps. For example the blockships across Kirk Sound are overlooked by Holm Battery and Lamb Holm settlement and lie directly adjacent to the Churchill barrier that was installed after the blockship defences after the sinking of the HMS Royal Oak by U-47. As the Churchill Barrier blockships survive both above and below water, they represent a highly visible aspect of the wartime coastal landscape. The setting of the blockships has changed to a certain extent since wartime. In particular construction of the Churchill Barriers created a land link between mainland Orkney and the island chain along the east of Scapa Flow as far as South Ronaldsay. The blocking up of the channels led to changes in the tidal currents. This appears to have led to significant accretion of sand, particularly evident at the barriers across East Weddel Sound and Water Sound. A fixed defensive barrier was required for the faster currents in Clestrain Sound at the west of Scapa Flow. During the First World War, the Clestrain Hurdles preformed this function in conjunction with a guardship (HMS Hannibal then HMS Crescent) anchored in Clestrain Sound. A coastal battery at Upper Sower (scheduled monument SM13449) provided artillery cover over the Sound.

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At Flotta, the remains of the Anti-Torpedo Close Protection Pontoons (ATCPPs) lie at a location where historic charts (UKHO 1940) show up to 18 moorings close to the main fleet anchorage in Scapa Flow and where researchers believe that the ATCPPs may have been moored when they were not deployed to protect ships in Scapa Flow. The identification of boom nets and buoys overlying this site is notable. If they did not form part of the defensive pontoon system, it is possible that their presence is a result of storing or dumping of surplus boom defence materials at this location. The surviving wrecks of the German High Seas Fleet and the remains at the primary salvage sites provide evidence of where the ships of the High Seas Fleet were stationed following internment in Scapa Flow in November 1918 and at the time Von Reuter gave the order to scuttle the fleet. The 24 capital vessels lay at anchor or were moored around the island of Cava. SMS Bremse was anchored on the north side of Scapa Flow at the mouth of Swanbister Bay. During the scuttling, an attempt was made to save Bremse by towing north towards shore where she sank. The remains of V83 is located close to where the smaller vessels were located, in pairs and anchored in two parallel lines at various locations between Hoy and the island of Fara (Van der Vat, 2007:132). The scattered remains of wreck superstructure identified in debris trails and secondary salvage sites helps us to understand the salvage process. For example, following the raising of SMS Derflinnger in 1939, initial blasting took place at the primary salvage site before the hulk was moved, first to the east side of Rysa Little where some blasting took place, and then to the west side of Rysa Little where further salvage took place and where the hulk remained until 1946, when Derflinnger was towed to Lyness then onwards for breaking at Faslane on the Clyde. The location of the S36 and S54 are a consequence of the salvage operations: S54 broke her tow in Hoxa Sound on route to the breakers yard before she was eventually salvaged in-situ by Cox & Danks. S36 was towed to the west coast of Cava in 1925 and sunk in shallow water with the specific intention of using the hull as an anchor in the planned salvage of SMS Hindenberg in 1926. Many of the marine historic assets within the area represent very rare survivals. Prudentia appears to represent a rare survival of a First World War Admiralty oiler, in such an intact state. Of the marine defences, the Clestrain Hurdles is thought likely to have been the only structure of its kind erected in Scottish or possibly British home waters during wartime (Stell 2010. 84-87). The Scapa Flow blockship complex as a whole represents arguably the best surviving complex of wartime blockship remains in N. Europe. As blockships were often used in busy harbours which needed to be re-opened after war ended, other UK examples (e,g Dover harbour) have been removed: around 100,000 tons of blockships were removed from the French channel ports shortly after the Second World War. The ATCPP were only in operation for 13 months and few were brought into service, mostly deployed at Scapa Flow and Rosyth. Researchers believe that up to 17 units may have been present in Scapa Flow (Christie et al., 2015; 14). Ultimately, they proved to be a short-lived experiment, proving difficult to manoeuvre in harbour. The Admiralty eventually opted to deploy landing craft tanks adapted to carry close protection nets. Although other better preserved examples of UB-III submarine class exist (e.g UB-85/-82 in the Irish Sea), UB-116 is the only example of a German First World War

