Post on 05-Jun-2020
ReimaginingtheLevels,
MakingtheConnections
AProspectusforRevitalisingandSafeguarding
theLandscapesandCommunitiesinthe
CatchmentoftheSomersetLevelsandMoors
October2016
i
ReimaginingtheLevels–MakingtheConnections
AProspectusforRevitalisingandSafeguardingtheLandscapesand
CommunitiesintheCatchmentoftheSomersetLevelsandMoors
Contents
Introduction.............................................................................................................................1
ReportStructure.......................................................................................................................2
TheLevelsandMoorsCatchment.............................................................................................2
ThePressuresforChange-TimeforNewThinking....................................................................4Socialchange:Publicengagementandparticipationinpolicy....................................................4Physicalchange:TheClimate......................................................................................................5Politicalchange:Brexit................................................................................................................7Economicchange:Thefoodsupplychain...................................................................................8Lower-levelpressingissues.........................................................................................................9
OurVisionfortheFutureandtheObjectivesneededtoachieveit..........................................10OurObjectivesforaReimaginedLevelsCatchment.................................................................12ConnectingPeople–Improvingunderstandingandaccountability..........................................12ConnectingtheLandscape–Enhancingnaturalsystems,productivityandbeauty..................12ConnectingtheEconomy–Developingsupplychainsforlivelihoods,healthandwellbeing....13Ourspatialvisionforlanduseandmanagement......................................................................13
OurRecommendationsforAction...........................................................................................15A.TheSomersetRiversAuthority.............................................................................................15B.Supportforfarming,foodandtheenvironmentpost-Brexit...............................................17C.Communityrepresentationonissuesaffectingtheenvironment,landandwater.............18
SourcesandInspirations.........................................................................................................20
Coverphotograph:LookingsouthfromthePoldenHillsacrossKing’sSedgemoortowardstheFiveheadRidge
Reportpreparedbythe‘ReimaginingtheLevels’group,withfinancialsupportfromthe
WessexReinvestmentTrust.Research,facilitationandreportdraftingbyRuralFocus
www.rural-focus.co.uk.Forprojectreportsandupdatessee:www.reimaginingthelevels.org
Forfurtherinformation,contact:RobinMewes(robin@communitypowerltd.co.uk)
Versioncontrol:Finalversionofthemainprojectreport,completed18thOctober2016
ReimaginingtheLevels–MakingtheConnections
1
Introduction
This report has been prepared by a group of peoplewho live on the Somerset Levels andwho are
active in a range of community-based organisations. Between us we have a broad range of
professionalexperienceoftheissuesfacingtheareaandastrongpersonalinterestinitsfuture.
Our initialmotivation for this reportwas
the growing threats that face the Levels
andMoors from future river andmarine
flooding.Thewinterfloodingof2013/14
ledtorenewedactivityandaprogramme
ofworksuchasSomerset’s20-YearFlood
Action Plan and the laudable Hills to
LevelsProject.Butwefeltthatthefocus
of this work was too narrow, too short
term and not sufficiently accountable to
the people who will be affected, and
ultimatelybeexpectedtopayforit.
There is a pressing need for a more joined-up approach that looks at the causes and solutions to
floodingacross theentirecatchment, thatpromotes thesocialandeconomicopportunities thatwill
arisefrombetteradaptedlanduse,andthatseekstoengageallthecommunitiesaffectedbyflooding
inthisfuture.
The Brexit referendum,which took placemid-way through this project,will have dramatic and far-
reaching implications for the Levels and Moors Catchment, not least in how the countryside is
managed.ItistooearlytopredictpreciselyhowBrexitwillchangefoodproduction,farmingsupport,
environmental protection and rural development. However,webelieve that these changesprovide
theidealopportunitytoadvocateanewvisionforrurallanduseanditseconomyinthecatchment.
Responding to these drivers of change,we believe strongly in amore socially, environmentally and
economically sustainable future for thecountrysideandcommunitiesof thecatchment. This report
proposes a future in which the many services or benefits that our landscapes provide to society
(includingtheproductionofnutritiousfood,storageoffloodwater,accesstonature,andmitigationof
climatechange)areproperlyrecognisedandrewarded.Itisafutureinwhichtheeconomicbenefitsof
providingtheseservicesareretainedandsharedequitablywithinthearea.Anditisafuturethatlocal
people feel they have a stake in, helping to determine the priorities for social and economic
developmentandenvironmentalprotection.
Thetitleofthisreport‘ReimaginingtheLevels–MakingtheConnections’emphasisestheneedfor
joined-upthinking.Thereportthereforeseekstomaketheconnectionsbetweenhowwemanage
theupperandmiddlecatchmentsandthefloodingthatoccursinthelowercatchment;betweenthe
food purchasing decisions of local consumers and the livelihoods and productionmethods of our
farmers;andbetweentheorganisationsthatregulateandsupportlandandwatermanagementand
thepeoplewhoareaffectedbytheirdecisions.
Thegroupwhopreparedthisreport
Lefttoright:PaulSander-Jackson,MartinStanley,SteveMewes,PhilStone,AdrianTait,DavidBanwell,SarahSander-JacksonandRobertDeane.RobinMewesisnotpictured.
ReimaginingtheLevels–MakingtheConnections
2
ReportStructure
Thisreport issplit intofoursections. Westartbydescribingtheprojectareaandthenexaminethe
pressuresforchangeandchallengesfacingthearea.Wesetoutourvisionandobjectivesformaking
theconnectionsneededto‘ReimaginetheLevels’andweconcludewithasetofrecommendationsfor
considerationbypublicbodiesandlocalcommunities.ThereportissupportedbyaTechnicalAnnex,
available separately
1
, that providesbackground information anddata analysis. Relevant sectionsof
thisAnnexareindicatedinthisreportbyaboxinthemargin,asshownhere.
TheLevelsandMoorsCatchment
Sinceoneoftheprimaryissuesforthisprojectisthethreatofflooding,itwasanobviousdecisionto
definetheprojectareabytherivercatchmentsthatdrainontotheLevels. Theserivers, theParrett
and itstributariessouthofthePoldenHills,andtheAxeandBrueandtheirtributariestothenorth,
drainanarea2,464km
2
insize.Thewatershedthatbordersthisarearuns,clockwisefromtheNorth,
alongtheMendipHills,thePenselwood,CortonandWindwhistleridges,theBlackdown,Brendonand
QuantockHillsandalongthecoastofBridgwaterBay.ThisgeographyismappedinFigure1.
The Catchment is home to over half a million people, living in over 200,000 households
2
. Three
quartersofthesepeopleliveintownsandnearlyhalfliveinthefourlargesttownsofWeston-super-
Mare,Taunton,YeovilandBridgwater
3
.
1
TheTechnicalAnnexcanbedownloadedfromwww.rural-focus.co.ukduringOctoberandNovember2016andthereafterfrom
www.reimaginingthelevels.org
2
Precisefigures,basedonanalysisofcensusoutputareasfromthe2011census(ONS)cuttothecatchmentboundary,are516,843residentsin
222,593households.
Figure1.Topography,riversandmainsettlementsoftheLevelsandMoorsCatchment
Annex1.1
Annex2.1
Annex6.1
ReimaginingtheLevels–MakingtheConnections
3
The landscapesand landusesof theCatchmentarevariedanddistinctive, fromthe flatwetlandsof
theLevelsandMoors,therollingmixedfarmingtotheeastandsouth,andrisingtouplandheathland
andwoodlandontheMendip,QuantockandBlackdownHills.TheLevelsareinternationallyimportant
for theiroverwinteringbirdsandareoneof the largestareasofwet lowlandpasture in theUKand
theycontainlargeareasofpeatsoilswhichareanimportantstoreoforganiccarbon(Figure2below).
