Exmoor National Park Authority
Submission of the Committee of Inquiry into
The Impact of Hunting with Dogs in England and Wales
February 2000
To jump straight to a particular question/section click on the question/section number
| Introduction | ||
| Responses to Inquiry Questions | Facts about Hunting with Dogs | Question 1 |
| Rural Economy | Question 2 | |
| Question 3 | ||
| Question 4 | ||
| Agriculture and Pest Control | Question 5 | |
| Question 6 | ||
| Question 7 | ||
| Question 8 | ||
| Social and Cultural Life of the Countryside | Question 9 | |
| Question 10 | ||
| Management and Conservation of Wildlife | Question 11 | |
| Question 12 | ||
| Animal Welfare | Question 13 | |
| Question 14 | ||
| Implementing a Ban | Question 15 | |
| Question 16 | ||
| Question 17 |
Part One - Introduction
1.1 Exmoor National Park is one of ten National Parks in England and Wales established under the provisions of the National Parks and Access to the Countryside Act 1949. The statutory purposes of the National Park are set out in the Environment Act 1995:
1.2 The Environment Act 1995 also requires that, in pursuit of National Park purposes, the National Park Authority should also "seek to foster the economic and social wellbeing of the local community, but without incurring significant expenditure in doing so, and shall for those purposes co-operate with local authorities and public bodies whose functions include the promotion of economic or social development within the area of the National Park".
1.3 In common with the other National Parks in England and Wales, Exmoor is administered by a National Park Authority. The Authority has 26 members 19 of whom are local elected members nominated by local parish, district and county councils, and seven are appointed by the Secretary of State because of their special skills and knowledge to represent the national interest. Ten of the current National Park Authority members are farmers or directly involved in agriculture, seven are retired and the remainder are involved in a variety of businesses and other organisations. A number of the Authority members are actively involved in hunting.
1.4 This submission limits itself to those areas of the debate on hunting with hounds that relate to the purposes and duties of the National Park Authority and, in particular, it emphasises the potential impact of a ban on stag hunting in view of its importance on Exmoor. The report sets out a short description of Exmoor and of hunting activity within the Exmoor National Park area, followed by specific responses to the questions set out in the letter seeking evidence as published by the Committee of Inquiry.
1.5 The National Park Authority has not taken a view on the moral and ethical issues surrounding hunting with hounds as this is for Parliament to decide and cannot be taken into account by a local authority. Full consideration has been given to the potential impact of a ban on hunting with hounds on Exmoor and the Authority urges Government to ensure that, if legislation is to be introduced to ban hunting with hounds:
Exmoor National Park area
Environment
1.6 The Exmoor National Park covers 693 square kilometres with approximately two thirds in West Somerset and one third North Devon. The National Park is wholly rural with a resident population of approximately 10,600 and only three settlements of more than 1,300 people. The main land uses are as farmland (56%); moorland (also grazed) (27.5%) and woodland (12%). The National Trust is the largest landowner in the Park (10.3%), followed by the Exmoor National Park Authority (7%). However, the majority of the Park area is privately owned.
1.7 The National Park is of high landscape and wildlife conservation value. The whole National Park is designated as an Environmentally Sensitive Area (ESA) and approximately 27% of the National Park area has been notified as being of Special Scientific Interest (SSSIs). Certain areas are also recognised by European conservation designations.
1.8 Any description of Exmoor must mention the importance of red deer and the National Park Authority’s logo carries the head and antlers of the red deer stag. When Exmoor was designated a National Park in 1954, its red deer herds were undoubtedly a significant factor in the decision to designate. In its description of Exmoor as a potential National Park, the Report of the National Park Committee in 1947 stated "The area is notable for its wildlife; red deer have roamed on Exmoor from time immemorial, and it is the setting for John Fortescue’s delightful ‘Story of a Red Deer’". (Report of the National Park Committee (England and Wales) July 1947 HMSO Cmd 7121).
1.9 The Exmoor area has by far the largest herds of red deer in England, with Exmoor hinds and stags generally regarded as being among the largest and finest examples of their species in the country with Exmoor deer hinds being some 20% heavier than most Scottish ‘open hill’ herds (Langbein,1997).
Economy
1.10 The principal economic activities on Exmoor are agriculture and tourism. The 1991 census indicated approximately 19% of the economically active population (16 to 65 year olds not engaged in full-time education) were engaged in agriculture, with 32% in distribution and catering, and 31% in other services. The percentage of persons employed in agriculture has declined from 24.2% in 1971 and is likely to now be significantly reduced still further by recent declines in agricultural incomes. The total agricultural labour force in 1997 was 1883. Of these 589 were full time farmers, 348 regular full time labourers and 279 seasonal and casual labourers. A survey in 1988 estimated 2,641 jobs in the tourist industry, many of which were part time and seasonal.
