FRaME Review and Evaluation of Alternative Land Use ......LTV Lange termijn visie Long term vision...

FRaME Review and Evaluation of

Alternative Land Use Strategies in Estuaries

‘Flood Risk Management in Estuaries: Sustainable New Land Use in Flood Control Areas’

FRaME Review and Evaluation of

Alternative Land Use Strategies in Estuaries

‘Flood Risk Management in Estuaries: Sustainable New Land Use in Flood Control Areas’

FRaME – Review and Evaluation of Alternative Land Use Strategies in Estuaries

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Name FRaME – Review and Evaluation of Alternative Land Use Strategies in Estuaries

Lead Partner DLG - Government Service for Land and Water Management Soresma nv, Halcrow Group Ltd. Contractant

Authors Kristof Van Stichelen, Marc Leysen, Richard Ashby-Crane Release Jan Parys Date 6th of February 2004 Number of pages 75 Copyright © All rights reserved. No part of this publication may be

reproduced, stored or transmitted in any form, or by any means, electronic, mechanical, photocopying, recording or otherwise, without the prior permission of the lead partner of this project.


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Content Glossary and abbreviations ............................................................................ 5 Summary in English ........................................................................................ 7 Samenvatting / Summary in Dutch ................................................................. 8

1. Previous activities ........................................................................................... 9 2. General information main review .................................................................. 11 3. Case: Recreative development at Aakvlaai area (NL) ................................. 14

3.1 General case description 3,7,20................................................................. 14 3.2. Objective aspects................................................................................... 16 3.3. Legal and governance aspects.............................................................. 17 3.4. Organisational, technical and management aspects ............................ 18 3.5. Communication aspects......................................................................... 20 3.6. Societal, economic and ecological consequences................................ 20 3.7. Intervention aspects ............................................................................... 21 3.8. Were the objectives achieved ? 1,2,3,4,7,9,16,20 .......................................... 22 3.9. Summary and lessons learned .............................................................. 22 3.10. Contacts and information: .................................................................... 24

4. Case: Ad hoc new land use at Sieperda-schor (NL-B) ................................ 26 4.1. General case description 2, 4 .................................................................. 26 4.2. Objective aspects................................................................................... 27 4.3. Legal and governance aspects.............................................................. 27 4.4. Organisational, technical and management aspects ............................ 29 4.5. Communication aspects......................................................................... 30 4.6. Societal, economic and ecological aspects........................................... 30 4.7. Intervention aspects ............................................................................... 32 4.8. Were the objectives achieved ? 2,4,5,6,7,9,10,14 .......................................... 32 4.9. Summary and lessons learned .............................................................. 33 4.10. Contacts and information..................................................................... 34

5. Case: Baie des Veys..................................................................................... 36 5.1. General case description ....................................................................... 36 5.2. Objective aspects................................................................................... 38 5.3. Legal and governance aspects.............................................................. 39 5.4. Organisational, technical and management aspects ............................ 40 5.5. Communication aspects......................................................................... 42 5.6. Societal, economic and ecological consequences................................ 42 5.7. Intervention aspects ............................................................................... 43 5.8. Were the objectives achieved ?............................................................. 44 5.9. Summary and lessons learned .............................................................. 44 5.10. Contacts and information: .................................................................... 45

6. Case: Flood bank setback of Norfolk Broads (UK) ...................................... 47 6.1. General case description ....................................................................... 47 6.2. Objective aspects................................................................................... 49 6.3. Legal and governance aspects.............................................................. 49 6.4. Organisational, technical and management aspects ............................ 52 6.5. Communication aspects......................................................................... 54 6.6. Societal, economic and ecological aspects........................................... 55 6.7. Intervention aspects ............................................................................... 55 6.8. Were the objectives achieved ?............................................................. 56


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6.9. Summary and lessons learned .............................................................. 56 6.10. Contacts and information: .................................................................... 57

7. Case: Paull Holme Strays in Humber Estuary (UK) ..................................... 58 7.1. General case description ....................................................................... 58 7.2. Objective aspects................................................................................... 59 7.3. Legal and governance aspects.............................................................. 61 7.4. Organisational, technical and management aspects ............................ 61 7.5. Communication aspects......................................................................... 64 7.6. Societal, economic and ecological aspects........................................... 64 7.7. Intervention aspects ............................................................................... 65 7.8. Were the objectives achieved ?............................................................. 66 7.9. Summary and lessons learned .............................................................. 66 7.10. Contacts and information: .................................................................... 67

8. Main review conclusions ............................................................................... 68 8.1 Introduction.............................................................................................. 68 General overall observations ........................................................................ 68 8.2 Individual lessons learned....................................................................... 69 8.3 Overall lessons learned .......................................................................... 73


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Glossary and abbreviations Abbreviation Meaning in Dutch Meaning in English AMINAL Administratie Milieu, Natuur,

Land- en Waterbeheer Environment, nature, land- and water management administration

AROHM Administratie Ruimtelijke Ordening, Huisvesting en Monumenten en landschappen

Environmental planning, housing, monuments and landscape administration

AWZ Administratie Waterwegen en Zeewezen

Waterways and marine affairs administration

B België Belgium B.Vl.R. Besluit van de Vlaamse

Regering Implementing order of the Flemish Government

COM communicatie Communication DTM Digitaal terreinmodel Digital terrain model F Frankrijk France FCA Gecontroleerd

overstromingsgebied (GOG)

Flood control area

GEIS Algemene Milieu Impact Studie (AMIS)

General environmental impact study

GGG Gecontroleerd gereduceerd getijdengebied

FCA with reduced tidal influence

GOM Gewestelijke ontwikkelingsmaatschappij

Regional developmental company

IN Instituut voor Natuurbehoud Institute for nature conservation

KPI Essentiële performantieindicator Key performance indicator

KUL Katholieke Universiteit Leuven Catholic University of Leuven LTV Lange termijn visie Long term vision MCA multicriteriaanalyse multi criteria analysis NAP Nieuw Amsterdams Peil New Amsterdams level