Figure2.Landuse,theenvironmentandnaturalbeauty
Agricultureisthedominantlanduse,accountingforaround79%ofthelandarea.Around3,000farm
businessesemploysome7,500people,3,600ofthemfull-time.Nearlythreequartersoffarmlandis
pasture,grazedbyaround200,000cattleand210,000sheep.Mostoftherestiscroppedwithcereals
(11%offarmland),maize(6%)andothercrops(6%)
4
.Woodlandcoversabout6%oftheCatchment.
Thecharacterofthelandscapeinwhichpeopleliveisanessentialelementinwhatgivesthemtheir
senseofplaceandbelonging.DistinctivecharacteristicsincludetheflatgrazingmarshesoftheLevels
andMoorspopulatedbycattleandsheepandasummersoundtrackofwadingbirdssuchascurlew
andlapwing,distantskylineviewstohillssuchasBurrowMumpandGlastonburyTor,windingrural
lanesconnectingvillagesandhamletsconstructedofblueliaslimestone,sandstoneorhamstoneand
pocketsofciderorchards.
TheCatchmentincludesarichvarietyofwildlife,particularlywadingbirds.Nearlyaquarterofthe
areaisclassifiedas‘PriorityHabitat’and15%isdesignatedasSitesofSpecialScientificInterest
includingtheinternationallyimportant6,400haSomersetLevelsandMoorsSpecialProtectionArea.
OtherlargedesignatedsitesoccurontheMendips(limestonegrassland,woodlandandcavesystems),
QuantockHills(woodlandandheathland)andalongtheeasternsideofthePoldens(meadowsand
pastures).
PartsoftheLevelsareunderlainbyaround200millioncubicmetresofpeatsoils,covering20,000ha
andstoringanestimated3.7milliontonnesofcarbon
5
.
‘Murmurations’ofstarlingsareacharacteristicandinspiringsightontheLevels©VisitSomerset
3
ThesefiguresusetheGovernment’sUrban-RuralclassificationofcensusoutputareasintheCatchment.
https://www.gov.uk/government/collections/rural-urban-definition
4
Source:AnalysisofDefraJuneAgriculturalSurveydatafor2013
5
Brown,A.G.(2009).CarbonstorageandsequestrationintheSomersetLevelsUK.ReporttoSomersetCountyCouncil.November2009.
Annex5.1
Annex4
ReimaginingtheLevels–MakingtheConnections
4
ThePressuresforChange-TimeforNewThinking
The Levels and Moors and their catchment contain much that is special, and which we have an
obligationtofuturegenerationstoprotect.Changehoweverisinevitableand,ifplannedfor,maybe
desirable.Itisthereforeessentialthatweunderstandandanticipatetheforcesthatwillbringabout
thosechanges,andthatweareboldinrespondingtothem.
Here, we highlight four fundamental pressures for change that will affect the Levels and Moors
Catchment. The first of these is social, the second is physical, covering climate change, the third
politicalandthelastiseconomic.Attheendofthissection,afterexaminingthese‘highlevel’forces,
wedescribesomeofthemoreimmediateissuesthatneedattention.
Socialchange:Publicengagementandparticipationinpolicy
Eventsacrosstheglobeinthelastfewyearshaveshownthatthereisawideninggulfbetweenpolicy
makers and the general public, fuelling a growing lack of trust in decision-making processes. The
reactionofmanyofthecommunitiesontheLevelsandMoors(whohavealwayshadanindependent
spirit) to the flooding in 2013/14 showed a lack of confidence in the decisions being taken by the
EnvironmentAgencyand localauthorities toprotect them
6
. In response, someof thepublicbodies
havesoughttoconsultmorewidelyandcommunicatetheirproposalsinlesstechnicallanguage
7
.
However, thereare limitedmechanismsavailable to local communities, including those in thewider
Catchmentwhomaybecalledontopay for floodriskmanagement, togive theirviews. TheLevels
andMoorsPartnership(LAMP)anditspredecessortheLevelsandMoorsCountrysideforumprovided
a representative and accountable setting for
discussionabouttheareaforover15yearsbefore
LAMP was ended in 2005. The Somerset Rivers
Authority (SRA), which was created in 2015,
promises more locally devolved and coordinated
decision-making but its decision-making Board is
dominatedbyappointedauthorities
8
.
There is an urgent need to ensure that the
communities in theCatchmentarewell informed
andthatorganisations,suchastheSRA,whichare
taking decisions on their behalf, are clearly
democratically accountable. We need to build
thesocialcapitalandnetworksintheCatchment,
ensuringthatallthekeygroupssuchaslandowners,residentsandbusinessesaresensitizedtothe
issuesandpotentialsolutions,andareabletoinfluencethedecisionsthatwillaffecttheirlives.
The conceptof ‘knowledge co-production’ is relevant anduseful here. In thehealth and social care
sectors,itisbeingusedtocreateamoreinclusivewayofworkingbetweenprofessionalsandcitizens,
withthebalanceofinfluenceshiftingfromtheprovidertowardstheuserofservices
9
.
6
www.flagsomerset.org.uk
7
SeeforinstancetheprogressreportsissuedbytheSomersetRiversAuthorityhttp://www.somersetriversauthority.org.uk/flood-risk-
work/progress-update-report/
8
http://www.somersetriversauthority.org.uk/about-us/somerset-rivers-authority-constitution/
9
Seeforinstance:http://www.coproductionscotland.org.uk/about/what-is-co-production/
TheSomersetRiversAuthorityreceivingapprovalfrom
EnvironmentSecretary,LizTrussinDecember2014.©Defra
Annex2.7
Annex6.4
ReimaginingtheLevels–MakingtheConnections
5
Physicalchange:TheClimate
Theworld’schangingclimateisanexistentialthreattoallofus,buttherisingsealevelsandstormier
weatherpatternsposeacritical,life-threatening,challengetothepeopleandlandscapeoftheLevels
andMoors.Thenumberofdaysofheavyrain(exceeding25mm)areprojectedtoincreasebyafactor
ofbetween2and3.5inwinterbythe2080s.One-in-100yearfloodeventsarelikelytobecometwice
asfrequentbythe2050sandthreetofivetimesmorefrequentbythe2080s.Conservativeestimates
suggestaveragesealevelwill increaseby36cmoverthenext70yearsandbynearlyhalfameterby
2100
10
(someresearchsuggestsmuchhigherrisesinsealevel).
Weestimatethataround120,000peopleintheCatchmentlivelessthan10mabovemeansealevel,
thelargemajorityinthetownsofWeston-super-Mare,BridgwaterandBurnham-on-Sea,witharound
20,000peopleinlow-lyingvillages,hamletsandopencountryside.Ithasrecentlybeencalculatedfor
Somersetthat“approximately19,000propertiesareatriskfromsurfacewaterflooding”,withmostof
these being in inland towns like Taunton and Yeovil
11
. These and other towns like Langport and
Bridgwater are also at risk of flooding from tidal rivers. Perhaps at greater threat of harm are the
coastalcommunitiessuchasBurnham-on-Seawherefloodingfromtheseaisagrowingrisk.
FloodwatermanagementontheLevelscurrentlyreliesheavilyonengineeredsolutionssuchasraised
river banks, sluices and pumps. Rising water levels will make these increasingly expensive (and
potentiallyunviableonsomelow-lyingfarmland).UpstreamoftheLevels,thewaythatwatercourses
andsoilshavebeenmanagedoverthelast30yearshasexacerbatedsurfacewaterandriverflooding
12
(SeeFigure4),makingtheCatchmentlessresilienttotheeffectsofclimatechange.
