Agenda Item No______10______
Development of the North Norfolk Integrated Approach to Coastal Management
Summary:
Conclusions:
The Council is embarking on developing an integrated
approach to coastal management. The approach will
involve developing appropriate ways of managing the
coast with reference to the communities’ needs, coastal
processes, policy context and the availability of funding.
The approach will offer improved coastal information,
development of funding opportunities and
implementation of a broad spectrum of initiatives and
schemes for managing the coast across the frontage.
The coast is a priority for this Council and it is vital that
an integrated coastal approach is adopted.
The approach will recognise the importance of
protecting the coastline, where possible, and will seek to
realise the resources to achieve this. It will also develop
tools and methods to assist communities affected by
coastal change and will seek to sustain and manage
coastal infrastructure.
The approach will not be
confined by a boundary, but will be guided by the issues
faced by our coastal communities.
The integrated coastal approach will be delivered
through capital and revenue coast protection works,
partnership funding initiatives, implementation of the
Shoreline Management Plan Action Plans, development
of adaptive management measures and long term
infrastructure planning, all within the context of wider
coastal issues.
Throughout all the work streams, effective stakeholder
engagement will be essential; the Coastal Issues Forum
will be instrumental in achieving this as well as the
establishment of web based ‘Coastal Hub’. Where
required further specific engagement activities will be
undertaken.
Recommendations:
1. That the integrated approach to coastal
management, in particular the work schemes set out
in Table 1 of this report be endorsed.
2. That the remaining unallocated coastal Pathfinder
budget (approximately £65,000 revenue) and
receipts including the Coastal Erosion Assistance
Grant (£60,000 capital) and any income from
successful Pathfinder replacement housing are
incorporated into a new integrated coastal budget
for the purpose of funding specific coastal projects
and resources in line with the integrated approach.
3. That the allocation of the integrated coastal
budget is delegated to the Chief Executive in
consultation with the Coastal Portfolio Holder.
Cabinet Member(s)
Contact Officer:
Cllr. A. Fitch-Tillett
Rob Goodliffe - 01263 516321
Rob.Goodliffe@north-norfolk.gov.uk
1.
Introduction
1.1
Directed by the corporate priorities, the Council is now moving towards a new
integrated approach to coastal management. The approach will be informed
by the policies and actions of the Shoreline Management Plans (SMPs) and
will develop funding and tools to assist the long-term management of the
coast. The integrated approach will be guided by the Coastal Management
Board and Coastal Issues Forum and information will be made available
though the ongoing development of a web based ‘Coastal Hub’.
1.2
This report outlines the current position regarding the SMP’s, identifies
objectives of the forthcoming Cromer to Winterton Management Plan,
considers the scope of Integrated Coastal Zone Management (ICZM) and
proposes the core streams of work required for the new coastal approach.
2.
Coast protection, management strategy and policy
2.1
Shoreline Management Plans
2.1.1
In November 2011, Cabinet approved the adoption of SMP6 (Kelling to
Lowestoft Ness). This has now been adopted by our partner authorities,
Waveney District Council and Great Yarmouth Borough Council and is
progressing through the final approval process with the Environment
Agency. Alongside the adopted SMP5 (North Norfolk) these documents
provide the policy basis for the management of the flood and coastal
defences along our coastal frontage.
2.1.2
The action plans which are incorporated within the SMP’s are living
documents and set out how the policies are to be delivered. The actions
have many elements which link to the priorities within the Corporate Plan.
2.2
2.2.1
Cromer to Winterton Management Plan
A key action from SMP6 is the completion of the Cromer to Winterton
Management Plan. This will examine the SMP policy approaches in the
light of coastal process modelling and further examine the economic basis
and funding framework for future management. A key outcome of this
piece of work is to identify schemes for defending stretches of coast
through maximising the benefits of the existing assets. The management
plan will seek to provide greater understanding and deliver the following:
a) Future predications of coastal erosion and sediment transfer, under
different policy scenarios (current defence and SMP proposals). For
example, this will examine the impact on coastal processes of
maintaining/creating headlands/promontories such as Bacton Gas
Terminal or Overstrand.
b) Given the results of the modelling of the scenarios, examine the costs and
benefits of the policy options, considering costs across the SMP frontage,
taking a full account of the economic impacts and costs of social
mitigation arising from a Managed Realignment policy.
c) Identify gaps in funding for schemes to assess the feasibility of the
partnership funding approach, if schemes are technically feasible and
down-drift impacts are accounted for.
d) Inform coastal management policy for this stretch of coast and feed into
any future review of the SMP.
e) Provide action plans and budgets obtaining the best return from existing
defence assets.