(reference level for height determination in the Netherlands)

NL Nederland The Netherlands NLU Alternatief landgebruik New land use OMES Onderzoek naar de

milieueffecten van het Sigmaplan

Investigation of the environmental effects of the Sigmaplan

PFCAs Potentiële overstromingsgebieden

Potential Flood Control Area’s

ProSes Projectdirectie Ontwikkelingsschets Scheldeëstuarium

Project Management Developmental plan Scheldt Estuary

SCBA maatschappelijke kosten-baten Societal Cost-Benefit


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analyse Analysis SEIA plan-milieueffectrapportering

(plan-MER) strategic environmental impact assessment

SIA Maatschappelijke impact studie (MaIS)

Societal impact assessment

SSB stormvloedkering (SVK) storm surge barrier TAW Tweede algemene waterpassing Second General Level

(reference level for height determination in Belgium)

UK Verenigd Koninkrijk United Kingdom


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Summary in English The FRaME project aims to implement flood control areas as means to reduce floodrisk in estuaries. To allow for optimal learning and knowledge development in the FRaME setting and to realise fruitful demonstration projects in the future, (review) studies have been commissioned to collect relevant international experience. Each of the review studies – on Flood Control, New Land Use and Communication – performs a broad initial quick scan, more or less restricted in scope to estuarine areas. The purpose of the quick scan was to obtain a comprehensive overview of relevant experience with flood control areas, land use and communication issues in the EU and in North America. Therefore an initial longlist of potential sites has been drafted, that subsequently and after investigation has been reduced to a medium list, to end after interviewing the site contact persons with a shortlist of sites. Some of those shortlist sites were carried forward to a main review. By mutual agreement 5 shortlist sites were analysed on their suitability and relevancy for New Land Use (or NLU) learning and knowledge. The following 5 spots were considered:

- Recreative development at the Aakvlaai area (NL) - Ad hoc new land use at the Sieperdaschor (NL-B) - Baie des Veys (F) - Flood bank setback of the Norfolk Broads (UK) - Paull Holme Strays in the Humber Estuary (UK)

To evaluate the success of those NLU area a number of Key Performance Indicators (KPIs) were studied. 18 KPIs were brought together in 7 successive Key Areas:

- Objective aspects - Legal and governance aspects, - Organisational, technical and management aspects, - Communication aspects, - Societal, economic and ecological aspects, - Intervention aspects, - Evaluation of the whole NLU project.

Once all these elements have been made clear for the 5 sites, the success factors of NLU were evaluated. Based on that information suggestions on NLU were formulated. The most important recommendations or lessons were:

- Plan the strategy - Contact the key parties - Fathom the different sensitivities - Give consideration to multiple land use types - Design carefully: A detailed designing plan is essential. It has to

consider all conceptual ideas and especially the final ideas. One must be able to trace how the final ideas were chosen. Therefore study work must ‘go’ along an inventory part, a guiding part, a binding part and a monitoring part.

- Make use of the existing guidances to NLU


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Samenvatting / Summary in Dutch Het FraME-project tracht gecontroleerde overstromingsgebieden (GOG’s) op terrein te realiseren als een middel om overstromingsrisico’s in estuariene gebieden te verkleinen. Om terzake kennis en expertise bij elkaar te brengen, en om op termijn zinvolle FRaME-demonstratiesites te kunnen realiseren, werden een aantal (recensie)studies uitgeschreven waarmee men probeerde relevante internationale expertise te vergaren. Elk van de recensies – in totaal 3, nl. gecontroleerde overstroming, nieuw landgebruik en communicatie – startte met een globale screening van diverse estuariene gebieden in Europa en Noord-Amerika. Het doel van deze screening was het verwerven van een totaalbeeld van de relevante expertise in de EU, inzake gecontroleerde overstroming, alternatief landgebruik en communicatie. Om die reden werd gestart met het opmaken van een overzichtlijst van potentiële overstromingssites. Vervolgens werd die lijst na een korte analyse van de betrokken overloopgebieden ingekort tot een 30-tal sites (mediumlijst), om uiteindelijk uit te komen bij een tiental zones na contactname met de verschillende verantwoordelijken van ieder afzonderlijk overstromingsgebied (korte lijst). Met instemming van de verschillende partners betrokken bij deze studie, werden 5 kortelijstsites geanalyseerd op vlak van geschiktheid en toepasbaarheid bij kennisoverdracht inzake Nieuw Landgebruik (NLG). Het gaat om de volgende 5 zones:

- Recreatieve ontwikkeling in de Aakvlaai (NL) - Onvoorzien nieuw landgebruik in het Sieperdaschor (NL-B) - De Baai van Veys (F) - Verbreding van de riveriene slijkplaten bij de Norfolk Broads (VK) - Paull Holme Strays in het estuarium van de Humber (VK)

Om het succes van deze zones met nieuw landgebruik te kunnen evalueren werden een aantal sleutelcriteria onderzocht. 18 sleutelcriteria werden gebundeld in een 7-tal criteriumgroepen, zijnde:

- Objectieve aspecten - Juridische en beleidsmatige aspecten - Organisatorische, technische en beheersaspecten - Communicatieaspecten - Maatschappelijke, economische en ecologische aspecten - Interventieaspecten - Evaluatie van het volledige NLG-project.