Another likely consequenceof climate change is thatperiodsof summerdroughtwill becomemore
frequentandintense.Lowbaseflowsinriversandalowerwatertableriskdamagingwetlandhabitats
andpeatsoilsandreducingagriculturalproductivity.Periodsofhightemperatureswillincreaseheat
stressonpeople,animalsandplants.
Weneedtoexaminemorecloselythewaysthatrainfall,riversandgroundwateraremanagedover
thewholeoftheCatchmentsothatwearebetterpreparedforhighrainfalleventsandareableto
reduce the risk of damaging floods. We should enable river floodplains to perform their natural
function of holding back flood water (relying less on engineered solutions that require expensive
maintenance) and should ensure that watercourses and soils throughout the Catchment are in an
optimalstatetoabsorbrainfall.Wherenecessary,weshouldbeboldinplanningforradicalchangesof
landuseincertainareas,embracingtheopportunitiesthiswouldbring
13
.
Floodeventsliketheonethatoccurredinthewinterof2013/14willoccurmorefrequentlyandbecomemoresevere
10
TheUKClimateProjections2009producedbytheMetOffice’sHadleyCentrehttp://ukclimateprojections.metoffice.gov.uk.TheseareaverageUK
estimatesbasedonthemediumemissionsscenarioand50%probabilityestimate.
11
http://www.somerset.gov.uk/environment-and-planning/flooding/preparing-for-flood/
12
soilerodedfromthemiddleanduppercatchmentendsupfillingtheriverchannelsoftheLevels,fromwhereitneedstobedredged
13
Forinstance,enablingthecreationoflargewetlandsonthelowest-lyingareas,enablingnewformsoflandandwaterusesuchasfishfarming.
Annex2.2
ReimaginingtheLevels–MakingtheConnections
6
We have an obligation to take our share of the global
response to reduce the man-made sources of climate
change. Homesandbusinesses in Somersetproducean
estimated 4.2 million tonnes of carbon dioxide, equiva-
lentto7.9tonnesperperson(seeFigure3totheleft)
14
.
TheGovernmenthascommittedtoreducingemissionsby
atleast80%in2050from1990levelsandtheCatchment
is already a significant producer of renewable energy
from‘solarfarms’(withacapacitytoproduce286Mwof
electricity, or the needs of around 40,000 homes). But
muchmoreneedstobedoneintheCatchmenttoreduce
emissionsfromtransport(theM5isresponsiblefor8%of
Somerset’s CO
2
emissions
15
) and from agricultural soils
andlivestock.
Thereappearstobelittlelongtermplanningtakingplace
locally to adapt to and mitigate climate change. The
CountyCouncil’s ‘RespondingtoClimateChange inSomerset’actionplanwasproduced in2008and
littleappearstohavebeendonetoactonit.Itisnowveryoutofdate.Inourview,theanalysisand
policiesaddressingthechangingclimateintheDistrictCouncil’sLocalPlansareunambitiousandgive
nosenseofurgencyofthechallengesweface.MostofthebudgetintheSomersetRiversAuthority’s
20-YearFloodAction isconcernedwithmaintainingexistingflooddefencesorcatchinguponunder-
investmentinrecentyears,withrelativelylittlefundingtoreducewaterrun-offandfloodgeneration
inaproactivemanner.
InviewofthedirectthreatsthatclimatechangeposestotheLevelsandMoorsCatchment,weneeda
fuller and more ambitious assessment of what public bodies, businesses, communities and
individuals canandshoulddo toadapt to severeweathereventsand flooding,andalso to takea
lead in reducingemissionsofgreenhousegases thatare causing climate change. Bydoing so, the
Levels andMoorsCatchment couldbecomeanational exemplar for local action tomeet this global
challenge.
Therewillneedtobesignificantchangesinthewayweconsumeandproduceenergy
14
https://www.gov.uk/government/statistics/uk-local-authority-and-regional-carbon-dioxide-emissions-national-statistics-2005-2013
15
ibid.
Figure3.CO2emissionsinSomerset,2013
Source:www.gov.uk/government/statistics/uk-local-
authority-and-regional-carbon-dioxide-emissions-
national-statistics-2005-2013
Petrolanddieselusedfortransport,33%
Electricitygeneration-industry,17%
Electricitygeneration-domestic,
12%
Gas(industry&domestic),15%
Othersources,22%
Annex4.4
ReimaginingtheLevels–MakingtheConnections
7
Politicalchange:Brexit
TheramificationsoftheUK’sdecisiontoleavetheEUwillbefeltinmanywaysand,amidthecurrent
uncertainty,it is likelythatpolicydecisionsthattheUKGovernmentwillmakeintwoareaswillhave
majorimpactsontheCatchment.
Thefirstofthesepolicyareascoversenvironmentalprotectionandcon-
servation which has been heavily influenced by EU regulations and
schemes.TheLevelsandMoorscontainoneofthelargestareasoflow-
landwetgrasslandinnorthernEurope,6,500haofwhichisprotectedas
a Special Protection Area under the EU Birds Directive (part of the EU
Natura2000network). TheEUWaterFrameworkDirective leadsmuch
of the work by the Environment Agency to improve river and ground-
waterquality.Thelargemajorityofthemoneypayingforenvironmental
conservation in the countryside comes from theEURuralDevelopment
Programme. These and other conservation measures are far from
perfect (for instancemanypeoplequestion theeffectivenessofagri-environment schemesandcon-
servationdesignations)and,givensufficientpoliticalwillandfunding,Brexitcouldprovidetheoppor-
tunity for improvements. We need a more joined-up ‘landscape scale’ approach to habitat
conservation and more ambitious ‘outcomes focussed’ incentives for farmers and landowners
(whichentrustfarmerswiththemeansofachievingarangeofpublicbenefits).
ThesecondpolicyareathatwillfacetheGovernmentfollowingBrexitconcernsthecontinuingincome
supportforagriculture.FarmingintheCatchmentisheavilyreliantonthesocalled‘Pillar1’payments
that all farmers receive andwithoutwhichmany cropping and livestock farmswouldbeunviable
16
.
Weestimatethat in2015, farmers intheCatchmentreceivedaround£33million in ‘Pillar1’ income
supportpayments(comparedtoanestimatedfarmgatevalueofagriculturalproductionintheCatch-
mentof£257million).
There isalreadytalk that theUKTreasurywill seek towithdrawthese ‘Pillar1’ incomesupportpay-
mentsafter2020,insteadfocussingonpaymentsforenvironmentalandotherpublicbenefits.More
incentivestoprovidesocalled‘ecosystemservices’onfarmlandwillcertainlybewelcome.Butthere
is a strong risk thatwithdrawal of farm income support, coupledwith a liberalisation of trade,will
accelerate the structural change in farming, favouring larger ‘factory farming’ businesses capableof
competingonworldcommoditymarkets.Webelievestronglythatthischangewouldbetothegreat
detrimentofthelandscapeandruralcultureoftheCatchment.Aswesayfurtherbelow,weneeda
new policy for farming and the environment in England that supports economically and
environmentallysustainablelandmanagement,fine-tunedtosuitlocalcircumstances.Wehopethat
theGovernment’sproposed’25-yearplanforahealthynaturaleconomy’
17
willachievethis.
ThereisafurthereffectofBrexitthatisworthconsidering.If,asseemslikely,‘Pillar1’paymentsare
withdrawnorsignificantreducedbytheTreasury,itislikelythatthevalueandviabilityofsomeagri-
cultural landontheLevelswill fall
18
. Thiscouldhaveanimpactonthecostbenefitanalysisofflood
drainage schemesprotecting farmland. Theeffects of potential falling agricultural landprices and
profitabilityneedstobefactoredintofloodriskmanagementplanningontheLevels.
