Cabinet
28 November 2011
Agenda Item No______14_______
NORTH NORFOLK SHORELINE MANAGEMENT PLAN: Kelling to Lowestoft Ness
Summary:
Conclusions:
This Shoreline Management Plan (SMP6) covers the frontage from
Kelling to Lowestoft Ness, thus including frontages in Great Yarmouth
Borough Council and Waveney District Council. This plan was first
subject to public consultation in 2004/5 and as a result of considerable
public concern the plan has not yet been adopted. Major amendments
were made to the plan in 2007 to reflect these concerns and a revised
version was subject to consultation in 2009, with the version now
before Cabinet finalised in November 2010.
Members may consider that approval, (and subsequent
adoption the SMP6 subject to the partnering authorities’
adoption of the full document) will provide a strategic overview
for coastal defence planning to feed into a more holistic
approach to coastal planning which takes account of social,
economic and environmental objectives.
The SMP Action Plan initiates a number of studies on coastal
processes and economic impacts which are required before
coastal management policy changes are implemented. The
Council will take forward a new approach to coast
management, under the framework of an Integrated Coastal
Management Plan which enables a holistic approach to be
taken to coastal management, taking into account economic,
social and environmental objectives.
Within the overall context of the Shoreline Management Plan,
the Council will continue to maintain sea defences in locations
which have previously been defended and where it is cost
effective, sustainable and practicable to do so. This approach
will ensure that investment can continue in coastal areas; that
infrastructure and access for coastal users is maintained; and
that the coast remains attractive to tourist and visitors. Overall
this will safeguard the sustainability and vitality of coastal
communities in North Norfolk.
Recommendations:
1. That the provisions in SMP6 relating to North Norfolk District
Councils Coast Protection responsibility (Kelling Hard to Cart
Gap) be approved and that delegated authority be given to the
Cabinet Portfolio Holder for the Coast and the Chief Executive to
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28 November 2011
adopt the full SMP6 following its approval by Great Yarmouth
Borough Council, Waveney District Council and the Environment
Agency.
2. That an Integrated Coastal Management Plan process be
commenced to be overseen by the Council’s Coastal
Management Board.
Cabinet member(s):
Ward(s) affected: All wards
All
Contact Officer, telephone number,
and e-mail:
1.
1.1
Jill Fisher, Coast, Localities and Assets Manager,
01263 516037, Jill.Fisher@north-norfolk.gov.uk
Introduction
This Shoreline Management Plan (SMP6) covers the frontage from Kelling to Lowestoft
Ness, thus including frontages in Great Yarmouth Borough Council and Waveney District
Council. This plan was first subject to public consultation in 2004/5 and as a result of
considerable public concern the plan has not yet been adopted. Major amendments
were made to the plan in 2007 to reflect these concerns and a revised version was
subject to consultation in 2009, with the version now before Cabinet finalized in
November 2010.
2.
Background
2.1.
NNDC is a coastal protection authority within the terms of the 1949 Coast Protection Act
with permissive powers to carry out works. Operating Authorities are funded to
undertake maintenance works through the revenue support grant. Major capital schemes
are funded by Defra via the Environment Agency through a grant application system
which examines the schemes to ensure they are technically sound, environmentally and
socially acceptable and economically justifiable.
2.2.
In 1996 Council adopted the two Shoreline Management Plans that cover its
administrative frontage. These were the Snettisham to Sheringham SMP (Sub-cell 3a)
and the Sheringham to Lowestoft SMP (Sub-cell 3b). In 2002, in advance of the
preparation of new guidance from Defra, a review was commenced of SMP 3b for a
modified frontage, Kelling to Lowestoft. That revised Plan appeared in draft in 2004 to
much public disquiet and concern. Waveney District Council adopted the original plan in
2007. Subsequently an amended version (similar to North Norfolk’s – see below) was
approved by Great Yarmouth Borough Council.
2.3.
This Council’s Cabinet agreed at its meeting of September 2007 that a revised SMP is
accepted conditionally, with the report published on the Council’s website and that the
Government be urged to include a wider economic appraisal, implement Integrated
Coastal Zone Management and undertake research into the effects of intermittent
defences.
2.4
The North Norfolk Core Strategy was adopted in September 2008 and includes policies
on coastal management, on the restriction of new development in areas which may be at
risk of coastal erosion and provides mechanisms for “roll-back” to enable development to
be provided in alternative locations away from the erosion areas. The LDF Proposals
Maps identify the 100 year coast erosion risk area shown in the SMP.