2.2.2
The study will not change the policies of SMP6 nor the erosion epochs,
but may inform future reviews. It will provide essential information to
assist in directing investment across the district’s coast protection assets
and identify key areas where adaptive management measures will need
to be planned.
3.
Integrated Coastal Zone Management
3.1
National Context
3.1.1
Defra defines ICZM as “adopting a joined-up approach to the
management of the many different interests in coastal areas – both on
land and at sea”. This definition is very broad and it is recognised that the
coast is extremely complex and that different coastal areas require
different approaches. With this in mind it is not beneficial to define the
exact area for integrated coastal management, but draw on local
characteristics to inform the approach.
3.1.2
Defra guidelines include the following principle “to develop a flexible
management approach, which supports local initiatives and solutions to
address local circumstances, within the overall regulatory framework”.
Therefore North Norfolk has the scope to develop an integrated approach
to meet the specific needs of our coast within the context of the SMP’s
and the powers of the Council.
3.1.3
The Marine Management Organisation was established as part of the
national ICZM approach and is responsible for developing, co-ordinating
and overseeing marine plans, policies and procedures. These overlap the
terrestrial policies, plans and procedures at the high and low water tidal
zones and are relevant at a local level.
3.2
Local Context
3.2.1
The potential range of coastal issues and interests is so vast that it is
necessary from an implementation viewpoint to define the scope of the
approach to be taken in North Norfolk.
3.2.2
North Norfolk District Council is a maritime local authority with most
settlements having some link to the coast. All services provided by the
Council are influenced by the coastline in some way. Therefore the broad
sense of an integrated approach is already incorporated into the fabric of
the Council’s activities; however this is not necessarily the case with other
organisations with which we work. The development of the integrated
coastal approach will not replace any of the Council’s functions, but will
seek to ensure that all the services and infrastructure that are impacted
upon by the coast are aligned to common objectives; recognising,
complementing and supporting coastal protection schemes and coastal
change initiatives. Where required the impetus will be to work together to
find solutions to the challenges which the coast presents and provide
tools and resources to coastal communities to enable them to continue to
thrive in the coastal environment.
3.2.3
There are many other organisations which are involved in providing
services or delivering businesses along our coastline. County Highways
and Anglian Water for example provide vital infrastructure for homes and
business. Businesses including hotels, shops and caravan parks are
important economic drivers, providing jobs and supporting the tourism
industry. Key national infrastructure such as the Bacton interconnector
and offshore energy sector depends on and has impacts on the coast.
The integrated approach will seek to ensure that all are aware of the
coastline and challenges and opportunities that this presents. The
approach must ensure by forward planning and the development of
support initiatives, that investment is maintained and local communities do
not become disadvantaged or blighted by disinvestment but remain
vibrant and sustainable.
3.2.4
A key area of local interest is the defence of settlements from erosion and
flooding. The Council is committed to providing protection where it can,
but this is limited by funding and the physical coastal processes in action.
Integrated coastal management will seek to manage the impacts of
coastal change on our communities by identifying the necessary funding
to achieve an appropriate mix of coast protection and adaptive
management measures.
The aim is to ensure that communities
understand coastal processes and coastal decision making and have the
opportunity to be involved in the management solutions which will enable
them to remain sustainable.
4.
Stakeholder engagement
4.1
The communities of North Norfolk already have a broad coastal knowledge. It
is essential that this is maintained and enhanced by appropriate community
engagement. Details of policies, management information and issues which
affect the coast need to be freely and easily accessible to the members of the
public. Likewise the development of tools, plans and methods of adaptation
must involve coastal stakeholders and be deployed appropriately if they are to
succeed.