1.11 Dependence on agriculture, tourism and service industries results in a general pattern of lower than average household incomes and a high proportion of local people in part time and seasonal employment. Seasonality of employment inevitably leads to higher unemployment in the winter months.
1.12 The general fragile state of the Exmoor economy has been recognised by the inclusion of the rural parishes of Exmoor within the area designated for Objective 2 European Structural Funding from year 2000 onwards.
Hunting with hounds within the Exmoor National Park area
1.13 The Exmoor area is the only remaining area of the United Kingdom where red deer are hunted on horseback with packs of hounds. Three stag hunts meet regularly on Exmoor and nearby areas in pursuit of red deer and eight other packs meet in the Exmoor area to pursue fox or hare:
Minkhounds also hunt in the area from time to time.
Research studies
1.14 The past ten years have seen a number of research studies into the red deer population on Exmoor and surrounding areas and the economic, social and environmental importance of hunting of deer with hounds. Though not the lead body in commissioning these studies, the Exmoor National Park Authority played an active role in forming and supporting the studies and responding to the research findings. The key studies that form the background to this evidence to the Committee of Inquiry include:
Savage (1993) The Conservation and Management of Red Deer in the West Country. The National Trust.
A report to the National Trust of its Deer Hunting Working Party.
Winter et al. (1993) Economic and Social aspects of Deer Hunting on Exmoor and the Quantocks. Occasional Paper No. 20, Centre for Rural Studies, Royal Agricultural College, Cirencester.
A report prepared for the National Trust on the economic and social importance of stag hunting.
Langbein (1997) The Ranging Behaviour, Habitat use and Impact of Deer in Oak woods and Heather moors of Exmoor and the Quantock Hills. University of Southampton.
A report commissioned by The British Deer Society, The National Trust, Exmoor National Park Authority, League Against Cruel Sports, Royal Society for the Prevention of Cruelty to Animals, British Field Sports Society, Ministry of Agriculture Fisheries and Food, English Nature, Somerset County Council, Countryside Commission and International Fund for Animal Welfare. The research took place over a four year period and provides an important scientific basis for the management of red deer on Exmoor and the Quantocks.
Manley et al. (1999) Economic, Social and Environmental Aspects of Hunting with Hounds in West Somerset and Exmoor. Centre for Rural Studies, Royal Agricultural College, Cirencester.
A report commissioned by the Rural Economy Working Group of West Somerset District Council with support from surrounding district councils, Exmoor National Park Authority, Somerset County Council, the Exmoor Society, and a number of town and parish councils.
The research looked into the economic and social impacts of all forms of hunting with hounds in the Exmoor and Somerset area. The National Park Authority recognises the limitations of the study and accepts that it is not an in depth scientific study. However, the report provides an accurate portrayal of the views of people actively involved in hunting with hounds on Exmoor and surrounding areas of West Somerset and the report’s conclusions are fully reported within this evidence.
Part Two - Responses to inquiry questions
The following section addresses the specific questions set out in the inquiry letter seeking written evidence.
Facts about hunting with dogs
Q.1 -What factual information do you have about hunting with dogs, including the organisation of hunting activities and the way those activities are carried out?
1.1 The National Park Authority has no specific evidence in response to this question, however, an account is provided in Manley et al. (1999).
Rural economy
Q.2 - What evidence is there as to the importance or otherwise of hunting with dogs to the rural economy in general and/or to particular areas of England and Wales.
2.1 The report of Winter et al (1993) into deer hunting on Exmoor and the Quantocks identified 12 people directly employed by the hunts, 95 grooms caring for the hunting horses and a minimum of 40 jobs in trades closely associated with stag hunting - a total of 147 jobs directly associated with stag hunting.
2.2 Using a ‘minimum requirements multiplier’ of 1.88 the study went on to estimate that 129 jobs will be indirectly associated with the 147 jobs directly associated with stag hunting. This study therefore indicated approximately 276 jobs associated with stag hunting in 1993, approximately 1.1% of the economically active population in the study area of North Devon and West Somerset.
2.3 Although only a small percentage of employment in the whole study area, the report authors go on to state "we are fully aware that locally the economic impact may be far greater than these figures imply. Thus the smaller villages at the heart of the [stag] hunting country are clearly reliant on [stag] hunting to a much greater degree than those on the fringes".