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28 November 2011
2.5.
In 2009, a revised version, and a Strategic Environmental Assessment were subject to
consultation. Since that time, the District Council has been successful in bidding for a
£3million Coastal Pathfinder project which has examined ways to address the
detrimental impacts of coastal erosion.
2.6
The Anglian (Eastern) Transitional Regional Flood and Coastal Committee adopted the
finalized 2010 version at its meeting on 15 April 2011.
3.
Shoreline Management Plans
3.1
Shoreline Management Plans are non-statutory plans for coastal defence management
planning. They cover an area or “sediment cell”: a length of coastline which is relatively
self-contained as far as movement of sediment is concerned. The aim of an SMP is to
provide a strategic assessment of the risks associated with coastal erosion. The
objectives of the SMP are as follows:
•
•
•
•
•
•
•
to define, in general terms, the risks to people and the developed, natural and
historic environment, within the area covered by this SMP, over the next century.
to identify sustainable policy options for managing those risks.
to identify the consequences of implementing these policy options.
to set out procedures for monitoring the effectiveness of the SMP policy options.
to identify areas that the SMP cannot address when following current guidelines.
to inform others so that future land use and development of the shoreline can take
due account of the risks and SMP policy options.
to comply with international and national nature conservation legislation and
biodiversity obligations
3.2
The SMP provides the scientific basis for future planning. It has also provided the basis
for planning policy decisions about the location of new development, based on the
precautionary principle. The coast erosion risk areas have been included in land
searches and information in the North Norfolk Local Plan, Deposit Draft, dated July
1995 so that potential house purchasers are aware of future risks. The SMP6 erosion
risk areas were published in the LDF Core Strategy Proposals Map when adopted in
September 2008.
3.3.
This SMP was one of the first to be prepared and since then, much has been learned
about the process of agreeing SMPs and the issues of social justice for those affected by
changes to policy. The SMP states that it must remain flexible to adapt to changes in
legislation, politics and social attitudes and notes that “there may be ways, at a more
local level, to provide support in the form of partial, indirect, or in-kind compensation to
help those people affect to move away from areas at risk” (1.1.1.) It also notes that
“there are important human issues associated with policies such as managed
realignment and no active intervention, even where this has been the policy previously”
so recommends the types of investigations that will need to be undertaken before the
long term policy options can be implemented.
3.4.
Moreover, the Environment Agency is in the process of preparing a procedure for the
amendment of SMPs without a complete review. The Environment Agency will require
the Regional Coastal Groups (officers of groups of local authorities and the Environment
Agency) to prepare the necessary procedures, in partnership with others, leaving
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28 November 2011
freedom to develop mechanisms that suit local needs but within the context of criteria
including the following:
ƒ Require updates to SMPs, whether technical, implementation or policy, to be
reflected in or alongside the relevant SMP as soon as is practicably possible, but
within one month of the change occurring;
ƒ Enable annual (or more frequent if necessary) reporting of changes to SMPs to the
Environment Agency, RFCCs, Coastal Forum, Natural England or elsewhere as
required.
ƒ To be agreed with all relevant stakeholders, including the Environment Agency and
Natural England;
ƒ Take account of Habitat Regulations so that any change to an SMP which may have
an adverse impact on a European designated site is accompanied by the necessary
Appropriate Assessment;
ƒ Feed in to management of National Coastal Erosion Risk Mapping information to
ensure that NCERM data is updated with changes to SMPs.
Additionally, Defra are undertaking an evaluation of SMPs to ascertain whether
the overall initiative achieved the national policy objectives set out in the Defra
2006 guidance.
4.
The Kelling to Lowestoft Ness Shoreline Management Plan (November 2010)
4.1
The revised SMP is a large document which considers in detail coastal evolution based
on data from 2003. It includes an appraisal of the condition of the coast divided into 24
policy units (13 in NNDC). The Non-Technical Summary is provided at Appendix M.
Members should note the Action Plan for the following policy units in particular:
4.3.
5.
6.06
Overstrand
Maintain defences in the absence of an adaptation strategy
6.08
Mundesley
Maintain/refurbish defences. A Project Appraisal Report will
need to be developed in order to progress the works
6.066.12
Mundesley to
Cart Gap
Maintain defences in the absence of an adaptation strategy
The SMP includes an Action Plan which is a live document which will be updated as
issues progress and more information becomes available. The SMP requires, as part of
the Action Plan, a number of further studies before any change in policy is instigated. In
particular this includes
•
a technical study to consider coastal processes along the coast and how the
defence of intermittent frontages affects sustainability.