4.2
Effective stakeholder engagement is critical to the success of this approach
and this depends on establishing appropriate mechanisms and having
adequate resources. Key communications will be delivered through the
following means:
4.2.1
A ‘Coastal Hub’ will be set up within the NNDC web pages. Information,
updates and resources will be easily accessible to all. Information on
these pages will be created either directly by NNDC or provided by linking
to sites hosted by others. This resource will be live and will develop as
the new coastal approach is developed and implemented. The hub will
act as a public resource to facilitate ‘coastal literacy’ and the educational
resource within these pages will be reviewed and developed to assist in
delivering a wider understanding of the coast. The resource will also
provide a valuable first port of call for coastal enquires which occupy a
noticeable proportion of staff time.
4.2.2
The Coastal Issues Forum (CIF) will become a key method of engaging
with communities. It is proposed that the membership of this group is
expanded to facilitate dialogue between representatives of coastal
communities and key organisations with coastal responsibilities. The
Forum will become the key basis for community engagement, but may be
supplemented with other activities with wider audiences where
appropriate. The format of the Forum will be kept flexible, thus allowing
the potential for site visits, workshops, presentations or any other activity
which benefits the understanding and communication of coastal issues.
4.2.3
Local coastal groups will be invited to the CIF and such groups will be
provided with the opportunity to feed in ideas. Where possible guidance
will be provided to these groups to help them develop their own projects,
and where possible integrate these into the overall coastal approach for
the District.
4.2.4
In North Norfolk various ‘coastal groups’ exist and have previously been
effective at campaigning for changes in the SMP’s prior to their adoption
and in widespread lobbying. These groups can provide a valuable
resource and effort may be needed to maintain and enhance the
contribution that they make. It may be beneficial in some circumstances
to encourage further representation to ensure that all communities have
an appropriate means of involvement. Such representation may comprise
of Parish Councils for locally specific issues, or, other representative
groups for wider topics.
5.
Proposed work streams for the Integrated Coastal Approach.
5.1
Table 1. below draws on the direction from the Corporate Plan alongside the
SMP Action Plans and the previous knowledge gained through coastal
management activities. The table details nine core work streams and
associated activities to begin the development and implementation of an
integrated coastal approach.
Table 1: Proposed Integrated Coastal Management Work streams
Stream
1. Coast
Protection
Revenue
Works
Activity
Outcome
a) Continue with the existing coast Continued investment
protection
revenue
works maintained assets.
programme.
and
well
b) Update the revenue works Directed investment to maximise
programme in the light of the effectiveness and ensure value for
Cromer to Winterton Management money of the coast protection assets.
Plan and the outcomes of funding
investigations.
c) Include information on the
revenue works programme
and
current works on the ‘Coastal Hub’.
Include costs, works descriptions
and photographs.
Improved
awareness
of
the
investment made by NNDC into the
coastal assets, therefore aiding
community
confidence
and
understanding.
d) Incorporate the coast protection Standardises data storage and
and foreshore assets into NNDC’s improvements to business continuity.
corporate asset database and GIS.
2. Coast
Protection and
Coastal Assets
Capital Works
3. Coastal
Awareness
a) Continue implementation of Effective protection of Cromer for the
Cromer Protection Scheme and Pier long term.
Refurbishment.
awareness
of
the
b) Information to be made available Improved
investment made by NNDC into the
on the ‘Coastal Hub’.
coastal assets, therefore aiding
community
confidence
and
understanding.
a) Development of the Coastal Improved communication between
Issues
Forum
as
a
key coastal stakeholders at a local level
communications and engagement and opportunities for community input
into the integrated coastal approach.
mechanism.
b) Establish a web based ‘Coastal Easily accessible, easy to understand,
Hub’ with links to key coastal comprehensive information about all
aspects of the North Norfolk coast.
projects and organisations.
4. Funding
Initiatives
c) Investigations into feasibility of
developing a coastal awareness
education package incorporating a
wide topic area, supported by
coastal partners and incorporated
onto the ‘Coastal Hub’.
a) Investigate future funding options
for revenue and capital coast
protection work.
Improved awareness of coastal issues
in
an
easily
accessible
and
understandable format.