16
http://farmbusinesssurvey.co.uk.SeeAnnex5.1formoreinformation.
17
Thiscommitmentwascontainedinthegovernment’sresponsetotheNaturalCapitalCommittee’sthirdStateofNaturalCapitalreportin
September2015.Thepublicationoftheframeworkforthe25-yearplanhasbeendelayeduntiltheendof2016asaresultoftheBrexitvote.
18
Itisacceptedbymanyeconomiststhatfarmincomepaymentshaveeffectivelybeencapitalisedbyfarmersintohigherlandprices.Seefor
instanceHelmD(2016).BritishAgriculturalPolicyafterBREXIT.NaturalCapitalNetwork–Paper5.1stSeptember2016
TheLevelswillnolongerbe
subjecttotheEUBirdsDirective
Annex4.2
Annex5.1
ReimaginingtheLevels–MakingtheConnections
8
Economicchange:Thefoodsupplychain
Ourfinalpressureforchangeconcernswhathasbeenhappeningtotheeconomicsoffoodproduction
andconsumptionintheCatchment,mirroringchangesacrossthewesternworld.Thiscanbelinked,
bothtoadeclineintheviabilityoffarmingandanimpoverishmentofthelandscape,biodiversityand
naturalresources,butalsotoariseamongstconsumersinobesityandconditionssuchasdiabetes.
ThechangesindairyfarmingintheCatchmentoverthelast20yearsprovideagoodillustrationofthis.
As recently as1985, therewereover1,800dairy farms in Somerset, producingmilk fromgrass and
sellingthroughmanylocaldairiesandcheesemakers.Thepredominanceofgrassinthecows’dietis
importantsincethis isnowknowntogivemilkandmeathigh
levels of health-giving nutrients such as omega-3 fats, conju-
gatedlinoleicacidandVitaminE.Inthelast30years,theprice
ofmilkpaidtofarmershasfalleninrealtermswhiletheircosts
ofproductionhaverisensignificantly. Small farmershave left
thedairyindustryandlargerfarmershavecuttheircosts.They
haveintroducedmaizeandimportedfeedssuchassoyatothe
diets of their cows (feeds which lack the health benefits
describedabove).Theyhaveswitchedtohighvolumeproduc-
tion systemswhere there isusually less room forwildlifeand
landscapefeatures. Yieldshaveincreased(fromaround5,000
litres per cow a year in 1985 to over 7,000 today) but the
numberofdairy farms inSomerset fell from1,800 in1985 to
fewerthan500in2013andisprobably lessthan450today.Consumersnowbuymostoftheirmilk
(whichcancostlessthanbottledmineralwater)asanunbrandedcommodityfromsupermarkets.
19
Similarchangeshavetakenplaceinthelivestock(beefandsheep),arableandhorticulturalsectorsin
theCatchment.Thehigherinputandmorespecialisedagricultureadoptedbymostfarmersmaybe,by
somemeasures,more economically efficient. However, it takes no account of the hidden costs of
decliningsoilandwaterquality,fasterrun-offofrainfall,lossofwildlifeandablanderlandscape
20
.
Norhavemost farmersdonewell outof these changes. Their incomeshavenot risenby the same
amountastheiragriculturalyields.Asnotedabove,mostfarmsarereliantonthesupportpayments
they receive from theEUCommonAgriculturalPolicy. Their incomeshavebeensqueezedbetween
higherinputcostsandstagnatingordecliningpricesfortheirproducts.Moreofthevaluegenerated
on farmshasbeen takenby theagricultural supply industry (suchasagrochemical suppliers)andby
themultiplefoodretailers(thesupermarkets). Thismoneyhasbeenlostfromruralcommunities,at
thesametimeastheirlandscapeandecologyhasbeenimpoverished.
These economic pressures have seemed inexorable and if, as predicted above, the farm income
supportpaymentsfromtheEUarewithdrawn,theymaybeabouttoaccelerate.Newapproachesare
needed to support the types of farming that provide rural livelihoods and culture, a high quality
environmentandwholesomefood.Toachievethis,wenowneedaFarming,FoodandEnvironment
PolicyforEnglandthatpromoteshealthyandenvironment-friendlyfoods,strengthensdemandfrom
consumersandsupportsstrongandresponsivelocalsupplychains21.
AlocalfoodeconomythatsuppliesSomersetresidentswithadiverseandnutritiousdietfrommixed
farms in the Catchmentwould be an exemplar for other regions of theUK. The alternatives of an
industriallyfarmedlandscape,oronethathasbecomerun-downandabandoned,are,wesuggest,not
whatthepeopleofSomersetwanttosee.
19
ForafulleranalysisoftheissuesraisedinthisparagraphseeHarveyG(2016).GrassFedNation:Gettingbackthefoodwedeserve.IconBooks.ISBN978-1-78578-076-9.
20
Seeforinstance:Gravesetal(2011)ThetotalcostofsoildegradationinEnglandandWales.DefraScienceandResearchProjectSP160621
Asnotedonpage7,wehopethattheGovernment’sproposed’25-yearplanforahealthynaturaleconomy’willdeliverthis.
Dairy farmers protesting over low milkpricesnearBridgwater,2015
Annex5.2
Annex5.1
ReimaginingtheLevels–MakingtheConnections
9
Lower-levelpressingissues
The fourpressures forchangedescribedaboveareall ‘high level’, requiring fundamentalchanges in
public policy and behaviour, some at a national level. However, there are other more immediate
issuesaffectingtheCatchmentwhichalsoneedattentionaspartofa‘ReimaginedLevels’,particularly
inrelationtofloodriskmanagement.SomeofthesearedescribedinFigure4,below.
Figure4.ImmediatepressingissuesintheCatchmentaffectingfloodriskmanagement
§ UnwillingnessofTreasury-fundedbodiestoconsiderpaymentstofarmersfortakingadditional
floodwater
22
,preventingfullerdiscussionaboutthemeritsofproactivefloodwaterstorageas
anadditionoralternativetohardengineeringsolutions.
§ LargelyunregulatedgrowingofmaizeintheCatchment,whichresearchinneighbouringEast
Devon
23
hasdemonstratedoftendamagessoilstructure,increasingerosionandsoilrunoff,
bothofwhichexacerbatefloodriskandincreasetheneedfordredging.
§ Awiderissueofpoorsoilquality(compactionandlowlevelsoforganicmatter)inlargeareasof
themiddleandupperCatchmentasaresultofarablecropping,whichincreasesthespeedof
soilrun-offandthelikelihoodofdownstreamflooding.
§ PoordecisionsbysomeLocalPlanningAuthoritieswhichcontinuetoallowdevelopmentin
locationsthatarelikelytoincreasefloodriskorwhichfailtorequireadequatedrainageand
floodmanagementinfrastructure.
§ Poormaintenanceofmuchurbanandruraldrainageinfrastructureduepartlytoalackofclarity
abouttheresponsibilitiesofdevelopersandthepublicauthoritiesandpartlybecauseof
resourcelimitationsattheCountyCouncil(asleadauthority).
§ UncertaintyoverthefuturefundingoftheSomersetRiversAuthority,particularlyinrelationto
itslongertermproactiveworktoaddressthecausesofflooding.Creatingamoreaccountable
andrepresentativegovernancestructuretotheSRAmustbepartofitsfuturefunding
arrangements.