•
a study to ensure that the social and economic consequences of management
decisions are fully taken into account before any policy changes are
implemented.
•
An evaluation of the Coastal Pathfinder projects to explore opportunities
(including funding) to facilitate adaptation to coastal change
Integrated Coastal Zone Management Approach
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5.1
28 November 2011
The Council sets out in its Corporate Plan, its approach to the Coast where the priority is
for “A district where the beautiful natural environment and built heritage is valued and
protected for future generations and where the coastline is defended against erosion
wherever practicable” This will be achieved through the following actions:
•
•
•
•
•
Draw together the main strands of coastal management activity into an
Integrated Coastal Zone Management Plan (ICZM)
Influence Central Government policy on funding coastal defence
Review and maximise funding opportunities
Review the implied obligations in the Shoreline Management Plan and the
status of coastline defence management designations.
Consider options for local fund raising for coastal defence
5.2.
Following on from these priorities, the Council will take forward a new approach to coast
management, under the framework of an Integrated Coastal Management Plan which
enables a holistic approach to be taken to coastal management, taking into account
economic, social and environmental objectives.
5.1.
Within the context of the Shoreline Management Plan, the Council will continue to
maintain sea defences in locations which have previously been defended and where it is
cost effective, sustainable and practicable to do so.
5.3.
This approach will ensure that investment can continue in coastal areas; that
infrastructure and access for coastal users is maintained; and that the coast remains
attractive to tourist and visitors. Overall this will safeguard the sustainability and vitality of
coastal communities in North Norfolk.
6.
SMP Sign off process
6.1
The amended version, in addition to a revised approach by the current Government
which places more emphasis on localism, local solutions and neighbourhood planning,
may be considered acceptable to be adopted as a strategic overview and evidence base
for coast defence management planning.
6.2.
The SMP is a joint Plan ‘owned’ by all the partner organizations and each authority will
need to adopt this final version at its appropriate committee. Once it has been adopted
by all the partners it will be recommended for approval to the Regional Director of the
Environment Agency.
6.3
The formal process of adopting the document has seen the partner authorities’ progress
at differing timescales often allied to specific issues on individual frontages and their
internal processes. This suggests a process of local adoption subject to later agreement
by the partner organizations.
7.
Finance
7.1
Adoption of the SMP does not make assumptions about funding for the policy proposals
in the plan. A separate process of grant applications for schemes is required to be
undertaken for capital schemes. Maintenance of existing defences is currently funded
through the revenue budget as an earmarked portion of the annual revenue support
grant
8.
Risk
8.1
There are a number of risks associated with the SMP, both in adoption or in continued
non-adoption. The SMP includes a policy approach that, in the longer term, may allow
for some parts of the coastline to erode. However, the SMP recognises the impact of
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28 November 2011
coastal change on communities and individuals and recommends further work to be
done before any change in policy away from maintaining defences. The approach of the
Council is to work with coastal communities in terms of the preparation of an ICZM Plan.
8.2
There is a risk that partner authorities may fail to adopt the SMP6 in its current format
which might lead to further work being required to refine the document. These should be
balanced against the risk of not adopting this SMP, whereby non adoption would lead to
continued uncertainty for communities as well as the great risk that capital schemes
which are required to conform to an adopted SMP may not be funded.
9.
Conclusions
9.1.
Members may consider that approval, (and subsequent adoption the SMP6 subject to
the partnering authorities’ adoption of the full document) will provide a strategic overview
for coastal defence planning to feed into a more holistic approach to coastal planning
which takes account of social, economic and environmental objectives.
The SMP Action Plan initiates a number of studies on coastal processes and economic
impacts which are required before coastal management policy changes are
implemented. The Council will take forward a new approach to coast management,
under the framework of an Integrated Coastal Management Plan which enables a holistic
approach to be taken to coastal management, taking into account economic, social and
environmental objectives.
Within the overall context of the Shoreline Management Plan, the Council will continue
to maintain sea defences in locations which have previously been defended and where it
is cost effective, sustainable and practicable to do so. This approach will ensure that
investment can continue in coastal areas; that infrastructure and access for coastal
users is maintained; and that the coast remains attractive to tourist and visitors. Overall
this will safeguard the sustainability and vitality of coastal communities in North Norfolk.
Cabinet
28 November 2011