21

navy loss within Scapa Flow, and she lies close to Hoxa Sound where she was sunk by a remote-controlled mine and depth-charges following identification in the Hoxa Sound detector loops. The four light cruisers and three battleship wrecks represent all that remain substantially intact of the capital ships of the Imperial German Navy’s High Seas Fleet interned in Scapa Flow then scuttled in 1919. The remains of the S54, S36 and V83 torpedo boat are the best surviving and securely identified examples in Scapa Flow, of the 50 smaller vessels of the High Seas Fleet. Due to the removal for salvage of the remainder of the fleet and the breaking-up of other German First World War naval ships, these vessel remains are extremely rare. The only other significant collection of wrecks of the High Seas Fleet is that at the battle site of Jutland in the North Sea (McCartney 2016). Scientists believe that these wrecks may also be contributing to the wider marine environment by acting as an artificial reef, enhancing biodiversity. For example, surveys indicate that the wreck of Karlsruhe has contributed to the survival of beds of horse mussel (Modiolus modiolus), a ‘Priority Marine Feature’ of conservation interest to Scottish Government (Sanderson et al 2014). Efforts by the Admiralty to recover the beached vessels were largely complete within two months of the scuttling. 52 sunken wrecks lay undisturbed but posed a navigation hazard to local fishing vessels until salvage efforts for scrap metal began in 1922 (George, 1999; 34) with the recovery of the torpedo boat G89 from shallow water off the island of Fara. During the interwar period, 31 torpedo boats were recovered by several different salvage companies. In 1926, Ernest Cox turned his attention to the capital ships and after attempts to refloat the battleship Hindenburg, his first successful recovery took place in June 1927 - the large cruiser SMS Moltke. Six others followed before Cox’s salvage interests were taken over in the 1930s by the Alloa Shipbreaking Company and Metal Industries Ltd. The last successful recovery of a capital ship, Derflinnger, took place in 1939 (George, 1999; 128). Salvage of the wrecks continued after the Second World War. In 1956, Metal Industries Ltd sold its interests to Nundy (Marine Metals) Ltd. During the period until 1971, Arthur Nundy undertook salvage work on Kronprinz Wilhelm and König, to recover armour plating and non-ferrous metals. Dougall Campbell and David Nicholl purchased Nundy Marine Metals in 1971 and, under the name Scapa Flow Salvage Ltd, continued operations through the 1970s, focussing on the wreck of SMS Markgraf and the light cruiser wrecks (Forbes, 2002). The location and distribution of the salvage sites to the north and west of Cava helps us to understand their arrangement on internment, and how the interwar salvage took place. Our understanding is significantly enhanced by the abundant documentary evidence available, including ships plans, photographs and film of the interned fleet, and documentation of its key wartime role. However, although the naval events of the First World War are well documented, few museums worldwide retain substantial collections of artefacts. Associative characteristics The physical remains of marine historic assets from the First and Second World Wars throughout Scapa Flow have become places to visit, remember and