In een volgende stap werden de succesfactoren van het NLG geëvalueerd, en op basis daarvan werden suggesties gedaan. De belangrijkste lessen en aanbevelingen waren de volgende:

- Plan de te volgen strategie - Contacteer tijdig de belangrijkste partners - Achterhaal de diverse gevoeligheden - Analyseer diverse landgebruiksmogelijkheden - Ontwerp zeer nauwgezet, en integreer een informatief luik, een

richtinggevend gedeelte, een bindend deel, en een monitoringstuk. - Maak gebruik van bestaande richtlijnen inzake NLG


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1. Previous activities The FRaME project aims to implement flood control areas as means to reduce floodrisk in estuaries. A total of five demonstration sites has been selected for the implementation of these solutions:

- Zuiderklip – Biesbosch (NL) - The Northern Fringe of Goeree Overvlakkee – Haringvliet (NL) - Alkborough flats – Humber estuary (UK) - Kruibeke-Basel-Rupelmonde – Scheldt estuary (B) - IJzer – IJzer estuary (B)

To allow for optimal learning and knowledge development in the FRaME setting and to realise fruitful demonstration projects, studies have been commissioned to collect relevant international experience. The studies focus on a review of:

- flood control areas; - new land uses; - communication aspects.

Each of the review studies performs a broad initial quick scan (definitive report Hallcrow, Soresma, Black & Veatch, WL Delft, 9 Sept. 2003). The quick scan describes the results of the quickscan phase of the FRaME projects ‘review of flood control areas’ and ‘new and innovative land uses’. These two reviews are more or less restricted in scope to estuarine areas. The communication review was able to cover a wider search area. The purpose of the quickscan was to obtain a comprehensive overview of relevant experience with flood control areas, land use and communication issues in the EU and in North America. To promote a co-operative approach between the three parallel review efforts, the consortia were invited to present suggestions at the kick off meeting in Voorburg, the Netherlands. The approach, discussed and agreed upon at that meeting, consisted of the following actions.

- To achieve a comprehensive overview of experiences, an initial longlist of potential sites has been drafted, based on maps. The resulting longlist contained a relatively large number of potential estuaries (order 100 – 110).

- Based on expert judgement by the consultants, this longlist was then reduced to a medium list of approximately 30 sites, for more detailed investigation through interviews with the key contacts for each site. These sites were then distributed among the consultants according to indicated preferences and the nature of the available contacts. A standard questionnaire has been drafted to ensure the production of comparable results. After a period of interviewing contacts the results were merged again into a single database. WL|Delft Hydraulics & Black and Veatch agreed to draft a long list and an initial questionnaire. The drafts were then sent to Soresma & Halcrow and TNO respectively for emendation. The process resulted in a detailled questionnaire.


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- After interviewing the contacts for each site on the medium list, evaluation of the gathered information per site facilitated drafting a shortlist of sites to be carried forward to the main review.

After short listing, the combined consortia of ‘Soresma & Halcrow’ and ‘Black and Veatch & WL|Delft Hydraulics’ selected (on suitability and on interest as a FRaME component) the sites to be addressed during the Main Review. In the text below the Main Review elements on the New Land Use areas can be found. After describing the Key Performance Indicators (KPI’s) (already mentioned in de final quick scan report), 5 sites are analysed on their suitability and relevancy for New Land Use learning and knowledge. The following 5 spots were considered:

- Recreative development at the Aakvlaai area (NL) - Ad hoc new land use at the Sieperdaschor (NL-B) - Baie des Veys (F) - Flood bank setback of the Norfolk Broads (UK) - Paull Holme Strays in the Humber Estuary (UK)

Note: the consortium ‘Black and Veatch & WL|Delft Hydraulics’ considers the same sites were studied on Flood Control. ‘Sieperdaschor’ however was replaced by ’Tielrodebroek’ along the Scheldt river (B).


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2. General information main review The NLU review analyses its cases, according to the frame of reference methodology. In the event that an integrated analysis is not supported, this means that only alternative land use objectives will be addressed, but the principle remains the same: evaluation of the success of any given NLU area involves an investigation of a number of Key Performance Indicators (KPIs). The KPI’s were already formulated in the Quick Scan; the elaboration of the assessment frame did not change during the execution of the main review study. So, we consider 7 successive issues or Key Areas with 18 KPI’s in total. The analysis consists of the following steps: 1) Key Area: Objective aspects We start with an inventory of the strategic and operational objectives that were formulated for the NLU. Clearly establishing the possible land use aims is crucial, in order to enable a useful evaluation of its success. As key performance indicators (KPIs) we identify whether or not objectives have been formulated.

- Has a clear strategic objective been developed? - Has a clear operational objective been developed?

2) Key Area: Legal and governance aspects It is also valuable to analyse in a second step the national and international legislation, towards the creation of NLU. Based on that information, suggestions towards required adjustments of governance are also possible.

- To what effect has national legislation been an impediment or opportunity for alternative land use strategies?

- To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies?

- To what extent has a co-operation between governmental bodies or lack thereof affected the implementation of alternative land use strategies?

3) Key Area: Organisational, technical and management aspects It’s important not only to fix on the legal or governance aspects, but also to look at their actual implications. To look into that, as a third step we investigate how the land use was ‘framed’ and how it developed in a particular area. To enable a rational design in function of NLU, general information about methodology, organization, procedures, etc. is needed. As key performance indicators (KPIs) we identify whether or not such elements are gathered:

- Who was the initiator and who were the actors of the process, and to what extent did they improve or facilitate the implementation of the NLU?

- Has there been functional instruments to implement the strategy? - Has there been a methodology on which the planning was based? - Has there been flexibility of the organisation structure and process

towards practical and operational needs?


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- Has there been a clear decision procedure (e.g. social cost benefit analysis, …) to judge which was the desired aspectstate of a NLU area?

- Has there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied?

4) Key Area: Communication aspects To find support for the realisation of a certain plan or project, it can be useful to ask for cooperation and to consult the inhabitants or other people directly involved.

- Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan?

5) Key Area: Societal, economic and ecological aspects It is clear that these KPI’s support an overview of the presence of some essential elements of the project. Not only the aspects mentioned above are important but also an analysis of the actual and potential ecological (incl. functionality), economic and societal (incl. accessibility) elements is important in judging and assessing NLU areas. As a fifth step we analyse these aspects.

- Are the observed ecological effects positive, are they lasting, and can negative effects be reversed?

- Are there economic consequences and was there any kind of financial compensation?