2.4 A follow up study commissioned in 1998 by West Somerset District Council and others, identified 197 full time equivalent (fte) jobs directly employed and 217 fte indirectly employed in all forms of hunting with hounds in West Somerset and Exmoor (Manley et al., 1999). The following extract is taken directly from the summary of this report:
"(i) Direct expenditure and employment
Estimated total expenditure on hunting £5.5 million
Average hunting expenditure/respondent £3,800
Direct employment by the Hunt kennels 28 FTEs*
Employment of grooms 95 FTEs
Employment in local firms from hunting 74 FTEs
Estimate total direct employment 197 FTEs
(*FTE = Full Time Equivalent)
(ii) Indirect employment
Within the limitations detailed in the main report, a multiplier of 2.1 is used to estimate second round indirect employment associated with the total direct employment generated by hunting. (197 x 2.1 - 197 = 217)
Estimated second round employment 217 FTEs
(iii) Total hunting employment
Combining the estimated direct and indirect employment figures of 197 and 217 respectively gives the total employment figure associated with hunting in the study area.
Total direct and indirect employment 414 FTEs
(iv) Hunting and general employment
Direct employment attributable to hunting is broadly equivalent to two per cent of employment in West Somerset. Total employment (direct and indirect) attributable to hunting is broadly equivalent to four per cent of employment in West Somerset.
(v) Part-time employment
A high proportion of employment is of a part-time nature. Therefore a higher number of individuals are affected than would be suggested by simple representation by Full Time Equivalents.
(vi) Hunt staff and housing
Staff of all the hunts in the study area at present occupy 22 tied houses and one caravan.
(vii) Exford and Stogursey case studies
Exford supports an estimated minimum of 38 FTEs plus private grooms’ jobs. Thirty nine percent of businesses indicated that hunting was of great importance to their business activities and it was estimated that around a third or more of all local business turnover was accounted for by hunting.
Stogursey supports an estimated seven FTEs directly attributable to hunting. Fourteen per cent of businesses considered hunting to be important to them and approximately 20% of businesses considered they would suffer financially if turnover derived from hunting were not replaced.
Those most vulnerable to potential job losses in the event of a ban are likely to be unskilled workers and the manual self-employed.
(viii) Property markets
Estate agents handling Exmoor properties generally felt that any ban on hunting would have a negative effect on property prices. Although shooting is now an important factor influencing property prices, it is not thought that this would particularly cushion the downturn in prices expected in the event of a ban.
(ix) Fallen stock service
Fallen stock (casualty animals) is collected by all hunts from farms generally within their hunted country. A very high proportion of farmers used the service of their local hunt estimating that the hunt has saved them, on average, £212.50 annually per farm/year.
(x) Call out service
All foxhound hunts operated, or were willing to undertake, an emergency call out service*, mainly during lambing season. Both [All three] staghound hunts operated an emergency service to deal with casualty deer. Other organisations and landowners also operate casualty services."
Manley et al (1999)
* N.B. The call out service is offered by foxhound hunts and uses a small number of hounds and hunt staff on foot to track and remove individual foxes causing losses to stock, mainly lambs.
2.5 The study by Manley et al. (1999) also confirmed that a ban on hunting would have a significant impact on the economy of the parishes at the centre of Exmoor. For example, the study estimated that a ban on hunting would put 30 FTEs in local business, 8 jobs at kennels plus private grooms jobs at risk in Exford, a parish with a total adult population of around 300.
2.6 The service provided by the hunts in removing fallen stock is regarded as an important one by many farmers on Exmoor and this function would need to be replaced through another mechanism in the event of a ban on hunting.
Q.3 - What evidence is there about the likely impact on the rural economy if hunting with dogs was banned completely?
3.1 The general fragile state of the Exmoor economy, the relatively low average wage rates, the reliance on part-time and seasonal employment, and the out-migration of young people, has been recognised in the designation of the majority of Exmoor parishes as being eligible for European Objective 2 funding. The National Park Authority believes that this fragile position would serve to increase the impact of any adverse local economic changes and mean that even relatively small adverse changes would take a long time to reverse.
3.2 There has been no overall study into the indirect economic impacts of hunting on income to Exmoor from tourism and the National Park Authority would welcome such an initiative. However, hunting is widely believed to form an important addition to the income to the local tourism industry. Moreover, visits to Exmoor for field sports, including hunting with hounds, have the effect of extending the tourism season into the so-called ‘shoulder months’ either side of the summer visitor peak.