22

commemorate those who served and who lost their lives. Together with the many historic buildings and monuments surviving on land, the marine historic assets which survive within the area are reminders of the major effort made to defend the British Isles during the First and Second World Wars. They are directly associated with internationally important events and people that resonate with the public and are part of the national consciousness. The history of the Royal Navy at Scapa Flow is widely documented in literature, paintings, and tradition, and through commemorative events for the loss of HMS Royal Oak, and HMS Vanguard in St Magnus Cathedral, Kirkwall, and at the Lyness naval cemetery,Hoy. The important role of the auxiliary vessels in the supply and support of the Grand Fleet at Scapa Flow has not achieved much attention although requisitioning made a major contribution to the war effort. Strathgarry and Chance were amongst the large numbers of fishing vessels requisitioned for war duties. Trawlers and drifters were particularly suited for many naval requirements including minesweeping and operation of boom defences, because they were robust boats designed to work heavy trawls in all types of weather and had large clear working decks. The creation of the marine defences of Scapa Flow at the beginning of the First World War required a major mobilisation of effort, rapid action and a high degree of ingenuity. The degree of ingenuity is well illustrated by the installation of the blockships, and the Clestrain Hurdles, the latter recorded in a series of photographs and published discussions by the distinguished engineer Sir William Halcrow 1883-1958 (see Stell 2010:86). After the war the Clestrain Hurdles proved ‘a source of serious inconvenience to the town and district of Stromness’. The operation of boom defences in Scapa Flow is documented in contemporary photographs in the Imperial War Museum (see IWM A10211). The ‘Cromarty Model’ of boom defences is strongly associated with Captain Donald John Munro who, as Senior Naval Officer for the Cromarty Base, authorised the creation of a boom defence net despite Admiralty reservations. The success of the system at Cromarty led to its deployment by the Admiralty on a wider scale with Cromarty model booms subsequently installed at all the major anchorages in Scotland including Scapa Flow. The laying of blockships in Scapa Flow and their visible presence today remains an important part of the story of Scapa Flow as recorded in books and in wartime photographs (see Stell 2010;54). The failure of the blockship defences in Kirk Sound allowed the German submarine U-47 to penetrate Scapa Flow, resulting in the sinking of HMS Royal Oak in 1939. The horror of this incident and the threat posed to the navy at anchor led in turn to the construction of the Churchill Barriers. Before their internment and scuttling in Scapa Flow, vessels of the German High Seas Fleet such as the König, Kronprinz Wilhelm, Markgraf played an important part in naval engagements of the First World War with the Royal Navy, in particular the Battle of Jutland on 31 May 1916. Along with Grosser Kurfürst, they made up the V Division of the III Battle Squadron, the vanguard of the fleet, playing an important role in the battle. The S54 was also present at Jutland and claimed the loss of the HMS Shark (McCartney 2016). The surrender, disarmament and subsequent internment of the German High Seas Fleet in Scapa Flow represented a humiliation

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for Germany. Admiral Ludwig Von Reuter’s attempt to scuttle the entire German fleet of 74 vessels remains the largest intentional sinking in worldwide naval history. Captain Schumann of Markgraf was one of two German officers and six other men killed, and five wounded during the scuttling, some of the last casualties of the First World War. Loss of life also occurred when the Hoxa Sound minefield was detonated following an attempt by UB-116 to enter Scapa Flow on 28 October 1918 to confront the Grand Fleet for one final time. The loss of UB-116 was the last U-boat loss of the First World War, and the surviving remains are a testament to the effectiveness of the marine defensive system. The salvage of the German High Seas Fleet between 1923 and 1939 represents one of the most outstanding marine salvage feats of all time and is widely recorded in archive photographs and film, recording the ingenuity and tenacity of salvage pioneers like Ernest Cox and Thomas Mackenzie. Since the 1980s, dive tourism on the wrecks has made Scapa Flow a scuba diving destination of worldwide renown, providing ‘the best wreck diving in Europe and ranking in the top five in the world (Wood 2008). Museums on Orkney tell the wartime history of Scapa Flow to visitors from around the world.