PoorsoilmanagementinthemiddleandupperCatchment
increaseswaterrun-offandsiltationdownstream
Inappropriateplanningdecisionshaveledtodevelopmenton
flooplains,reducingtheareaavailabletostorefloodwater
22
ThisunwillingnessmaybeduetoTreasuryconcernaboutacceptingfinancialliabilityfortheimpactoffloodingfarmland.
23
ChantalBrownConsulting(2016).EastDevonRuralDiffusePollutionProject.ReportfortheEastDevonCatchmentPartnership.March2016.
Annex2.7
Annex4.5
Annex2.6
ReimaginingtheLevels–MakingtheConnections
10
OurVisionfortheFutureandtheObjectivesneededtoachieveit
In the aftermath of the flooding in 2013/14, a Task Force that combined the interests of farmers,
environmental bodies and local authorities produced a nine-point vision for how they wanted the
LevelsandMoorstobein20years
24
.
Thereismuchthatweagreeaboutinthisvision.Itcallsfor“athriving,nature-richwetlandlandscape,withgrasslandfarmingtakingplaceonthemajorityoftheland.Theimpactofextremeweathereventsisbeingreducedbylandandwatermanagementinboththeuppercatchmentsandthefloodplainandby greater community resilience” and it envisages that “New businesses, including those based on‘green tourism’, have developed,meeting the needs of local people and visitors alike, while brandsbased on the area’s special qualities are helping farmers to add value to themeat,milk and othergoodsandservicesthattheyproduce”.
However,webelievethattheTaskForcevision,publishedinFebruary2014,doesnottakefullaccount
of the scale of challenges now facing the area, nor is it sufficiently ambitious about the potential
opportunities thatneedtoberealised. And it requiresupdating in the lightof the formationof the
SomersetRiversAuthorityandinanticipationofBrexit. Figure5,onthenextpage,addstotheTask
Force vision by describing some of the key changes that are needed to address the pressures for
changeoutlinedintheprevioussectionofthisreport.
Allvisionsofthiskindcansoundlike‘piein
the sky’ or fantasies of a future that can
never be achieved. In order to develop
concreteways in which this vision can be
taken forward, we suggest that there
should be three over-riding objectives for
action, each focussing on strengthening
connectionsindifferentdimensions.These
threesetsofobjectives,whicharelistedon
pages 12 and 13, aim to connect the
people, economy and landscape of the
LevelsCatchment.
Two concepts lie behind many of our
objectives. The first is the use of ‘Natural
FloodManagement’techniquesacrossthe
whole Catchment to supplement, and over time replace,many of the hard engineering approaches
used tomanage flood risk
25
. A key advantage of Natural FloodManagement is that it can provide
manyadditionalbenefits,suchastowaterquality,biodiversityandlandproductivity.
Thesecondconceptisthatof‘Bioregionalism’whichpromoteseconomiesandgovernancebasedon
naturally-defined areas such as catchments, encourages self-sufficiency within environmental limits
andpromotessocialequity(counteringtheconceptofglobalisation)
26
.
24
http://www.rspb.org.uk/news/details.aspx?id=361933
25
SeeSEPA(2015)NaturalFloodManagementHandbook.PublishedbytheScottishEnvironmentalProtectionAgency.ISBN:978-0-85759-024-4
https://www.sepa.org.uk/media/163560/sepa-natural-flood-management-handbook1.pdfThisdefinesNaturalFloodManagementasusing
“techniquesthataimtoworkwithnaturalhydrologicalandmorphologicalprocesses,featuresandcharacteristicstomanagethesourcesand
pathwaysoffloodwaters”.
26
SeeScottCatoM(2012).TheBioregionalEconomy:Land,LibertyandthePursuitofHappiness.ISBN:978-0415500821
ConnectingPeople
Improvingunderstandingandaccountability
ConnectingtheEconomy
Developingsupplychainsforlivelihoods,healthandwellbeing
ConnectingtheLandscape
Enhancingnaturalsystems,productivity
andbeauty
Seepages12
and13for
descriptionsof
these
objectives
Annex2.5
Annex6.3
ReimaginingtheLevels–MakingtheConnections
11
Figure5.OurproposalsforwhataReimaginedLevelsCatchmentshouldlooklikein20years’time
TheabilitytocontrolwaterlevelsontheLevelshasbeenenhanced.Thebasisofwaterlevelmanagementonfarmlandhaschangedtoenable
floodplainstoperformtheirnaturalfunctionofholdingfloodwater
duringthewinter.
Streamsandwatercoursesinthemiddleandupper
catchmentaremanagedtofavournaturalisedchannel
profilesandtheaccumulationofwoodydebris,resultinginreducedpeakflowsandbetterriparianandwaterhabitats.
Nodevelopmenttakesplaceonanyareasoffunctional
floodplaininthecatchment.Allnewdevelopmentis‘flood
positive’,usingahigherSuDSstandard*,sothatitgenerateslessfloodwaterthanbefore.
Treecoverinthemiddleanduppercatchmenthasbeenincreasedthroughthetargeted
plantingofwoods,hedgesandorchards.Thishelpswildlife,floodriskmanagementand
landscapequalityandprovideswoodfuel,craftproductsandpublicaccess.
Theconditionofsoilsthroughoutthecatchmenthasgreatlyimproved,withmuchhigherlevelsoforganicmatterandlowerlevelsofcompactionandslaking.Thishasrequiredchangesinagricultural
landuseandmanagement,withlessmaizeandcontinuouscerealproductionandmorepermanentpastureorlongtermgrassleys.
Robustandeconomicallyviablelocalsupplychainsprovideconsumersinthecatchmentwithnutritiousfoodfromlocal
farms.Thishasinvolvedthere-instatementoflocalprocessinganddistributionbusinesses(e.g.abattoirs,dairies,packhouses).Improvedmarketintelligencehasledtomoreequitableprofitdistributionalongthesupplychain.
Thecatchmenthasbecomecarbonneutral,providinganational
exemplarofthewaysthathouseholdsandbusinessescantaketoreduce
theirimpactonclimatechange.Thishastakenplacethroughreductionsinemissionsfromtransport,heating,agricultureandwasteandfromrenewableenergygeneration.
Peoplelivinginthecatchmentarebetterinformedaboutthepoliciesandworkofthelocalorganisationstheyarepayingforandaremoreinvolvedindecision-making.Theyusetheirpurchasingpowerasconsumerstoimprovetheirlocalenvironmentandsupportlocaljobs
andbusinesses.
*SuDSstandsforSustainableDrainageSystem.TheNationalPlanningPolicyFrameworkrequiresthatplanningauthoritiesgiveprioritytotheuseofsustainabledrainagesystems
ReimaginingtheLevels–MakingtheConnections
12
OurObjectivesforaReimaginedLevelsCatchment
ConnectingPeople–Improvingunderstandingandaccountability
§ We should empower the peoplewho live andwork in the Catchment through a reinvigoratednetwork of community organisations, coordinated through a new ‘Friends of the Levels’organisation, that is able to present awell-informed and ambitious agenda for action to publicbodiesandbusinesses,andabletotakeactioninitsownright.
§ The residents of the Catchment should receive positivemessages about the opportunities theycantakeasconsumers thatwillenhancetheirownandotherpeople’s lives, includingthemanywaystheycanreducetheirimpactonclimatechangeand,bydoingso,reducethethreatsfacingtheircommunities.ThepreparationofaZeroCarbonSomersetStrategywouldhelpachievethis.
§ Theplanning system needs todomore toprotectandenhancenatural capital and life-supportsystems–especiallyinrelationtoflooding.Thiswillrequiretherobustuseofexistingpowerstorejectunsuitabledevelopmentaswellas innovativeapproaches to supportingpositivedevelop-mentormitigatingtheimpactsofdevelopmentwhichisinthepublicinterest.