3.3 Set against this, from time to time the Exmoor National Park Authority receives a small number of letters and complaints from visitors who have been distressed by contact with hunting activities and would be less likely to revisit the area as a result. An important quality in the designation of National Parks is their potential to provide opportunities for ‘quiet enjoyment’ of the countryside. While the hunts take place they do have an adverse impact on the tranquility of the countryside but few hunts occur during the summer months when the majority of visitors come to Exmoor.
3.4 The report by Manley et al. (1999) concludes that a ban on hunting with hounds would have the following implications for the economy of West Somerset and Exmoor:
"(i) Conclusions
Of the 414 FTE jobs in the study area currently attributable to hunting, not all would go. The exact and local employment position, subsequent to any ban, would depend on how and where hunting people chose to spend their money. It is difficult to gauge the extent to which hunting people would turn to alternative activities in the event of a ban, but the survey results supported the contention that neither draghunting nor other equestrian activities were likely to be a substitute for hunting, particularly in the case of older people. Gunpacks were considered likely to evolve but any role within local employment would be liable to be very limited.
Manley et al. (1999)
Q.4 - To what extent could any detrimental consequences of a ban be offset by greater participation in drag or bloodhound hunting or other activities or by other measures?
4.1 The research by Manley et al. (1999) concentrated on the views of people within the West Somerset and Exmoor areas actively involved in hunting with hounds and concluded that:
"(x) Hunting alternatives - draghunting
A very large majority of respondents had never experienced draghunting. Of those that had experienced draghunting, the majority had been only very rarely and had found it less or much less enjoyable than hunting.
In the event of a ban, only a small number indicated that they would go draghunting and most of these had no previous experience of this sport. As already cited, the majority of those that had experienced draghunting had thought it less or much less enjoyable. This raises significant questions as to the likely sustainability of the sport to these potential new participants.
A large majority of farmers within the surveys gave an effective or resounding no to permitting draghunting on their land. In the event of a ban, the proportion of farmers expecting to refuse access decreased only slightly. An additional smaller number did raise the issue of access for draghunts permitted by a direct payment.
(xi) Hunting alternatives - gunpacks*
A significant number of farmers would be likely to allow a degree of access for a gunpack. A number of current hunt respondents expressed an expectation that they would hunt with a gun pack in the event of a ban. The evidence suggests the development of a likely outcome; that gunpacks could and probably would develop or be formed."
Manley et al. (1999)
*NB Gunpacks hunt on foot and use a small pack of hounds to flush out foxes from cover so that they can be shot. Gunpacks are illegal for deer.
4.2 Another potential means to replace some of the income lost from a ban on hunting with hounds could be commercial stalking for trophies and/or for venison.
4.3 The Exmoor National Park Authority believes that an increase in commercial stalking could lead to significant danger of overexploitation of the local red deer herd, particularly the larger ’trophy’ stags. Whilst management of deer through stalking operates on the large upland estates of Scotland, we believe that it would not transfer readily to the situation on Exmoor. Landholdings on Exmoor are relatively small and red deer roam freely across ownership boundaries. This means that individual deer are not ‘owned’ by any one individual and voluntary restraints on stalking of the best trophies are unlikely to be easily negotiated or sustainable into the long term.
4.4 Stalking for venison is also unlikely to produce a significant increase in local income to replace that from hunting without considerable effort to increase the markets for wild venison. Currently, wild venison fails to match the prices received for farmed deer, principally because of problems of traceability and quality assurance of wild deer.
Agriculture and pest control
Q.5 - What evidence is there about the need to control the population of foxes, deer, hares and mink?
Red deer
5.1 The red deer herds on Exmoor are truly wild. Originally a woodland animal, they now roam freely across moorland, through woodland and farmland. They graze where food is to be found, whether it be moorland heather, young tree shoots or farmers’ turnips, barley or emerging silage crop. Since the extinction of the wolf, the only natural enemy of red deer is man. For centuries, man has adopted management practices to ensure an acceptable level of red deer.
5.2 On Exmoor, these management practices have traditionally been a mixture of culling by shooting and by hunting with hounds, with the former exceeding the latter in terms of numbers killed. Hunting with hounds is also used to manage the distribution of deer and move local populations away from areas where they are causing unacceptable damage. This forced movement of deer is also thought to help maintain a high quality red deer herd by discouraging inbreeding.