Supporting
educational visits to the area and the
benefits this brings to the participants
and to the local economy.
Ability to plan future coast protection
spend thus providing some certainty to
coastal communities.
b) Investigate how the Coastal Schedule
of
potential
deliverable
Stream
Activity
Outcome
Communities Fund (CCF) is best applications to the CCF and authority
utilised to assist in delivering the to proceed.
integrated coastal approach and
economic development objectives.
c) Options Appraisal of all possible Knowledge of what supplementary
funding opportunities for adaptive funding is possible to enable a wider
debate. Appropriate funding streams
management measures.
identified
and
implementation
programme developed.
5. Shoreline
Management
Plans
6. Adaptive
Management
e) Creation and maintenance of an
integrated coastal budget to be
allocated through the Coastal
Management Board for delivery of
adaptive management.
Initial
balance to be transferred from the
remaining Pathfinder budget and
expected receipts.
a) Implementation and monitoring of
Action Plans of SMP 5 & 6 including
Cromer to Winterton Management
Plan.
Enabling the Council to move forward
with developing the integrated coastal
approach.
b) Understand the programme of
Environment Agency coastal flood
schemes and strategies and the
implications these will have for
communities in North Norfolk.
Ability to feed in needs or
consequences of activities into the
streams
of
integrated
coastal
management.
c) Input into SMP change and
review process.
Phase 1 – a) Investigate and
develop suitable tools or actions to
enable timely demolition of at risk
properties and clear information and
support mechanisms for property
owners.
To include the use of
DEFRA Coastal Erosion Assistance
Grant.
Influence into development of process
to meet with the districts requirements.
Clear procedures, activities and tools
to assist transparent and predictable
decision making and enabling those
effected to plan ahead.
Informs future long term coastal asset
maintenance plan and development of
adaptation and mitigation measures.
Provides planned and transparent
actions to enable SMP delivery and
information to assist with appraising
partnership funding options. Assist
with improving coastal understanding
to inform future reviews.
b) Incorporate existing schemes Wider publication
such as the business grant and available.
loans and Big Society Fund into the
‘Coastal Hub’.
of
assistance
c) Complete the development and Clearer information for those who are
promotion of a coastal properties seeking to purchase or sell properties
Stream
Activity
Outcome
‘buyers and sellers guide’ for use by on the coast. Consistent response to
the public, local agents and coastal property enquiries.
conveyancers and incorporate onto
the ‘Coastal Hub’.
Phase 2 - Develop and appraise the
options for adaption management
measures, including measures for
coastal businesses.
7. Coastal
Infrastructure
Management
Clear direction with community
consensus/understanding. Projects to
bring forward suitable measures which
can be deployed to areas of coast
affected.
Phase 3 – Seek approval for funded Suite of tools and measures which can
suite of adaptive management be implemented as and when required
to
ensure
a
thriving
coastal
measures for implementation.
community.
understanding
of
the
a) Consolidate existing information Detailed
and identify missing data for at risk infrastructure assets at risk.
infrastructure and record using GIS.
b) Open dialog with infrastructure
providers to enable incorporation
into long-term investment and
maintenance plans and ensure
procedures are in place to plan in
advance of infrastructure loss.
Planned continuity of infrastructure,
including measures for protection,
replacement or mitigation when
required.
c) Work with coastal user groups to Community input and ownership of
establish an appropriate planned solutions.
response to infrastructure loss.
8. Economic
Development
d) Ensure existing infrastructure
meets and balances the needs of
coastal users.
a) Support the North Norfolk
Fisheries Local Action Group
(FLAG) in delivering projects from
the £2.4 million funding secured for
the fishing sector.
Well managed infrastructure assets.
Ensure the long-term future of fishing
activities and the sustainable use of
fishery resources
b)
Seek
to
maximise
the Increase investor development in the
opportunities for the district to area via a single access portal.
benefit
from
investment
in
renewable energy development off
the North Norfolk Coast.
c) Support and facilitate the Strengthen the capacity of tourism
establishment of a private sector led businesses to promote the destination
Destination
Management in general.