ConnectingtheLandscape–Enhancingnaturalsystems,productivityandbeauty
§ The principle of encouraging the functional connection between rivers and their floodplainsthroughouttheCatchmentwillneedtobeembeddedinpolicyandpractice.Thisdoesnotmeanthatwe should relinquish controlofwateron theLevels (far from it–weneed to increase theinfluenceswehaveover flooding). Butwe shouldbemore flexible inusing farmlandon flood-plainstomanagewinterfloodingandallowinggravitytoevacuatefloodwater,inaddition,orasamore effective alternative, to hard engineering solutions. A process of negotiation andcompensation (and potentially also land acquisition in key locations by the public or charitablesector)willbeneededtore-establishthefunctionalfloodplain.
§ Theremaybeaneedtoconsidermoreradicallandusechangeinthelowestlyingareastoallowwetlandhabitats todevelopthatwillhaveaprotective functionagainstseveremarineor fluvialfloodingandcouldalsoprovideproductive(e.g.aquaculture)uses.
§ Thereneedstobebetterunderstandingoftheeffectthatlanduseandmanagementhasonboththeenvironmentandthenutritionalqualityoffood.Thisshouldincludeaparticularfocusonthevitalroleofpermanentpasturetosustainnatureandhealthyfood,andthe importanceoffully-functioningsoilsandrivers(agro-ecology).
§ AsoilsstrategyfortheCatchmentisneededthatidentifiesdegradedsoilsandthecircumstanceswherethereisgreatestpotentialfor improvingtheirstructureandorganic-mattercontent. Thisshould involve a package of practical research, extension advice and financial incentives tofarmersandlandownersonfloodandsoilmanagement.
§ Greaterspatialco-ordinationofthemanagementandcreationofwildlifehabitatsacrossfarmsisneeded.Thisshouldensurethatourcorewildlifesitesarenolongerisolatedfromeachotherandnatureismoreconnectedandresilienttothreatssuchasclimatechange,pestsanddiseases.
ReimaginingtheLevels–MakingtheConnections
13
ConnectingtheEconomy–Developingsupplychainsforlivelihoods,healthandwellbeing
§ Weneedavibrantandefficiently-functioningbioregionaleconomy that joinsupproducersandprocessorsofgoodvalue,nutritiousandsustainably-producedgoodsandserviceswithconsumersatallpricebrackets.Thiswillrequireimprovedmarketintelligenceputtingproducers,processorsandretails intouchwitheachother;usingclear,credibleandcost-effectiveassurancestandardssoconsumerscanbeconfidentinwhattheyarebuying;andco-ordinatedpromotiontostimulatedemand.
§ Thereshouldbebetterpromotionofthebenefitsthatahighqualitynaturalenvironmenthastopeople’s spiritual and physical wellbeing. This requires better public understanding of thepositiveconnectionsbetweenthewayfoodisproducedanditsnutritionalbenefits;andbetweenaccessto,andexperienceof,‘greenspaces’andlandscapes.
§ More efficient and effective means are needed to address market failures in the way publicbenefits are providedby the environment. Examples include a) using a levyonhousehold andbusiness insurance premiums to pay landowners to store flood water, reducing the risk ofpropertiesfloodingandb)extendingthecarbontradingmarkettoincludeorganicmatterinsoils,includingpeatsoils.Suchschemesmustbeadministrativelysimpleandtransparent.
§ Not-for-profit organisations, including Community Benefit Societies, Community InterestCompanies andCharities, have an important role to bridge the gapbetweenprivate enterpriseandpublicbenefits.Wecanexploremoreopportunitiesforcommunity-ledorganisationstousetheselegalstructurestohelppublicbodiesdotheirworkmoreeffectivelyandwithstrongerlocalsupport.
OurspatialvisionforlanduseandmanagementMeetingtheseobjectiveswillbeeasierifwehaveabetterspatialunderstandingofwherechangestolanduse andmanagementneed tohappen. Solutions shouldbebasedon the characteristics of theCatchment(i.e.designedforlocalcircumstancesandnotonstandardnationalprescriptions).Figure6onthefollowingpagesplitstheCatchmentintofivedifferentareasbasedontheircurrentlanduseandnaturalresources,andproposestheobjectivesthatshouldguidethemanagementoflandandwaterineacharea.
Trackingprogress towards these spatial objectives canbehelpedby setting targets as ‘indicatorsofsuccess’.Furtherworkandconsultationwillbeneededtodevelopthesetargets.Asanexample,wesuggestthatonetargetcouldbetodoublewoodlandcoverintheCatchmentoverthenext20yearsfrom6%to12%,reaching20%intheuplandpartsoftheCatchment(currentlyaround10%)and15%inthemiddlepartsoftheCatchment(currentlyaround8%).
The fulfilment of all these spatial objectives lies in the hands of themany private landowners andtenantswhofarmtheCatchment. Theirwilling involvementand leadershipwillbeessential. Aswehaveseen,anewnationalFoodandFarmingPolicyisneededtoprovidetherightstructureofmarketincentives, compensatory payments and advice, backed upwhere necessary by regulation. Locally-targetedfundingtopayforpublicbenefitsproducedfromtheland(socalled‘PaymentsforEcosystemServices’) will be required through a rejuvenated agri-environment scheme. A new facility forbrokeringthevoluntaryexchangeofland(socalled‘Landswaps’),alreadybeingdevelopedbyafarmeratPawlett,mayhelptomatchtheaspirationsandcapabilitiesof landownersandmanagerswiththeobjectivesfordifferentparcelsofland.
Annex4.5
Annex6.3
ReimaginingtheLevels–MakingtheConnections
14
Figure6.OurspatialvisionandobjectivesforlanduseandmanagementintheCatchment
Peatland
son
the
Levelsan
dMoo
rs
Otherareasofthe
Levels&M
oors
Themiddlecatchm
ent–mainly
mixed
farm
ing
Themiddlecatchm
ent-curren
tly
mainlyarab
lecropp
ing
Theup
land
s
Alllandmaintainedaspermanentpasture.Nomaizeorarablecrops,inordertopreservepeatsoilsandavoidfurthersinkingofthelandsurface ü
Highsummer-penwaterlevelstopreventdryingoutofpeatsoilsandenhancehabitatsforwildlife,includingnestingwadingbirds ü ü
Examinationofnecessityforlong-termlandusechangeincertainareastocreateprotectiveandproductivewetlands(e.g.reedharvesting,aquaculture) ü ü
Useoffloodplaingrasslandforwinterfloodstorage,withfarmersreceivingpaymentsinrecognitionofadditionalreductionsinfloodrisktootherareas ü ü ü ü
Theconservationandactivemanagementoftraditionalorchards(andmarketsfortheirfruit)toenhancelandscapecharacter,biodiversityandproductivity ü ü ü ü
Tightcontrolofwheremaizeisgrownandwhenitisharvestedtoreducerun-offanderosion,toincludeconsiderationofno-plantingareasandfarmquotas ü ü ü ü
Reintroductionofgrassleystoarablerotations(wheretheyhavebeenlost)tobuildthewater-holdingcapacityandfertilityofsoilsandimprovewaterquality ü ü ü ü
Useofsoilremediationmeasures(e.g.moledrainage,minimumtillage)tore-coversoilstructureandorganic-mattercontentwherethishasbeendegraded ü ü ü ü
Creationofwidefieldmarginsandhedges,especiallybesideriversandwater-courses,toenhanceecologicalconnectivityandreducesurfacerun-off ü ü ü
Naturalisationofriverandstreamchannels,allowingbuild-upofvegetationandwoodydebristoenhancehabitatsandslowwaterflow ü ü ü
Creationofwetlandfloodstorageareasbyblockinglanddrainsandcreating‘leaky’dams,reducingpeakriverflowsandincreasingsummerbaseflows ü ü ü
Increasedwoodlandcover,especiallyonsteepslopesandareaspronetoero-sioninordertointerceptrun-offandprovidealltheotherbenefitsofwoodland ü ü ü
Reinstatementofwoodlandmanagementtoenhancewildlifehabitats,providewoodfuelandsupportruraljobs ü ü ü
Blockingofmoorland‘grips’(drainagechannelsinpeatsoils)toincreasethewater-holdingcapacityoftheuplandmirehabitats ü
MapoftheCatchment
showingsuggested
spatialdivisions
ReimaginingtheLevels–MakingtheConnections
15
OurRecommendationsforAction
The objectives described above contain a range of suggestions affecting land use planning, farmingpractices, river andwater levelmanagement, environmental regulation and conservation priorities.We hope that these suggestions will influence the work of bodies managing water (including theEnvironment Agency, Drainage Boards and Local Authorities), the local authority planningdepartments, theorganisationsrepresentingandadvising farmersand landowners, theconservationcharitiesthatownland,andothers.