5.3 The red deer count carried out by the Exmoor Deer Management Society in 1999 counted 2,399 deer and overall red deer population of Exmoor is currently estimated as being a minimum of 3,000 animals.
5.4 This number represents a grazing impact roughly equivalent to 900 livestock units. This is small compared to approximately 75,000 livestock units arising from domestic animals farmed across Exmoor (approximately 42,900 cattle and 214,000 sheep). However, deer damage can still be severe at the local level and Langbein (1997) noted an almost complete cessation of natural regeneration in those broadleaved woodlands most heavily frequented by deer. Forestry Commission guidance recommends a maximum of just over two deer per 100 Hectares of woodland and Langbein (1997) states that significant regeneration is unlikely once deer numbers exceed five per 100 Hectares. Deer densities in Exmoor broadleaved woodlands frequently exceed these figures.
5.5Crop damage by deer can also be significant and damage to hedgerows and boundaries is clearly evident in many places. Conversely the impact of deer on moorland vegetation is less severe (Langbein, 1997).
5.6 Red deer populations on Exmoor are high compared to other parts of England and Wales, and it is acknowledged that there is increased tolerance of deer damage to crops, woodlands and boundaries amongst Exmoor farmers and landowners as a result of interest in hunting of deer with hounds. As mentioned earlier, use of hounds can be an effective way of moving deer away from areas where they are causing localised damage.
Foxes
5.6 No recent estimates of the fox population are known to the National Park Authority Equally, the Authority has no specific information on the impact of these species on agriculture on Exmoor although foxes do cause substantial losses to lambs and poultry.
Hare
5.7 Hare numbers on Exmoor are low and this animal is unlikely to be a significant pest species. Indeed, rather than there being a need for population control, the brown hare is identified as a target species for conservation in the UK Biodiversity Action Plan and the National Park Authority is a signatory to the Action Plan.
5.8 The need to increase the population of hares on Exmoor has been recognised by the local hunts who are seeking to build up a larger hare population by introducing hares from northern England and not hunting them for four to five seasons.
Q.6 - What evidence is there about the advantages and disadvantages of hunting with dogs in terms of agriculture and pest control, compared with other possible forms of control?
Red deer
6.1 The main alternative method to hunting with hounds for the management of deer numbers is through shooting with rifles. There is concern that total reliance on shooting to control deer numbers on Exmoor will lead to higher levels of shooting than currently because of a reduction in the tolerance of deer damage. The National Park Authority believes that a reduction in tolerance of deer and an increase in shooting is likely to have the following consequences:
Fox, hare, mink
6.2 The National Park Authority has no specific information on the advantages and disadvantages of hunting with dogs on fox, hare or mink on Exmoor.
Q.7 - What evidence is there about the consequences for agriculture and pest control if hunting with dogs was banned completely?
7.1 The National Park Authority has no specific information on the consequences for agriculture and pest control if hunting with dogs was banned completely.
Q.8 - What other measures, if any, would need to be taken to protect agricultural interests and to control foxes, deer, mink and hares.
8.1 The National Park Authority has no specific views on the need to undertake other measures to control foxes, deer, mink and hares.
Social and cultural life of the countryside
Q9 - In what ways, and to what extent, does the existence of hunting with dogs contribute to or impair the social and cultural life of the countryside?
9.1 No survey has been undertaken into the level of participation in hunting within the overall Exmoor community. However, the study by Manley et al. (1999) provides an indication of the high level of interest in hunting with hounds on Exmoor and West Somerset based on surveys of people on the hunt mailing lists:
"(i) Conclusions [continued]
The recognised hunts in the study area had mailing lists totally approximately 2,000 addresses which, after allowance for overlap, translated into around 1,300 households and 3,000 individuals, the majority of whom lived in the study area. Amongst this group, levels of participation in hunting and other activities organised by the hunts were very high. In total, they went out hunting an estimated 67,000 times last year and spent £5.5m. A considerable number are retired people who hunt on foot or farmers who hunt as a form of recreation which dovetails with their working lives. We conclude that hunting plays a major role in the lives of those who are involved and, in the event of a ban would experience a deep sense of loss.
To the broad question, are the people living and working in the study area going to notice if hunting with hounds were banned? The answer is not clear-cut. What is indisputable is that the after effects of a ban would be uneven in their impact. In the less remote parts of the study area and in the lives of those for whom hunting plays no part, a ban might barely be noted. In the small, rural communities where hunting plays a disproportionately larger role in providing employment and recreation, a ban would pose a severe challenge."