- Are there any social consequences towards the planned NLU activities?

6) Key Area: Intervention aspects Once it is clear that, based on the elements mentioned above, a piece of land needs to be flooded to reach the earlier defined objectives, an intervention will take place. The intervention may be active or passive in nature but should have an effect on the present state in either case. Furthermore, the successful operation of a NLU area requires a clear timing and definition of responsibilities. As key performance indicators (KPI’s) we identify whether or not an intervention procedure is present and whether or not timing and responsibilities are sufficiently clear.

- Has there been developed a clear intervention procedure based on the decision procedure?

- Has there been developed an intervention scheme containing a description of the timing and responsibilities during the operations (and also afterwards) towards ecology, economy and society, and were those elements monitored?

7) Key Area: Evaluation of the whole NLU project Once all these elements have been made clear, we can evaluate the success factors. This success is closely related to the measure by which it has been successful in achieving its objectives. As a seventh and final step we therefore assess the extent to which a given NLU area has been successful in


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achieving its strategic and operational objectives. The evaluation will be gathered and visualised into one conveniently arranged table, as stated below, and the ‘lessons learned’ will be mentioned. The overview of the KPI’s described above, facilitates assessment of a NLU area success or failure. The background information for each KPI helps to identify which factors contributed to or impeded successful operation of a given NLU area. At a level of sites we aim to determine whether or not the strategic objectives are effectively reached. Based on that information we can formulate suggestions as required for the FRaME project.


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3. Case: Recreative development at Aakvlaai area (NL) 3.1 General case description 3,7,20 The Aakvlaai project is located southeast of the national park the Biesbosch, which itself is located approximately 30 km southeast of Rotterdam. The Biesbosch is divided into various parts. Several polders, used for agriculture, are found dispersed in the area, resulting in a scattering of the reserve area. Planners aim to reintroduce natural conditions into these polders in order to create one large natural area. A larger area offers greater opportunities for species of plants and animals, to recover or return (for those that have disappeared). For six polders, together covering an area of 2500 hectares, nature development plans have been prepared in this context. Landowners were bought out after which the area was to be restored to the wet type of landscape that was common there in earlier days, consisting of a multi channel system with sloping banks and islands in between. The Aakvlaai area, which mainly consisted of farmland that had been reclaimed relatively recently, is actually located just outside of the Biesbosch. It is not so much the Aakvlaai area itself as it is the semi surrounding Biesbosch area that triggered the shift in its land use. With the finalisation in the early 1970’s of the nearby Haringvliet sluices, that were built in the context of the Delta project (this project incudes the creation of dams on all the estuaries between the Westerscheldt and Rotterdam, and the raising of the dikes along all tidal rivers), the difference between ebb and flood in the Biesbosch area was strongly reduced (from 1.8 m to 0.4 m). With the milder tidal regime, the area remained navigable throughout the tidal cycle and water recreation started to flourish. The recreation activities had a negative impact on the environment and a decision was made in 1975 to close some of the most valuable creeks for water recreation. The active recreation lobby did not accept this closure of the hart of the Biesbosch area. The pressure resulted in a promise of compensation through the creation of the so called ‘Miniature Biesbosch’, with an area of 150 hectares, in the polders located in the south east corner of the Biesbosch. The project was given the name of the local creek: the Aakvlaai.


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Location Aakvlaai (Source: RIKZ, Haren)

Triggered by the high water events of 1995 and 1996 along the Meuse, a project was started to create more ‘room for the river’. The high water events had shown that in case of peak discharges, flood risk is high along significant stretches of the Dutch rivers. Due to climate change and the anticipated resulting sea level rise and soil subsidence, such high water events are in fact expected to occur ever more frequently in the future. The resulting flood risks are augmented by river narrows, caused by villages and towns colonizing the river’s floodplains. To be prepared for the expected increase in unfavourable hydraulic and hydrologic conditions, a national project was started to create more ‘room for the rivers’. The additional room would lower the peak water levels on the river itself, reducing the pressure on dikes and thus to reduce flood risk. The room for the river approach has been adopted in addition to the other potential solution, viz. raising the dikes. Throughout the 1990’s it was felt that, with an expected increase in peak water levels in the order of tens of centimetres, the latter approach alone could not be sustained. The Biesbosch area lies in the Dutch delta area where the largest rivers of the Netherlands find their way to the sea. Although, as a result of the Delta works, the tidal range in the Biesbosch area had been significantly reduced, flooding is still a real issue. The main threat is now not so much the sea as it is the fresh water from the rivers that flow through the area. From this perspective, Rijkswaterstaat wanted to participate in the Aakvlaai project because they saw the opportunity to use the area as an additional floodplain. This initiative was embraced by the initiative to turn the Aakvlaai into a recreation area under the precondition that the original plans would not be changed significantly. Study showed that the initiatives could be integrated with almost no modifications to the original plans and in 1999 the work began.


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Situation after designing (source: Oranjewoud bv, Oosterhout)

From 1800 till 1998 the Aakvlaai area was an agricultural polder, with cropping of potatoes and wheat, and in places also mangel-wurzel. Before the recreational designing, no inventory or vegetation mapping took place, but one can suppose that because of the presence of intensive mechanized agriculture the nature values were rather low. 3.2. Objective aspects Has a clear strategic objective been developed ? 3,7,16

Yes. The Aakvlaai project started because of two major problems: 1) When the Dutch Deltaworks were finished in the early 70’s, the tidal

amplitude in the Brabantsche Biesbosch decreased significantly. This resulted in an explosive increase of the local water recreation. Next nature values decreased. The “Nationaal Park De Biesbosch in development” decided to zone and limit the water recreation. Around 1978 it was settled with local water sport organisations to expand the Biesbosch with a water recreation area of ±150ha.

2) In different studies it was proved that the indicative river discharge and the water levels will increase in the future, as a result of climate changes, sea level rise and soil subsidence. To counter these threats, dikes need to be raised or the storage capacity of the rivers needs to be increased.