References

Published references Booth, T. (2005). Cox's navy: Salvaging the German High Seas Fleet at Scapa Flow 1924-1931. Barnsley: Pen & Sword Maritime. Clydesdale, A. (2007) Postcards from Scapa Flow: Developing a Conservation Strategy for Material Recovered from SMS Karlsruhe. Journal of the Society of Archivists, 26:1, 87-104, DOI: 10.1080/00039810500047508 George, S. (1999) Jutland to junkyard: The raising of the scuttled German High Seas Fleet from Scapa Flow: The greatest salvage operation of all time. Edinburgh: Birlinn. Hewison,W. S. (2005) This Great Harbour: Scapa Flow. Birlinn McCartney, I.J (2016) Jutland 2016. The Archaeology of a Naval Battlefield. Mills, S. (ed) (2005) Scapa Flow from graveyard to resurrection. Chesham Staff, G. (2010) German battleships 1914-18 (2) Kaiser, Konig, and Bayern classes. Oxford Staff, G. (2014) German battlecruisers of World War One, their design, construction and operations. Barnsley Stell, G. (2010) Orkney and War: Defending Scapa Flow Vol 1 World War 1 Kirkwall

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Van Der Vat, D. (2007) The Grand Scuttle: The Sinking of the German Fleet at Scapa Flow in 1919. Edinburgh: Birlinn.

Wickham Jones, C., Bates, C. R., Bates, M., & Dawson, S. (2017) The Changing Landscape of Prehistoric Orkney. In The Ecology of Early Settlement in Northern Europe - Conditions for Subsistence and Survival (Volume 1) - Per Persson (Vol. 1). DOI: 10.1558/equinox.30926

Wood, L. (2008) Scapa Flow Dive Guide. Southend-on-Sea: Aquapress.

Photographs Imperial War Museum, A10211. Boom defence of Scapa Flow. 19 June 1942. Admiralty Official Collection. See https://www.iwm.org.uk/collections/item/object/205143949 Charts Scapa Flow coastal and marine defences April 1915 (National Archives – ADM 137/1074, f.228) UKHO 1940, Chart F.083 South West Portion of Scapa Flow, including Cantick and Switha Sands. Online resources Anderson, B., (2016) The Steamship Prudentia: Diver survey report 22.11.16. Vanguard 100 Dive Team, MV Huskyan. Copy available at https://canmore.org.uk/collection/1609642 Christie, A., Heath, K., Littlewood, M., (2014) Scapa Flow 2013 marine archaeology survey. Project report by Orca Marine and Sula Diving for Historic Environment Scotland. Copy available at http://www.scapaflowwrecks.com/projects/marine-archaeology/ Christie, A., Heath, K., Littlewood, M., (2015) Roan Head Boom Buoy vessel project report by Orca Marine and Sula Diving for Historic Environment Scotland. Copy available at http://www.scapaflowwrecks.com/resources/scapa-map/boom-buoy-barge-report-2015.pdf Forbes, B. (2002) ScapaMap 2000-2002. Report compiled for Historic Scotland on the mapping and management of the submerged archaeological resource in Scapa Flow, Orkney. Copy available at http://www.scapaflowwrecks.com/projects/scapa-map/ Forbes, B. (2006) ScapaMap2 marine heritage monitoring with high-resolution survey tools. Copy available at http://www.scapaflowwrecks.com/projects/scapa-map/