Manley et al. (1999)
9.2 Any visitor to Exmoor soon realises that hunting of red deer and fox hunting, as with other country sports on Exmoor, such as game shooting and fishing, are traditional pursuits enjoyed by a large number of local people and visitors. The National Park Authority believes that these activities form an important and significant focus in the social life of Exmoor’s rural communities, particularly in the settlements of central Exmoor around the former ‘Exmoor Forest’.
9.3 The importance of hunting to these Exmoor communities has been ably summarised in a letter to the Park Authority by local author Hope L. Bourne:
"Few people who live outside Exmoor can have any idea of what hunting means to Exmoor. It is a whole way of life. It is a tradition, sport, employment, and community all in one. It brings together people of all walks of life, promotes the economy, creates healthy entertainment and contributes to the management of wildlife.
Not only do the various Hunts preside over the Point-to-Point races, Exford Horse Show, the Pony Clubs and numerous gymkanas and horse trials, but the Hunt Supporters Club organise whist-drives, dances, breakfasts, suppers, sales, quizzes, duck-races, barbecues -and even coffee mornings!"
9.4 Not all local people are active participants in these activities and some people feel excluded because of their views on hunting. However, the social importance of hunting on Exmoor is significant and it is difficult to predict the degree to which the social activities surrounding the hunts will continue after any ban on hunting, or the degree to which new social ties will take their place. Although it is clear that these activities do take place in other rural communities in England where hunting does not have the same focus for local social life.
9.5 Others have likened the social impact of a ban on hunting on Exmoor to the impact a ban on football would have on communities in Liverpool, Manchester or Newcastle. Whilst some would be pleased, others would have a profound sense of loss and the overall impact would be impossible to fully measure.
Q.10 - What evidence is there as to its importance generally or in particular areas?
10.1 Based on their survey of hunting participants, Manley et al. (1999) make the following conclusions on the social aspects of hunting in West Somerset and Exmoor based on a survey of people on hunt mailing lists:
"(i) Average hunt involvement/household
Respondent households were involved on average with 2.1 different hunts and subscribed to or were members of an average of 1.5 hunts.
(ii) Hunting/household
There is little difference in the amount of hunting done between the foxhunt and staghunt households. The beaglers, however, demonstrate a high level of hunting activity at almost 36 days per person per year compared with around 20 days for the other groups. Between them, the total population on the hunt mailing lists were estimated to have been hunting approximately 67,000 times last year.
(iii) Importance of hunting to social activities
Almost 75% of respondents considered the hunt to be ‘extremely’ or ‘very’ important to their social activities. The levels of participation and expenditure are very consistent between the hunting groups although the foxhunt respondents have slightly higher levels of activity even than the staghunters. The high levels of activity amongst staghunters had been highlighted in the previous study as demonstrating the involvement and cohesiveness of the staghunting communities on Exmoor and the Quantocks, a community which, as argued, was based on shared activities as well as shared values. Evidence suggests that the foxhunting and beagling communities demonstrate these same distinctive characteristics as the staghunters.
(iv) Household spending as a proportion of recreation budget
The proportion of the households’ recreation and leisure budget which is spend on hunting and horses is very consistent amongst all hunt followers at around 68%. This figure might suggest and substantiate the claims of many hunting people that hunting is the focus of their lives."
Manley et al. (1999)
Management and conservation of wildlife
Q.11 - What evidence is there about the present effect of hunting with dogs on preserving or damaging habitats and on the management and conservation of wildlife, including the quarry species?
11.1 Manley et al. (1999) found that:
"(i) Land owned/managed by hunts
No hunts within the study area owned or managed any significant areas of agricultural land or woodland. Direct involvement in any conservation type work is evidently minimal. Several hunts did undertake ride clearance on both private land and Public Rights of Way.
(ii) Hunting and conservation
Hunting was generally not influential in farmer conservation activities.
(iii) Impact on red deer
Evidence suggests that there is a form of ‘self-regulation’ by landowners of red deer numbers, particularly in the core deerhunting areas. A summation of feelings would suggest that a ban on deerhunting will have an effect upon the current status of the red deer populations, with numbers declining. They would likely continue to roam over existing ranges but would become more cautious and likely to spend more time in cover and would therefore be seen less. An assessment of the potential impacts on elements of the tourist industry are highlighted but not quantified.
(iv) Fox control
The extent of damage to commercial farming interests attributed to foxes varied between the parishes surveyed. In both, fox control was essentially left to the local hunt to keep populations at a perceived ‘managed’ level. Earthstopping and digging out are both commonly undertaken.