Organisation (DMO) for the North
Norfolk
coast,
broads
and
countryside to maintain the profile of
the district as a leading tourist
destination within the UK boosting
Stream
Activity
Outcome
levels of employment and income
for the district.
d) Support the further roll-out of the
Coastal Pathfinder and Fishing
Sector Business Loan and Grant
Scheme
and
consider
the
opportunities of extending these
programmes across a larger area.
Re-launch a consolidated scheme
under a single Micro Financing
Scheme aimed at supporting new
business creation.
As part of wider initiatives which will
also assist coastal economic
development:
e) Develop a comprehensive Single access portal for business via
package of support and provide on-line business/investor tool kit.
information to simplify the process
for businesses looking to invest in
North Norfolk.
f) Explore opportunities to work with Increase employment opportunities of
local businesses and identify young people in the district.
funding to support the provision of
apprenticeships, training and work
experience schemes.
g) Work with partners to roll out Improve
BDUK’s £60m Norfolk Broadband facilities.
Initiative across North Norfolk.
broadband
infrastructure
h) Deliver an integrated business Increase the number of business
start-up programme across North births in the area.
Norfolk.
9. Wider
Coastal Issues
a) There are wider topics other than
coastal protection, flooding and
erosion on the North Norfolk coast.
Biodiveristy,
coastal
access,
boating, fishing, surfing, beach
safety, blue flags are a handful of
topics. These where appropriate
will be incorporated into the
integrated coastal approach. It is
intended that updates on key topics
will be presented at the CIF, whilst
‘hot topics’ will feature on the
‘Coastal Hub’. Such topics may
lead to locally specific projects for
resolution of conflicts/issues or for
taking
forward
ideas
and
opportunities.
b) Continue
Government,
Enabling the public, councillors and
officers to obtain relevant information
and be directed to key organisations
and that the needs of different coastal
users are managed to ensure a
balanced outcome for all.
to lobby Central Continued high level awareness of the
departments
and coast and potential future decisions to
Stream
Activity
Outcome
agencies to ensure that ‘the coast’ assist coastal communities.
remains within political view and is
allocated adequate priority and
resource. Streams of work such as
funding and adaptive management
measures outlined above should be
reported back at appropriate times
to encourage government backing
and incorporation into national
processes and policies.
6.
Resource
6.1
Personnel
6.1.1
The coastal team currently comprises of:
•
Coastal Engineer – Full time
•
Assistant Coastal Engineer - Post included in budget but currently
vacant
•
Coastal Communities Project Manager – Fixed term to March 2013
•
Coast and Community Partnership Manager – Full time with many
other non-coastal responsibilities and resource demands.
•
Administration Assistant – Full time for wider coast and communities
team responsibilities.
6.1.2
Integrated coastal management requires a corporate approach and its
success will depend upon resources from across the Council and external
organisations. It is unknown at this stage what resources will be required
to implement the suggested work streams or the interventions which may
arise from them; this will need to be appraised during development.
6.1.3
It is already recognised that the revenue and capital work streams are
under-staffed for the current and forecast commitments, giving rise to
fundamental business continuity risks.
Options for meeting these
resource needs are currently being investigated.
6.1.4
Resources to deliver the work streams outlined in Table 1 will need to be
identified. A range of options will be explored including partnership
working and recruitment.
6.2
Funding
6.2.1
The Cromer capital coast protection scheme is fully externally funded
(subject to final sign off) to approximately £10million. The budget for the
Pier refurbishment has been committed by NNDC to £1.3million.
6.2.2
Future capital coast protection schemes are assessed using a new
partnership funding model. Schemes will be evaluated against national
and local policies, costs, benefits, outcomes and with regard funding
contributions from local government, private enterprises, communities and
other sources (partnership funding element). This mechanism will
potentially enable schemes to be implemented which previously would not
have received any funding. It should be noted that in the context of North
Norfolk, high levels of third party funding are likely to be required to
improve viability of capital schemes funded through this mechanism.
6.2.3
Currently the annual budget for sea defense revenue works is £320,962.
The methodology for calculating central government support for revenue
coastal protection expenditure is currently under review.