Now, the project Aakvlaai falls into the cluster “lower region projects”, as part of the ‘room for the river’-project to implement flood-prevention policy in the heavily inhabited lower regions of the Rhine and Meuse.


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The project focused specifically at the agricultural Allardspolder where land had been acquired to set up a ‘miniature Biesbosch’. The objectives of the project were integral so that flood-prevention and nature development go hand in hand. The major objective of the polder reconversion of the Aakvlaai area was the zoning of recreation, but also to a lesser degree to strengthen the ecological structure. The Aakvlaai polder will thereby be developed into a (nature) recreation area in order to compensate for creeks that have been closed for recreation in the past.

Has a clear operational objective been developed ? 3,7,16

Yes. In a design plan it was concretely defined where anglers, sailors, and other (‘water people’) recreational activities belonged, and in what extent and where nature values need to be created in relation to the water recreation. Water storage in and flow rate through the Aakvlaai area (and how this can be linked to recreation) were also main issues in this plan.

3.3. Legal and governance aspects To what effect has national legislation been an impediment or opportunity for alternative land use strategies ? 3,4

In a lot of Dutch wetlands large-scale nature development is or has been planned. The Aakvlaai area perfectly matches in that Dutch policy. This policy was an important opportunity for the creation of this water recreation area.

To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies ? 22

The European legislation was a good opportunity to implement the ‘nature part’ of the alternative land use at Aakvlaai: - Aakvlaai is part of a Special Area of Protection (Habitats directive),

named NL 1000015 Haringvliet. The most important habitat type protected by this directive is ‘Fringe forming, eutrophic tall herbs of the lowland, and of the mountainous and alpine areas’.

- Aakvlaai is also part of a Special Protection Area for Birds (Birds directive), named NL 67 Haringvliet.

Due to that element of the EU nature policy, the ‘reorganisation’ of the Aakvlaai landscape needs to carry evidence of relevant nature development and nature quality in the area has been lifted up.

To what extent has a co-operation between government bodies or lack thereof affected the implementation of alternative land use strategies ? 1,2,3,4,7

Because of juridical tussling between 1978 (promise of the government to create a mini-Biesbosch) and 2001 (finalisation in situ), it took quite a long time before the plans took their definitive shape. In 1998, when al juridical problems were solved, Rijkswaterstaat (RWS) decided to participate in the project. RWS was aware of the ‘room for the river’ possibility and the water storage capacity of the Aakvlaai project. The


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area could play an important role to relieve the dikes from extreme water pressure in the Bergsche Maas. For that reason the Bergsche Maas dikes along the Aakvlaai area were lowered to decrease the maximum river discharge. From that moment on the original recreation plan in fact became a nature recreation plan. The nature elements got more chances; recreation elements have to adapt. Two government agencies were the main co-operators in managing this new marsh area: - Rijkswaterstaat / Department of Waterways and Public Works:

manager of the main waterways and rivers, and responsible for dikes and quays.

- The Ministry of Agriculture, Nature management and Fishery, including Staatsbosbeheer / Dutch Forestry Commission and Dienst Landelijk Gebied / Rural Area Service: monitoring and developing the site, and also owner.

Two other main co-operators were: - The local authority - The feedback group of water sport fans The plan preparation was done by: - Oranjewoud bv The plans were executed in situ by two firms: - Boskalis bv - A.H. Breijs & zonen bv

3.4. Organisational, technical and management aspects Who was the initiator and who were the actors of the process, and to what extent did they improve or facilitate the implementation of the NLU?7,16

The “Nationaal Park De Biesbosch” (a public body closely linked to Staatsbosbeheer) was the initiator of the Aakvlaai recreation idea. Since nature and water storage ideas got involved (and after solving the juridical problems), RWS can be seen as a co-initiator.

Has there been functional instruments to implement the strategy ? 7 Not specifically.

Has there been a methodology on which the planning was based ? 1,3,4,16

The potential of the Aakvlaai project as a recreation, nature and water storage area, is investigated in the study “Integrale Verkenning Benedenrivieren” (IVB, Integral Investigation of the Lower Rivers). As a result different targets with respect to recreation (water and ecology) were identified and a specific design plan was made up. When the plan became definitive, schemes and specifications were made in relation to water and excavation works. To realize the water recreation area, one started in may 1999 (after changing the local destination plan, purchasing the parcels, and receiving the different permissions needed) with reconverting the arable land. This started with


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the creation of a dike of 3,5km. The spoil for creation of the new dike (sand and clay) originated from the digging of water recreation creeks. When the digging was finished, planting, road building and bank protection was undertaken. This new dike now is 2,00 m + NAP (the former dike was 3,40 + NAP, and was cut through on the 7th of June 2001), by which it is now possible that the Aakvlaai becomes part of the river when bank discharge is high. In periods of extreme discharges (e.g. in spring and autumn), there are no tourists in the area, so that Aakvlaai can fulfil its second function of ‘streaming water storage’.

Has there been flexibility of the organisation structure and process towards practical and operational needs ? 4,7,16

The steering committee was established quite flexibly. The integration of new committee members, partners and a management budget went very easily. Especially when the juridical problems were solved there was a lot of space to include new partners during the planning process. Also other people and agencies were consulted; people who were not involved at the beginning of the process. Because of the intensive but careful consideration moments and the frequent interactions between the partners, new drawings were often necessary.

Has there been a clear decision procedure to judge which is the desired state of a NLU area ? 16

The action plan ‘Inrichting Aakvlaai’ was made in dialogue with the different partners. With respect to this (ideal) target state it is possible to assess whether the original targets were achieved.

Have there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied ? 9,16

Yes. For this can be referred to other reports and analyses (e.g. Integrale Verkenning Benedenrivieren, Inventory of the ecological restoration of the Meuse, …). In these studies different suggestions were made towards the Meuse and her onshore zones. This basic information formed a relevant input to become the final Aakvlaai development plan, and considered 4 basic aspects: - Topography: it was considered that this should change significantly

(artificial changes). Especially the eventual sedimentation problems after creation of the new NLU area were considered.