(v) Digging out
Digging out is seen as an essential element of fox control. One hunt cited 75% decrease in kills if digging out was discontinued. The inability to dig out for whatever reason would be therefore likely to have a detrimental impact on farmer and hunt relationship."
Manley et al. (1999)
11.2 Although the hunts are not directly involved in habitat management on Exmoor, hunting interests provide a positive land management role through the Badgworthy Land Company which owns 2,794 ha of land on Exmoor together with the hunting rights over a much wider area. The Land Company is actively involved in work to achieve better conservation management of its land holdings. For example, the Company has entered into management agreements with English Nature for several commons it owns which are SSSI and pSAC status and has recently prepared management plans for its woodland estates in conjunction with the National Park Authority. All the land that the company owns outside the commons are entered into the Environmentally Sensitive Area (ESA) scheme for conservation management, and the Company has supported a number of initiatives with the National Park Authority including conservation of dormice in its woodlands.
Damage to habitats
11.3 Some areas of moorland have been damaged by vehicle followers leaving the road for views of the hunt (Brendon Common, Haddon Hill and West Anstey). However, after discussions with hunt staff, marshalls have endeavoured to keep vehicles to agreed areas. There is probably some damage to moorland from horses (e.g., West Anstey), though this is less of a problem than the impact of more frequent use of commons areas and bridleways by trekking groups.
11.4 Horse followers do cause damage to public footpaths and bridleways from time to time and the National Park Authority has had to undertake repair works as a result. Up to now, the hunts have not made a financial contribution towards this repair work and this is one area where the National Park Authority would like to work more closely with the hunts.
Management of wildlife
11.5 Stag hunts work closely with the Exmoor and District Deer Management Society to co-ordinate management of the deer and undertake an annual count of deer numbers. Most of the counters carrying out the annual count are hunt followers/supporters. The hunt responds to problems raised with the DMS by organising hunts on areas where damage is occuring which effectively disperses the deer.
11.6 The annual counts suggest that deer populations on Exmoor are stable so the informal influence of the DMS and the hunts are effective in retaining a stable population of deer.
11.7 The NPA has no evidence for the influence of the hunts on the management of foxes and mink. However, as stated earlier, the brown hare is a priority species for the UK Biodiversity Action Plan and hunting with hounds does reduce hare numbers, but not to the point of extinction.
Q.12 - What would be the impact on these matters of a ban?
Red Deer Management
12.1 The National Park Plan sets out the National Park Authority’s strategic objectives and policies for managing the National Park, to guide both the National Park Authority itself in carrying out its functions and all other bodies and individuals who will influence the future or Exmoor. The Plan is currently under review but as far as deer are concerned the existing Plan says:
‘Exmoor also supports large populations of red, roe and fallow deer. There is widespread agreement that existing information on deer herds needs to be brought together and supplemented with new information, to form the basis for a Park-wide deer management policy. Whilst considering the requirements of all species, this policy must concentrate upon the perpetuation of viable populations of red deer.’
12.2 Policy 6/9 of the National Park Management Plan states: The National Park Authority will initiate and support research studies into the size, structure, distribution and health of deer herds to be used as the basis for a future deer management policy.
12.3 In pursuit of the National Park Plan policy the National Park Authority has actively supported deer research over the past few years. This has included, for example, working with the Exmoor and District Deer Management Society in its annual deer census and contributing to the work of the National Trust’s Deer Hunting Working Party. The Working Party’s Report (the Savage Report) recommended inter alia the need for further research on deer movements and deer damage to agriculture, forestry and conservation interests. Dr Jochen Langbein of Southampton University was subsequently commissioned to do this work with funding provided by the National Park Authority and others. The final report of this research project was received in October 1997.
12.4 A further recommendation of the Savage report was that the National Trust should encourage the formation of a Deer Forum for Exmoor. The Exmoor Deer Forum has since been established with the National Park Authority providing the secretariat. The Deer Forum exists to provide an opportunity for representatives of organisations (21 in all, including the National Park Authority), concerned with wild red deer on Exmoor to meet and exchange ideas and opinions.
12.5 There is general consensus about the need for deer management, which involves more than culling. The above evidence recognises how hunting with hounds forms a part of the present deer management arrangements on Exmoor. The National Park Authority is concerned that an end to hunting with hounds could mean that some farmers/landowners will no longer be prepared to tolerate the level of deer damage they currently do. There could be pressure to reduce the size of the herd or radically reduce it in certain areas. Without new effective management frameworks in place there could also be an increase in indiscriminate, uncoordinated shooting with, in short, an end to the present red deer management regime as we know it and the risk of serious consequences for the future number, quality and distribution of Exmoor’s red deer herds.