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Heath, K., Thomson, M., (2019) Scapa Flow underwater salvage sites survey phase 2 report. Copy available at http://scapaflowwrecks.com/projects/salvage-sites-phase-2/. Henry, S,. Heath, K., Littlewood, M. (2017) Scapa Flow High Seas Fleet salvage sites report for Historic Environment Scotland. Copy available at https://canmore.org.uk/collection/1592698 Historic Environment Scotland, (2009) Towards a strategy for Scotland’s marine historic environment. Discussion paper in association with the marine taskforce of the Built Environment Forum of Scotland. Copy available at < www.historic-scotland.gov.uk/marine-strategy.pdf> Historic Environment Scotland, (2011) Scottish Historic Environment Policy. Copy available at <www.historic-scotland.gov.uk/shep-dec2011.pdf> Historic Environment Scotland (2012a) Guidelines on the Selection, Designation and Management of Historic Marine Protected Areas - copy available at <www.historic-scotland.gov.uk/historic-mpa-guidelines.pdf> Historic Environment Scotland (2012b) Historic Marine Protected Areas, a guide for visitors, investigators and managers – copy available at <www.historic-scotland.gov.uk/historic-mpa-leaflet.pdf> Historic Environment Scotland (2012c) – Strategy for the protection, management and promotion of marine heritage 2012-15 – copy available at <www.historic-scotland.gov.uk/marine> L’Hour, M (2014) in Underwater Cultural Heritage from World War 1: A vast, neglected and threatened heritage in Underwater Cultural Heritage from World War I, proceedings of the scientific conference on the occasion of the centenary of World War I. UNESCO - http://www.unesco.org/culture/underwater/world-warI.pdf Sanderson, W., Hirst, N., Farinas-Franco, J. M., Grieve, R. C., Mair, J. M., Porter, J., & Stirling, D. (2014) North Cava Island and Karlsruhe horse mussel bed assessment. Inverness: Scottish Natural Heritage. Copy available at http://www.snh.org.uk/pdfs/publications/commissioned_reports/760.pdf [last accessed 19/12/2018] Scottish Government (2010) Making the most of Scotland’s seas – copy available at <http://www.scotland.gov.uk/Publications/2010/04/01085908/2> Sula Diving (2010) Survey of the Clestrain Hurdles in Clestrain Sound. Unpublished report for Orkney Islands Council Marine Services. Sula Diving (2016) Investigation of an uncharted wreck located in Scapa Flow, Orkney. Copy available at http://www.scapaflowwrecks.com/resources/sula-drifter-report-august-2016-v02.pdf

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Wessex Archaeology (2012a) Scapa Flow Wreck Surveys, archaeological interpretation of multibeam data and desk-based assessment. Report ref 83680.02. Copy available at https://canmore.org.uk/collection/1291361

Preservation objectives Preservation objectives for the Scapa Flow Historic MPA are intended to guide the management of important marine historic assets within the area according to what is considered practicable in this case. In formulating these objectives, Historic Environment Scotland has drawn on survey reports (see bibliography) and the results of public engagement work (Historic Environment Scotland 2018). The preservation objectives are: a) to minimise loss of marine historic assets within the area; b) to prevent the removal, wholly or partly, of the marine historic assets from within the Scapa Flow Historic MPA, except where Historic Environment Scotland and/or the Scottish Ministers are satisfied that this is desirable for the purpose of making a significant contribution to the protection of the marine historic asset or to knowledge about marine cultural heritage; and c) to prevent the commercial exploitation of the marine historic assets for trade, speculation or its irretrievable dispersal other than provision of professional archaeological or public access which is consistent with preservation objectives a and b. Vulnerability of marine historic assets The survival of marine historic assets can be affected by a complex interplay of processes originating from sources that may be naturally occurring (e.g. chemical, biological or physical factors) or man-made (Historic Scotland 2012a, 8). The marine historic assets within the proposed Scapa Flow Historic MPA may be potentially vulnerable to the following impacts from man-made operations, if these were to occur: • Direct impacts – physical damage/loss/alteration arising from: a) collision/abrasion by construction/extraction activities; commercial fishing operations which impact on the seabed (particularly demersal trawling – e.g. trawling for nephrops); anchoring/mooring of vessels; and b) the selective removal of artefacts and/or excavation of sediments by diving/archaeological operations within the protected area. • Indirect impacts – alteration/loss of marine historic assets arising from any construction/extraction/dumping at sea/commercial installation operations adjacent to marine historic assets which might significantly exacerbate erosion of sediments or increase corrosion-related deterioration to marine historic assets within the proposed protected area. Table 1 indicates key pressures that are known currently. Table 2 explains what is known about the current baseline position in relation to the preservation objectives.