- Breach size and location: in combination with topography the location(s) of dike breaches in the present river dike was considered, which in turn drives the habitat type and recreation possibilities. Breach design was modelled to ensure an appropriate flooding regime for the site.

- Creek creation: drainage of the site was largely and rigourously marked out on forehand, natural creek development was limited;


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different ponds and landing places were also planned and constructed within the NLU area.

- Monitoring and Management: the development of habitats on the site is largely being left to ‘men’; some monitoring helps decide what to do if any intervention may be needed in the future.

3.5. Communication aspects Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan ? 3,7,9,16

When the Biesbosch was to become a national park in 1987, a lot of commotion had preceded since 1984. As part of the Aakvlaai project the function of the area had to be changed from agricultural to recreational. The local inhabitants and municipality strongly opposed this - in their eyes - pointless creation of a new recreational area on their lands. Between 1984 and 1998, a number of four exhaustive participation procedures ran. Practically each time up to the highest level of appeal. Since 1998, especially during the final planning process, there was some constructive information input of the inhabitants and other persons involved.

3.6. Societal, economic and ecological consequences Are the observed ecological effects positive, are they lasting, and can negative effects be reversed ? 1,2,3,4,7,9,16,22

To facilitate the creation of the desired nature recreation environment, a system of creeks has been dug inside the Aakvlaai. The creeks create a system of channels, islands and quays for the benefit of water recreation. The fact that the Aakvlaai was to be used as a ‘nature recreation area’ implied the need for a relatively detailed design. Elements like quays and miniature beaches would not have been introduced if the area only had a ‘nature’ function. In fact other nature development projects in the Biesbosch, like Noorderwaard and Zuiderklip, have been designed in a much coarser manner. There, only the basic system of creeks will be dug out, after which nature is free to take its course. Because the Aakvlaai has a specific recreational function the design had to meet more strict requirements, e.g. the creeks needed to be kept open and at sufficient depth, etc. A key element of this interior design of Aakvlaai is the open connection with the surrounding waters. The open connection allows boats to enter the area and introduces a tidal range into the area that helps to create and maintain certain natural values. Although the planned actions were not designed specifically for birds, there are currently a lot of birds in the Aakvlaai area. The first year there were avocets, common tern, greylags, and a lot of ducks. During the second year the area was already roughly grown, by which warblers entered the wetlands. In creeks the number of waterweed increases, and in the swamps a lot of sea rushes grow. For the moment it seems


21

that the developed nature values are permanent, but a further increase of waterweed can cause a lot of recreation damage. For the moment there is no specific monitoring program to assess and examine the activities. The ecological evolution is checked regularly by global observation Staatsbosbeheer on the field. In 2002 the province of Noord-Brabant made a detailed inventory of the breeding birds in the Aakvlaai area. Based on this and previous inventories one is able to steer the original plan in a new direction. In the eastern part of the area there is almost no water circulation. As a result it is possible that water quality problems will appear in short-term, which will have consequences towards water recreation. The cyanobacteria in the eastern part are an indication of poor water quality.

Are there economic consequences and was there any kind of financial compensation ? 7,9

The employment linked to recreation increased. Persisting the different recreational provisions turned out to be more expensive than expected.

Are there any social consequences towards planned NLU activities ? 7,9

The local farmers were bought out and stopped their activities or replaced them. In any case, all areas with an added recreational value are having a huge impact on the societal structure in the vicinity.

3.7. Intervention aspects Has there been developed a clear intervention procedure based on the decision procedure ? 2,7,9,16,20

For recreation and ecology, it is of great importance that negative evolutions (smell discomfort, cyanobacteria, waterweed, …) are monitored and countered if necessary. However a clear intervention procedure for that is not present for the moment. The planned process is to reduce intervention to a minimum and to make decisions to do so based on the results of monitoring.

Aerial view of the Aakvlaai area at start and finish of implementation


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Has there been developed an intervention scheme containing a description of the timing and responsibilities during the operations (and also afterwards) towards ecology, economy and society, and were those elements monitored ? 3

Not for the moment 3.8. Were the objectives achieved ? 1,2,3,4,7,9,16,20

Recreational objectives The Aakvlaai project has met its primary recreation objective well. The area is used intensively for recreation. The quays attract a lot of boats, the grass attracts campers and the miniature beaches are used intensively for swimming. The channel system was intentionally designed to let the river water run in and out of the area. The activity of the flow was to keep the navigational channels at a minimal depth. Furthermore the connection with the surrounding water was intentionally located at the western part of the area rather than the southeast. The reason for this was to prevent excessive settling of silt from the river water. So far the accessibility of the Aakvlaai has been up to standards. Despite the western entrance, silt does enter the Aakvlaai however. In particular the miniature beaches suffer from the silting up and maintenance of these beaches turns out to be fairly costly. Environmental objectives With respect to the environmental objectives, the project also seems to be successful. After the construction of the channel system, nature basically has taken control of the area. Vegetation has taken hold and the area has taken on its green appearance. The entrance and the connecting channels were designed in such a manner that the tidal influence would be felt in the entire area. Although part of the water in the creeks flows in and out, computer models had shown that the water in the southeast part of Aakvlaai would not be refreshed. There was some initial worry that during warm weather conditions this could result in toxic algal blooms. The summer of 2003 has been exceptionally warm. So far, however, no insuperable problems of this nature have occurred. 3.9. Summary and lessons learned Recreative development at Aakvlaai area, NL Key Area Key Area result Lesson Objective aspects

Reducing the recreational pressure on the Biesbosch area by creating a mini Biesbosch, and create quays, creeks and nature elements on specific places in de Aakvlaai area. Creating at the same time relevant nature values and ‘room for the river’.