12.6 Some weight is given to this view by historical evidence from the past two hundred years indicating significant declines in the number of red deer on Exmoor during periods when stag hunting was not being practiced (E.g. C.P. Collyns, 1902, Chase of the Red Deer). The Porchester Inquiry into land management on Exmoor published in 1977 also concludes that "stag hunting on Exmoor operates as a force for conservation".
12.7 While we know of no research evidence to support this view, many people believe that a significant increase in deer shooting will drive the deer to cover. Any such effect could lead to increased damage to woodland regeneration and increased pressure for further population reduction, and significantly reduce the opportunities for the general public to enjoy sightings of wild deer on open moorland and in fields. This is undoubtedly an important and valued quality of a day on Exmoor, indeed a unique experience for many visitors to this national park. There is hardly a tourism enterprise in and around Exmoor that does not evoke this ‘special quality’ of Exmoor.
12.8 Whether hunting with hounds should be banned is clearly a sensitive national issue, the morals and ethics of which are not the concerns of the Exmoor National Park Authority. However, given that a ban of hunting with hounds could represent a significant change in current deer management arrangements, there is concern that such a ban could have serious implications for:
12.9 Therefore, there are direct implications for National Park purposes and the National Park Authority believes that it is essential that these purposes are not put at risk.
Animal welfare
Q.13 - What evidence is there at present about the effect of hunting with dogs on the welfare of the quarry species or on the welfare of other animals, including those used in hunting activities and domestic pets and farm animals which may be affected accidentally?
Q.14 - What evidence is there about the impact on the welfare of animals of other means of control which might be used if hunting with dogs was banned?
13/14 The National Park Authority has no specific evidence to present to the inquiry on the animal welfare implications of hunting with hounds.
Implementing a ban
Q.15 - What form(s) might a ban take and what would be the implications?
15.1 The National Park Authority has no specific evidence to present to the inquiry on the form that any hunting ban might take.
Q.16 - How might such a ban be applied and enforced?
16.1 The National Park Authority has no specific evidence to present to the inquiry on the means by which any hunting ban might be applied or enforced. However, the Exmoor National Park Authority would not wish to have any role in enforcing a ban on hunting with hounds.
Q.17 - Would a ban need to be supported by any other action?
17.1 The National Park Authority is concerned that a ban on the hunting of deer with hounds would represent a very significant change in the management of the wild deer herd on Exmoor which, as the earlier sections of this evidence explain, might adversely affect the future sustainability of the herd, and by extension a much valued aspect of Exmoor’s cultural heritage. It would also have a serious impact on the social and economic well-being of its rural communities. In this way, it could put the National Park Authority’s own statutory purposes and duties at risk.
17.2 Furthermore, the Exmoor National Park Authority believes that the most profound changes to the landscape and environment of Exmoor have occurred as a consequence of major changes in public policy, for example, public grants for moorland ploughing and afforestation. A ban on hunting will almost certainly trigger changes in the pattern of land ownership and management objectives with unpredictable consequences for the Exmoor landscape.
17.3 Exmoor National Park Authority believes that, prior to any ban on hunting with hounds, full account should be taken of the implications for Exmoor’s wild red deer herds and Exmoor’s cultural heritage, as well as people’s enjoyment of both these special qualities.
17.4 The National Park Authority would wish to avoid legislation that gives greater protection to deer but does not allow for effective population management and could therefore lead to greater numbers of pest species. No agreed alternative model to the current management regime yet exists for an appropriate mechanism for deer management that will maintain the current numbers, quality and visibility of wild red deer on Exmoor.
17.5 The Exmoor Deer Forum has sought to address this issue but it is a difficult one to discuss given the level of local commitment to current arrangements involving hunting. The National Park Authority believes that red deer control methods currently used in Scotland would not transfer to the different circumstances of Exmoor, and the Deer Initiative has so far not addressed the issue of deer management on Exmoor.
17.6 Specific measures and resources would be needed to ameliorate the economic and social impacts of any hunting ban on local communities, and to replace hunt services to farmers and landowners including pest control, fallen stock service, casualty service etc.
17.7 In conclusion, Exmoor National Park Authority urges Government to ensure that, if legislation is introduced to ban hunting with hounds:
Exmoor National Park Authority
February 2000
Date uploaded to site 14 March 2000