6.2.4
The Cromer to Winterton Management Plan is fully funded by the
Environment Agency with supplemental support from the operators at the
Bacton interconnector site. The total cost for this piece of work is
£110,000.
6.2.5
There is currently no existing budget for the development of an integrated
coastal approach. It is recommended that the balance of approximately
£65,000 from Coastal Pathfinder is allocated to a budget for expenditure
associated with the development and implementation of a coastal
approach. This budget can be supplemented with income from related
coastal grants and activities.
6.2.6
A further income of £60,000 (capital) has been granted from the national
Coastal Erosion Assistance Grant Scheme to contribute to the costs of
the now completed demolition of residential dwellings at Beach Road,
Happisburgh. It is recommended that this receipt is transferred to the
proposed integrated coastal budget.
6.2.7
Further income is anticipated from the eventual NNDC share in the value
of plots for replacement properties at Happisburgh (should a planning
application be approved). The receipt was always intended to be
‘recycled’ back towards coastal change initiatives. It is recommended that
any such receipt received from this source should be allocated to the
integrated coastal budget.
6.2.8
Opportunities for further funding will be investigated as part of the new
approach as indicated in Table 1.
7.
Conclusion
7.1
The coast is a priority for this Council and it is vital that an integrated coastal
approach is adopted.
7.2
The approach will recognise the importance of protecting the coastline, where
possible, and will seek to realise the resources to achieve this. It will also
develop tools and methods to assist communities affected by coastal change
and will seek to sustain and manage coastal infrastructure. The approach will
not be confined by a boundary, but will be guided by the issues faced by our
coastal communities.
7.3
The integrated coastal approach will be delivered through capital and revenue
coast protection works, partnership funding initiatives, implementation of the
Shoreline Management Plan Action Plans, development of adaptive
management measures and long term infrastructure planning, all within the
context of wider coastal issues.
7.4
Throughout all the work streams, effective stakeholder engagement will be
essential; the Coastal Issues Forum will be instrumental in achieving this as
well as the establishment of web based ‘Coastal Hub’. Where required further
specific engagement activities will be undertaken.
8.
Implications and Risks
8.1
The integrated approach to coastal management will develop a pragmatic
way of managing the coast, directing the limited resources available to
achieve the best outcomes for the district. Through such an approach it is
anticipated that public expectations are not raised beyond what is achievable
and that the approach taken is understood and where possible supported.
8.2
There are risks within the coastal portfolio regarding business continuity and
loss of detailed coastal knowledge due to loss of staff and information
storage. This must be considered to ensure that all proposed streams
continue to move forwards in support of the corporate objectives.
9.
Financial Implications and Risks
9.1
At this stage the financial implications and risks of implementing the
integrated approach to coastal management are not certain. All current
activities are funded, however future development and implementation will be
dependant on securing future funding.
9.2
The Pathfinder funds were provided by Defra for the implementation of the
objectives of the Pathfinder. Very limited conditions were imposed and the
ring fencing on the funding was lifted by government. It is unlikely that Defra
will seek any unspent funds. The funds for the development of the integrated
approach are consistent with the objectives of Pathfinder and are the natural
successor. The creation of the integrated coastal budget and its objectives
will be reported to Defra as and when required.
10.
Sustainability
10.1
The Integrated Coastal Approach seeks to deliver sustainable management
across our coastline. There is a need for the schemes, tools and methods
developed to have a long term and lasting affect to enable communities and
individuals to be able to make sound decisions in locations which may have a
degree of uncertainty due to coastal change through flooding or erosion.
10.2
The policy basis in the Shoreline Management Plans were scrutinized with
respect to the environment in their development.
11.
Equality and Diversity
11.1
At this time no formal Equality Impact Assessment has been carried out on
the integrated approach to coastal management. This report set out the
broad principles of the development of the work streams as a basis enable
further details to be investigated and developed. As these details are
developed and before new initiatives are implemented they will be subject to
appropriate assessment to address the Council’s duties with regard to
equality.
12.
Section 17 Crime and Disorder considerations
12.1
There are no Section 17 Crime and Disorder considerations at this time. The
Council’s duties to crime and disorder will be appropriately considered as
initiatives are developed.