It can be important to make clear the elements you want to realize on the field, and the aspects you want implement (recreation, nature).

Legal and governance aspects

The legal and governance opportunities to create the NLU area are present.

It is advisable to have a clear view on the local policy and legislation, and the


23

In the Netherlands a positive attitude towards nature recreation is present

opportunities that it brings.

Organisational, technical and management aspects

A serious amount of basic and other useful information was present (abiotic inventory, soil plan, water modelling, …), although some information lacked (water refreshment plan)

It can be important to have a soil flow plan. This plan identifies the soil types that are to be excavated and where the material is best reapplied. It is recommended to determine abiotic parameters. A soil plan can identify the soil types that are present, and by that abiotic prediction of the future biotic c.q. botanical situation is feasible (also on the field), and immediate and specific management measures can be taken. It can be useful to work with a neutral soil balance in order to prevent delays with permit procedures. Make sure to know where soil pollution can be present, in order to limit extreme increase of the costs.Non-refreshment of water can be prevented by making a detailed DTM, a river sand and river mud input analysis in situ and in vitro, and a surface water flow model.

Communication aspects

After decennia of opposition of the inhabitants, there was a certain constructive contribution during the final planning process. A flexible and extendable steering committee supervised

The provision of a flexible and broad deliberation platform or consultative body is essential; the lack of detailed information to the public at the project start, can be very invaluable for the progress of the process.

Societal, economic and ecological aspects

Those aspects where intensively studied, and the societal (recreants), ecological (nature values) and economical (income and receipts) states of the Aakvlaai area are more or less as predicted

It is useful to design the interior of the FCA’s carefully to suit the needs that can be derived from the land use objectives. The Aakvlaai nature aspects could do with a coarser design than a nature recreation area. It can be a useful addition to the landscape to create small elevated areas, used for e.g. grazing cattle, in between channels and islands. The enlargement of spatial and


24

biological diversity in that way, can increase the recreational appreciation.

Intervention aspects

For the moment, there is no clear intervention procedure in case something goes wrong (f.i. the unwanted algal growth)

It is advisable to determine in advance the desired species and vegetation types and implement an accurate monitoring program (for al types of animals and plants); in that way it is possible to intervene quite quickly when some unwanted land use evolution occurs.

Are the objectives achieved ?

The original recreative, natural and ‘river space’ objectives are more or less achieved

/

3.10. Contacts and information: The following persons provided relevant information:

1. Henk Jagt (RWS, directie Zuid-Holland),Boompjes 200, NL – 3011 XD Rotterdam, 0031 (0)10 402 62 00, www.rijkswaterstaat.nl

2. Romke van Willenswaard (DLG, Tilburg), Prof. Cobbenhagenlaan 47, NL – 5037 DB Tilburg, 0031 (0)30 275 66 00

3. René Bol (RWS, directie Zuid-Holland), Van Oldenbarneveltplaats 442, NL – 3012 AP Rotterdam, 0031 (0)10 217 09 12, www.rijkswaterstaat.nl

4. Jos Prinsen (Ingenieursbureau Oranjewoud bv), Beneluxweg 7, NL - 4900 AA Oosterhout, 0031 (0)162 48 70 00, www.oranjewoud.nl

5. Luc Koks (Ingenieursbureau Oranjewoud bv), Beneluxweg 7, NL - 4900 AA Oosterhout, 0031 (0)162 48 70 00, www.oranjewoud.nl

The following literature contained information mentioned above:

6. Bisseling, C. M., Draaijer, L. J., Klein, M., and Nijkamp, H., … - Ecosysteemvisie Delta. Wageningen, Informatie- en KennisCentrum Natuur, Bos, Landschap en Fauna.

7. Bouma S., Veen S.M. & Bonhof G.H., 2002. – Proefgebieden herstel zoet-zout overgangen in het Deltagebied. RIKZ, Middelburg.

8. De Leeuw C.C. & Backx J.J.G.M., 2001. - Naar een herstel van estuariene gradiënten in Nederland. Een literatuurstudie naar de algemene ecologische principes van estuariene gradiënten, ten behoeve van herstelmaatregelen langs de Nederlandse kust. RIKZ, RIZA.

9. Dienst Landelijk Gebied, 2000. - Brochure "Van landbouwgrond naar natuurrecreatiegebied". Dienst Landelijk Gebied.

10. Eertman, R. H. M., 1997 - Veranderingen in de estuariene ecotopen in de delta. RIKZ.

11. Gotjé, W., 1999 - Soortsbeschrijving Brakke Ecotopen. Het benedenrivierengebied. Amsterdam, AquaSense.

12. Jansen, S. and Wardenaar, K., 1997. - Doelsoorten en doeltypen MER-Haringvlietsluizen. De betekenis van Hollands Diep, Haringvliet,


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Biesbosch en Voordelta voor doelsoorten en doeltypen bij verschillende vormen van sluisbeheer. Amsterdam, VISTA.

13. Lenselink G. & Gerits R., 2000. - Kansen voor herstel van zout-zoet overgangen in Nederland.

14. Louman, E. G. M, 1991. - Inventarisatienota waterkwaliteit en ekologie. Integraal beleidsplan Haringvliet, Hollandsch Diep, Biesbosch, Nieuwe Merwede, Amer. Leiden, Bureau Duin + Kust.

15. Ministerie van Verkeer en Waterstaat, Directie Zuid-Holland, … - MER Beheer Haringvlietsluizen. Over de grens van zout naar zoet. “Haringvliet in het kort”, een brochure over de studie naar een ander beheer van de Haringvlietsluizen.

16. Oranjewoud, 1984 – 2000. - Aakvlaai-onderzoek allerlei (luchtfoto’s, doelplannen, inrichtingsplannen, bestekken, begeleidingsnota’s, …)

17. Vanhemelrijk, J. A. M. and de Hoog, J. E. W., 1996. - Amoebe's Benedenrivierengebied. Studie naar ecologische ontwikkelingsrichtingen. RIZA.