However,inthisfinalsection,wefocusspecificrecommendationsonthreetopics.Theseare:
A. ThedevelopmentandworkoftheSomersetRiversAuthority;
B. Supportforfarming,foodandtheenvironmentpost-Brexit;and
C. TherepresentationofcommunityinterestsintheCatchmentonpoliciesaffectingtheenvironment,landandwater.
A.TheSomersetRiversAuthorityThe most significant positive legacy of the flooding that occurred in 2013/14 promises to be theestablishmentof the SomersetRiversAuthority (SRA) to co-ordinateanddevelop the20-Year FloodAction Plan. However, the SRA currently has no powers and resources of its own and its future isuncertain.
TheconstitutionandfundingoftheSRA
There is much political work being done to persuade the Government to give the SRA a statutoryfootingasan independentpreceptingauthority27. Atthetimeofwriting, it isunderstoodthatDefraplans to bring forwardprimary legislationwhichwould enableMinisters, responding to requests bylocalauthorities,toestablishcatchment-basedpreceptingauthoritieswithresponsibilityforfloodriskmanagement.WewelcomethisandhopethattheGovernmentcanfindthecivilserviceresourcesandparliamentarytimetomakeithappensoon.Wehavethefollowingrecommendationstomakeabouthowthisisdone.
A.1 TheGovernmentshouldgivenewpreceptingauthoritiesliketheSRAaclearstatutorypurposethat establishes broad ‘public good’ objectives covering the safeguarding of public assetsincludingproperty,critical infrastructure,soilsandhabitats. TheremitandpowersoftheSRAmustencompassallaspectsof landandwatermanagementacrossthewholeCatchmentthathaveadirectconnectiontomanagingtherisksoffloodinganddrought.
A.2 The Government should ensure that the new precepting authorities include non-partyrepresentativeswhoareelectedspecificallytorepresentthe interestsof localcommunities.These locally-electedmembers, whowould strengthen the accountability of the authority tolocaltaxpayers,shouldbeinadditiontothemembersnominatedbylocalauthorities,IDBsandbodiesliketheEnvironmentAgency.ThemodelprovidedbyNationalParkAuthorities,whosemembership is split between local authority nominees, Secretary of State appointees andlocally-electedrepresentatives,hasmuchtorecommendit.
27ThiswouldgivetheSRApowerstoraiseitsownincomethroughapreceptontheCouncilTaxpaidbyallhouseholdsinSomerset.
Annex2.7
ReimaginingtheLevels–MakingtheConnections
16
A.3 In preparation for the primary legislation, the County Council should develop options andconsultwidelyonthepotentialfortheSRAtocollectastatutoryarealevytofunditsworkonnatural flood management, to be paid on holdings over one hectare in all parts of thecatchment (as well as receiving income from a precept on individual households). Anexemption could be granted to holdings that currently pay a levy to the Internal DrainageBoards.
TheSRA’sstrategicprioritiesandactivities
TheTaskForceVisionfortheLevelsandMoorsandthe20-yearFloodActionPlanthatweredevelopedinthewakeofthe2013/14floodingsetoutabroadagendaforaction,emphasisingtheneedforworkacrossthewholeoftheCatchmentandnewapproachesbasedonnaturalfloodmanagement.
However,we note that the largemajority (90%) of the SRA’s budget for the 2016/17 year is beingspent on rivermanagement work including dredging on the Levels. In contrast, the expertise andfundingallocatedtonaturalfloodmanagementinthemiddleanduppercatchmentisverysmall(forinstancetheprogrammeofcapitalgrantstolandownersaccountsforonly5%ofthebudget).
We are concerned that long term approaches to address the causes of flood generation andwhichhave the potential to deliver a greater range of ecosystem services, will lose out to short termmaintenanceworksuchaschanneldredgingwhichmaynotbecosteffective (andmaysimplymovetheproblemdownstream).
A.4 As soon as it is established as an independent authority, the SRA should give a clearcommitmentthatitwillmakeoneofitsprioritiesthedevelopmentoflongterm‘naturalfloodmanagement’measuresacrossthewholeCatchment.
Thiswillrequireittoextenditsleading-edgeprofessionalexpertiseandtoworkwitharangeofpartnersinvolvedinlanduseandmanagement.
TheSRAhasenteredacrowdedarenaoforganisations,committeesandpartnershipswhoareinvolvedin water and flood risk management in Somerset. These include the Environment Agency, theDrainage Boards, local authorities, Regional Flood and Coastal Committee, Somerset WaterManagementPartnershipandthereinvigoratedCatchmentPartnership.Weacceptthatthesebodieshave different jobs to do, but local communities will quickly lose confidence in them if they seeinefficientadministrationoralackofco-ordination.
A.5 ProvidedtheSRAcandemonstratelocalaccountabilityforitsdecisionsthroughlocally-electedmembers (see .2), it should establish its authority as the primary body co-ordinating watermanagement in Somerset, commissioning or delegating other bodies to deliver agreedprogrammesofwork.
Thisshould includethemonitoringandmaintenanceofpublicdrainage infrastructureandtheuseofagri-environmentfundingtoreducefloodriskonfarmland.
We make further suggestions about how the SRA should involve communities and citizens in itsdecision-makingbelow(RecommendationC.2andC.3).
ReimaginingtheLevels–MakingtheConnections
17
B.Supportforfarming,foodandtheenvironmentpost-BrexitAs we have already indicated, there is great uncertainty over the future of public policy towardsfarming and the countryside following the Brexit vote in June. It is essential that we take theopportunities that leaving the CommonAgricultural Policy presents to strengthen our local farmingand food economy for the benefit of local people, wildlife and the landscape. This requiresestablishing the right overall policy framework at a national level and then developing andimplementingitinlinewithlocalneedsandopportunities.Wemakethefollowingrecommendationstoguidethisprocess.
AFarming,FoodandEnvironmentPolicyFrameworkforEngland
B.1 TheGovernmentshouldleadanurgentnationaldebateonhowwedevelopafarmingandfoodeconomythatisbetteratenhancingnationalhealthandwell-being(addressingissuessuchasobesity and poor nutrition) and the condition of the environment (including wildlife, rurallandscapes,healthysoilsandtheglobalclimate).