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Hazard Risk (where risk = frequency x

severity)

Potential

impacts

to

receptor

Pathways Sources observed Severity

(where 3

is the

highest

severity,

and 1

the

lowest

Probability /

frequency

(where 3 is

the highest

probability/

frequency

and 1 the

lowest)

Risk

(hi/

med/

low)

Damage/

loss/

alteration

of marine

historic

assets

Collision/

abrasion

Man-made operations

Anchoring/mooring – areas

not generally located in

favoured anchorage zones

although some use is

reported by smaller

vessels.

Commercial fishing: - static

gear in use across parts of

the proposed area;

snagging impacts are likely

to be minimal.

Little if any use of mobile

gear (nephrops trawling)

around the wrecks within

the area, although there

have been occasional

anecdotal reports of gear

getting caught in the

wrecks.

2

1

3

1

2

1

Low

Low

Low

Selective

removal

Recreational diving is very

popular, particularly on the

wrecks of the German High

Seas Fleet. Potential

impacts can include

selective removal of

artefacts without recording

and conservation.

Salvage – little/no salvage

taking place now but with

high potential impact.

1

3

3

0.5

Med

Low

Degradation

of remains

due to natural

processes –

incl. potential

collapse of

structural

components

Natural processes

Corrosion-related

degradation due to complex

physical/biological/

chemical processes

Tidal currents and effects of

storm activity likely to be

particularly a factor for

some of the blockships

2

2

3

2

Med

to

high

Med

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Table 1 – Risk profile for the proposed Scapa Flow Historic MPA on the basis of observations from archaeological investigation and site monitoring.

Table 2 – Draft preservation objective for the proposed Scapa Flow Historic MPA in relation to survival/site condition, together with a baseline status. Historic Environment Scotland monitors this on a periodic basis and keeps a register of the information.

Objective Current indicator status and

descriptor

Detail in relation to baseline position

To minimise

loss of

marine

historic

assets within

the area

Survival descriptor: variable -

ie. the degree of survival

varies between the various

marine historic assets. It is

therefore not possible to

attribute a single descriptor to

the remains as a whole.

Scapa Flow is a relatively sheltered inland sea with maximum water depths in the centre of 30 - 40 m and

deeper waters in Hoxa Sound. The seabed exhibits a pronounced shelf with shallow bays and channels

close to the coast – such areas represent former land surfaces that were flooded as sea-levels rose after

the last ice age (Wickham Jones et al., 2017).

Sediments on the seabed surface in the main basin and shallow bays are primarily muddy sands. These

appear largely stable within the German High Seas Fleet anchorage area and the seabed close to the

wrecks of Prudentia/Chance. Areas of greater tidal flow (e.g Clestrain, Hoxa and Burra Sounds) are

associated with cleaner sands and gravels. Evidence of sediment scour around the wreck of HMS

Strathgarry in Hoxa Sound indicates that this may be mobile in places. Kelp forests occur on bedrock and

boulder slopes. Surveys indicate that areas of seabed around the wrecks of the German High Seas Fleet

are rich in biodiversity (e.g horse mussel (Modiolus modiolus) beds around the wreck of the Karlsruhe.

The degree of survival varies across the area between the various wrecked vessels, salvage sites,

structures, and related debris fields.

Baseline survey information is set out in survey reports (see above) and an estimate of the core of

recorded remains of marine historic assets is shown in accompanying maps. This data, together with a

survival descriptor for each site, is available from Historic Environment Scotland to assist with

management and monitoring.

As most of the marine historic assets across the area are of metal construction, they will be experiencing

varying degrees of corrosion-related change, in common with metal wrecks worldwide (see L’Hour

2014:101). There is little scientific data about this for the Scapa Flow wrecks and the processes at play

are complex but structural changes have been observed to the wrecks of the German High Seas Fleet.

Forbes (2006: 24) identified that, in addition to the effects of historic salvage, there is evidence of plate

separation, most likely due to a combination of corrosion and physical strain on the riveted joints as the

structure settles. Ongoing change is inevitable. The preservation objective for marine historic assets and

the area recognises that the best that can reasonably be achieved is to minimise loss due to man-made

interventions so that the marine historic assets survive as long as is reasonably possible.