Thisshouldidentifythestepsneededtopreventunacceptablepractices,rewardfarmersfortherange of public benefits they provide, createmore robust and productive local supply chainsandenableconsumerstomakebetterinformedchoices.Itshouldformthebasisofthefarmingand agri-environment support that replaces the EU Common Agricultural Policy in 2020,establishinganationalframeworkunderwhichlocalprogrammeswillbedeveloped.
Alocally-ledFarming,FoodandEnvironmentsupportprogrammefortheLevelsCatchment
B.2 Local Government and Non-Governmental Organisations in the Catchment should cometogether under the auspices of the Catchment Partnership to agree the local outcomes thatfarmingandagri-environmentsupportshoulddeliver.
Amongthemultiplebenefitsandecosystemservicesthatshouldbeprioritisedare,wesuggest,natural flood management, ecologically connected and distinctive landscapes, strongbioregional patterns of supply and consumption, and reduced food poverty28. We favourfunding agreements that specify the outcomes to be delivered (giving flexibility to recipientshowtheydothisandpromotinglocalknowledgeandinnovation)ratherthanbyenforcing‘top-down’prescriptions.
Governmentsupportforfoodproducedtothehigheststandards
B.3 Governmentshoulddomoretoencouragethesupplyoffoodanddrinkthatisproducedtohighenvironmental,nutritionalandwelfarestandards.Specifically,itshouldtakeamoreactiveroleinsettingfoodlabellingstandardscoveringnutrition,provenanceandproductionmethods.
GovernmentshouldgivegreaterpowerstotheGroceriesCodeAdjudicatortoensureequitableaccessbysmallUKfarmbusinessestothemultipleretailers.
It should set targets for public procurement (by bodies such as theNHS, schools andArmedForces)offoodmeetinghighUKstandards.
28Foodpovertyisdefinedastheinabilitytoobtainfoodthatisbothnutritiousandaffordable.
ReimaginingtheLevels–MakingtheConnections
18
C.Communityrepresentationonissuesaffectingtheenvironment,landandwaterThis project has identified a gap between the organisations making decisions about how theCatchment,itslandandwaterarebeingmanagedandthecitizensinwhosenamethesedecisionsaremade.Manycommunityorganisationsandindividualsarekeentohavetheirsaybutfeelexcludedbythe technical language and what they see as closed decision-making processes dominated bylandowningandnatureconservationvoices.
This issuehasbeen identified inotherpolicyareas,suchasthecommissioningandhealthandsocialcareservices.Heretheconceptof‘knowledgeco-production’isbeingusedtodeliverpublicservicesinanequalandreciprocalrelationshipbetweenprofessionalserviceprovidersandthepeopleusingandbenefitingfromtheseservices.ThesameapproachshouldbeexploredintheCatchment.
Toovercomethebarriers,thereneedstobea‘meetinginthemiddle’,withcommunityorganisationsbecomingbetterinformedandabletorepresenttheviewsofcitizens,anddecision-makingbodiesliketheSRAgiving localpeopleagenuinerole inshaping itsprioritiesandplans. Wesuggest that threestepsarerequiredtodothis.
Networkingandco-ordination
C.1 Community organisations in Somerset should improve the networks of communication anddialogue between citizen groups, particularly between rural and urban communities. Agrassroots-drivenprocessshouldbefacilitatedtoenableco-ordinationandjointlobbying.ThemodeladvocatedbyCitizensUK(http://www.citizensuk.org)shouldbeexamined.
For itspart, theReimagining the LevelsGroupwill explore thepotential for a ‘Friendsof theLevels’ organisations to champion the communities and environment of the Levels in publicpolicy.
Sensitizationandinformationsharing
C.2 The SRA, together with the Catchment Partnership, should accept their responsibility forimprovingpublicunderstandingofthe issuesandsolutionssurroundingclimatechange, landmanagementandflooding.
Theyshoulddevelopandmaintainaprogrammeofdisseminatingknowledge in formatsthatareaccessibletoordinarypeople. Aswellaspublishinginformationontheinternet,‘pop-up’exhibits should periodically be used to take information to public spaces such as libraries,communitycentresandvillagehalls.
We would also urge other bodies such as the Environment Agency and the conservationcharitiesthatmanagelandtodothesame.
Annex6.4
ReimaginingtheLevels–MakingtheConnections
19
Representationandaccountability
WehavealreadyrecommendedthattheSRA’sconstitutionshouldprovideforlocally-electedmembers(RecommendationA.2).Inaddition,wemakethefollowingrecommendationonhowtheSRAshouldgoaboutitsbusiness.
C.3 TheSRA,andotherpublicbodiesinfluencinglandandwatermanagementintheCatchmentsuchastheCatchmentPartnership,shouldactivelyencourageparticipationbycommunitiesandcitizensintheirdecision-makingprocesses.Thisshouldinvolvedialogueatthepolicyformulationstage,asisincreasinglybeingdoneinthehealthandsocialcaresectorsusingparticipatoryconceptssuchas‘co-production’29and‘citizens’juries’,ratherthansimplyconsultationonpreferredoptions.
TheSRAanditspartnersshouldalsoconsiderhowvolunteerworkbylocalresidents,suchasthroughthemanagementormonitoringofpublicinfrastructureorcitizenscienceprojects,couldbeusedtogivecommunitiesastrongerstakeinaddressingthelandandwaterchallengesthattheCatchmentfaces.
29Seethereferenceto‘knowledgeco-production’atthebottomofPage4andalsoSection6.4oftheTechnicalAnnex.
ReimaginingtheLevels–MakingtheConnections
20
SourcesandInspirations
Thefollowingpublicationsmaybeofinteresttoanyonewhoisinterestedtoexploremoreaboutsomeoftheconceptsandissuesraisedinthisreport.
§ AllenP,FrenchC,HopkinsonL,JamesP(2016).ZeroCarbonBritain–Makingithappen.Initialfindings.TheCentreforAlternativeTechnology.http://zerocarbonbritain.org/en/making-it-happen
§ HarveyG(2016).GrassFedNation:Gettingbackthefoodwedeserve.IconBooks.ISBN978-1-78578-076-9
§ HelmD(2016).BritishAgriculturalPolicyafterBREXIT.NaturalCapitalNetwork–Paper5.1stSeptember2016.www.dieterhelm.co.uk/assets/secure/.../British-Agricultural-Policy-after-BREXIT.pdf
§ HouseofCommonsEnvironmentalAuditCommittee(2016).Inquiryintosoilhealth.TheCommittee’sreportonSoilHealth(HC180published2June2016)andtheGovernment’sresponse(HC650,published13September2016).http://www.parliament.uk/business/committees/committees-a-z/commons-select/environmental-audit-committee/inquiries/parliament-2015/soil-health/
§ LUC(2001).AFuturewhenitRains.TheParrettCatchmentManagementStrategy.ReportfortheParrettCatchmentManagementPartnership.
§ NewEconomicsFoundation(2008).Co-production.AManifestoforgrowingthecoreeconomy.ISBN987-1-904882-32-9.http://b.3cdn.net/nefoundation/5abec531b2a775dc8d_qjm6bqzpt.pdf
§ ScottCatoM(2012).TheBioregionalEconomy:Land,LibertyandthePursuitofHappiness.ISBN:978-0-41550-082-1http://www.greeneconomist.org/files/greeneconomist/general/1The_Bioregional_Economy_discount_flyer.pdf
§ SEPA(2015.)NaturalFloodManagementHandbook.PublishedbytheScottishEnvironmentalProtectionAgency.ISBN:978-0-85759-024-4https://www.sepa.org.uk/media/163560/sepa-natural-flood-management-handbook1.pdf
§ WilliamsM(1970).TheDrainingoftheSomersetLevels.CambridgeUniversityPress.pp.8–9.ISBN0-521-07486-X.