Management This section set outs how the proposed Scapa Flow Historic MPA will be managed, and explains what the implications of designation will be for developments/activities within the MPA and nearby. Responsibilities of public authorities Designation of the Scapa Flow Historic MPA will place a duty on public authorities with functions capable of adversely affecting marine historic assets to carry out those functions in a way that best furthers or, where this is not possible, least hinders the stated preservation objectives. This duty will cover public authorities including: Who? Examples of what these duties would cover

Marine Scotland Developing marine plans; issuing marine

licenses; undertaking enforcement

responsibilities.

Orkney Islands Council Development and marine planning; issuing

planning permission and work licenses.

Orkney Marine Services (part of Orkney

Islands Council)

The Statutory Harbour Authority: managing

the harbour area; preparing harbour plans

and issuing monthly dive permits for diving in

Scapa Flow, including within the Historic

MPA.

Crown Estate Scotland Management of the seabed including issuing

seabed leases.

Historic Environment Scotland Advising on the management of the MPA and

commissioning conservation work; a statutory

consultee on planning and marine licensing

applications, but also in relation to any

decisions we take (for example, scheduled

monument consent in the event that the

scheduling of the seven German High Seas

Fleet wrecks remains in place).

Northern Lighthouse Board Maintenance of aids to navigation

SEPA; SNH Various regulatory and advisory

responsibilities for the environment and

natural heritage.

Ministry of Defence Various defence responsibilities;

management of legacy wartime wrecks.

Maritime Coastguard Agency Functions include the Receiver of Wreck.

Public authorities will have to consider and if necessary, implement changes in the way they carry out their functions to deliver benefits for/ minimise adverse effects on the Scapa Flow Historic MPA. Decisions must consider impacts on the preservation objectives for the proposed Scapa Flow Historic MPA and be taken in accordance with marine plans and policies. Where functions or acts may significantly hinder the achievement of the preservation objectives, public authorities must notify Scottish Ministers through Historic Environment Scotland. Historic Environment Scotland has 28 days to respond and public authorities must have regard to advice or guidance given by HES.

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Marine Conservation Orders and fisheries management measures No marine conservation orders/fisheries management measures are envisaged as being necessary at the current time. Non-statutory management Scapa Flow is a highly valued area for many reasons, not just heritage. Effective stewardship of marine historic assets within the proposed Scapa Flow Historic MPA may be best progressed through dialogue, collaboration and partnership between Historic Environment Scotland and the wide range of interested parties with a stake in Scapa Flow. Following designation, Historic Environment Scotland considers that it may be desirable to work together with interested parties in preparing supplementary guidance and/or commencing preparation of a non-statutory management for the Historic MPA. This could articulate the significance of the site and actions that support preservation objectives; provide a framework for long-term conservation and management; and a mechanism for integrating differing views. Operational advice Table 3 sets out best practice for activities in Scapa Flow. By following this advice, public authorities and sea-users will be helping to support the area’s preservation objectives. Historic Environment Scotland’s Casework team will provide detailed operational advice on a case by case basis. Early engagement is encouraged.

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Operations

What does it mean for me? How do I go about it?

Construction/

extraction/

dumping within

the MPA.

Avoid direct impacts to marine historic assets within the MPA.

Minimise risk of changes to assets resulting from activities that alter hydrodynamic processes (e.g erosion of sediments) and/or factors that may increase metal corrosion (e.g by increasing oxygenation levels).

Avoid sand extraction at Churchill Barrier 4 less than 25m from the blockships (see existing planning permission conditions).

Planning permission/Works licensing (Orkney Islands Council)

Marine Licensing (Marine Scotland)

Seabed leases (Crown Estate Scotland)

Construction/

extraction/

dumping/

operation of

installations

outside the MPA

boundary

Existing practices can continue.

Proposals for such activities should consider potential transboundary effects on marine historic assets within the MPA, resulting from activities that alter hydrodynamic processes (e.g erosion of sediments) and/or alter factors that may increase metal corrosion rates (e.g by increasing oxygenation).

Planning permission/Works licensing (Orkney Islands Council)

Marine Licensing (Marine Scotland)

Seabed leases (Crown Estate Scotland)

Marine traffic,

navigation and

other transport

within the MPA

No changes required to surface navigation within the MPA;

Any anchoring and/or laying of moorings should be undertaken clear of wrecks, structures and foul ground to avoid damage to marine historic assets.

No changes required for routine maintenance of the lighthouse at Cava or the Churchill Barriers.

Seek advice on navigation matters from Orkney Marine Services.

Seabed leases for moorings (Crown Estate Scotland).

Contact Historic Environment Scotland to obtain copies of marine archaeological data to assist with avoidance protocols.

Commercial

fisheries

Scallop diving practices can continue.

Fishermen using static fishing gear within the MPA (e.g creels) should take care to avoid snagging on wrecks, structures and foul ground.

Fishermen using demersal fishing gear (e.g nephrops trawling) within the MPA should keep clear of wrecks, structures and foul ground to avoid damaging marine historic assets.

Contact Historic Environment Scotland to obtain copies of marine archaeological data to assist with avoidance protocols.

Sea angling Existing practices can continue N/A

Recreational

diving

Enjoy diving on sites within the MPA to appreciate the history and marine life, but avoid the temptation to take souvenirs. If you want to take something, try photographs, video or measurements. Getting involved in projects and sharing your information is a great way to assist with recording and monitoring the MPA.

If you identify a potentially vulnerable artefact, leave the object where you found it and seek advice from Historic Environment Scotland (HES). Artefacts should not be recovered without permission.

Obtain a dive permit from Orkney Marine Services. They may place access restrictions on some sites (e.g SS Prudentia).

Share information with Historic Environment Scotland (HES) through our My Canmore service (https://canmore.org.uk/mycanmore/).

If you identify a potentially vulnerable artefact or want to undertake scientific/ archaeological work within the MPA, contact HES in the first instance, who will advise you what to do.

Recovery of objects is likely to require a marine licence (through Marine Scotland). It will also require Scheduled Monument Consent (from HES, for works to the 7 scheduled German High Seas Fleet wrecks if the scheduling remains in place).

Scientific/

Archaeological

Investigations.

Non-intrusive scientific/archaeological survey work and sharing of information is encouraged.

If you wish to undertake excavation, sediment sampling, or to recover artefacts, seek advice from Historic Environment Scotland. Projects will be expected to follow archaeological standards of best practice.

Table 3 – Operational advice in relation to the proposed Scapa Flow Historic MPA.

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General offences The designation of the Scapa Flow Historic MPA brings into force, general offences under section 96 of the Marine (Scotland) Act 2010. It becomes a criminal offence to intentionally or recklessly remove, alter or disturb marine historic assets, or carry out activities which could damage or interfere with a marine historic asset or significantly hinder a protected area’s preservation objectives. Exceptions to offences are if the act has been carried out in accordance with a) the duty on public authorities or b) a consent/authorisation from a public authority (e.g marine licensing/planning permission/dive permit from Orkney Marine Services/scheduled monument consent or other written authorisation from Historic Environment Scotland); c) it was necessary for national security, crime prevention/detection, or securing public health. There are also defences if the prohibited act was carried out in emergency and for sea fisheries, where the effect on the marine historic asset could not have reasonably been avoided. Further guidance Historic Environment Scotland’s guidelines on the selection, designation and management of Historic MPAs set out further information on the management process for Historic MPAs (Historic Environment Scotland 2012a). Historic Environment Scotland (2012b) has also produced a guidance booklet about Historic MPAs for visitors, investigators and managers.