18. Veen, S.M., Boudewijn T.J. & van de Haterd R.J.W., 2002. - Natte As Biesbosch- Deltagebied. Quickscan. I.o.v. Provincie Zeeland Bureau Waardenburg, Culemborg.

19. Veen, S.M., Boudewijn T.J. & van Horssen P.W., 2002. - Natte As Biesbosch – Deltagebied. Verkenning van knelpunten en mogelijkheden voor moerasnatuur in het Deltagebied. Bureau Waardenburg, Culemborg.

20. www.ruimtevoorderivier.nl 21. www.cipm-icbm.be/files/pubs/4/inventdefn.pdf 22. http://www.minlnv.nl/thema/groen/natuur/natura2000


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4. Case: Ad hoc new land use at Sieperda-schor (NL-B) 4.1. General case description 2, 4 The Sieperdaschor, situated near the eastern part of the Westerscheldt, is the youngest marsh of the Zeeland province (The Netherlands). Till 1966 it was a part of the Verdronken Land van Saeftinghe.

Relation Sieperdaschor <->Verdronken Land van Saeftinghe (Source: http://www.scheldenet.nl)

Because of a quay construction (actually a small dike from west to east for bundling some electric wires) and a small, illegal (!) dike (from north to south, on the most eastern side) a long, narrow piece of land was cut off from the Verdronken Land. The result was an outer dike polder, the so called Selenapolder (total area ±100ha). The owner of the entire Selenapolder was the Belgian dredging firm De Cloedt who leased the polder parcels to some local farmers. Initially the polder was used for cattle grazing, lateron (>1970) crop growing was also possible (a maximum of 40% of the area was used for potatoes, beet, rapes, flax, maize, …; the rest was used in extensive cattle breeding). In winter the Westerscheldt water level raised so that water could enter the Selenapolder. In spite of two dike breaches in 1976 and 1985 (in both cases it was restored to its original state) the general use of the polder stayed quite stable till 1990. On the 26th of February 1990 the dike breached for the third time. It was the result of a so called ‘three level storm’ (resulting in 3 times high tide, without an ebb interval). De Cloedt considered the costs to repair the dike too high, and accepted the new situation. After 24 years the polder was restored to his original state: a tidal, brackish marsh. The Stichting Zeeuws Landschap started managing the area, few years later they obtained the ownership of the Selenapolder.


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After the dike breach the agricultural use of the Selena polder partly changed. As a result of the intake of salt and brackish water the former parcels were not suitable for farming anymore; the most western part of the polder was still grazed by cattle. In 1993 the former polder got his present name: the Sieperdaschor.

The Sieperdaschor (Source: www.rikz.nl)

Dutch-Belgian border 4.2. Objective aspects Has a clear strategic objective been developed ? 1,2,3

No. After empoldering in 1966, the following two dike breaches were repaired, but the costs for the third breach were considered too high. It was decided to restore the polder as a tidal area. That decision matched perfectly in the Dutch style of governing of the late eighties. At that time, there was a lot of public support towards nature management, conservation and development. The creation of this FCA was also useful – although very limited – to preserve Antwerp and the villages and cities downstream from flooding.

Has a clear operational objective been developed ? 2, 3

No. Before the last dike breaching it was not quantified nor qualified what kind of new land use would be chosen for this regularly flooded area.

4.3. Legal and governance aspects To what effect has national legislation been an impediment or opportunity for alternative land use strategies ? 2

In a lot of Dutch wetlands large-scale nature development is or has been planned. The tidal zone of the Sieperdaschor perfectly matches in that


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Dutch policy. This policy was an important opportunity for the creation of this marsh area.

To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies ? 16

The European legislation was a good opportunity. Sieperdaschor is part of a Special Area of Protection (Habitats directive), named NL 9803061 Westerscheldegebied. The most important habitat types protected by this directive are: - Estuaries (and the corresponding vegetation types) - Atlantic marshes with Sea poa (Glauco-Puccinellietalia maritimae) Sieperdaschor is part of a Special Protection Area for Birds (Birds directive), named NL 25 Verdronken Land van Saeftinghe.

To what extent has a co-operation between government bodies or lack thereof affected the implementation of alternative land use strategies ? 2,3

Immediately after the last dike breaching the RIKZ started some internal, off-the-record research on the flooded Selenapolder and wrote some small development plans. Also other agencies and departments started some research (the Dutch nature conservation organisation De Steltkluut, the Flemish Institute for Nature Conservation, the Utrecht University, the measurement information service of the Rijkswaterstaat, …). In 1990 the Rijkswaterstaat together with Bureau Liefense and the Waterschap ‘De 4 Ambachten’ developed a specific plan for the flooded Selenapolder. That was necessary because spontaneously a channel was developing (too) close to the lower, northern Selena dike c.q. quay. The channel was relocated to the middle of the polder and the spontaneous one was filled up. In 1993 the Selenapolder got his new name. In 1994 a concrete monitoring scheme was developed. In 1995 the monitoring activities started. The monitoring was finished in 2000. In 2001 some aspects already mentioned in the specific plan of 1990, were realised on the terrain (e.g. extending the gullies, …). Three government agencies were the main co-operators in managing this new marsh area: - RIKZ (Rijksinstituut voor Kust en Zee / Royal Institute for Coast and

Sea): monitoring and developing the site - SZL (Stichting Zeeuws Landschap / the Zeeland landscape

foundation): since the mid 90’s the owner of the Sieperdaschor - RWS (Rijkswaterstaat / Department of Waterways and Public Works):

manager of the Westerscheldt and responsible for dikes and quays.


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4.4. Organisational, technical and management aspects Who was the initiator and who were the actors of the process, and to what extent did they improve or facilitate the implementation of the NLU? 1,2

Initially the implementation of this NLU area was a pure economical measure. A well-considered cost-benefit analysis – although ad hoc – made the owner decide that repairing the dike breach could in no way be justified. Although the RIKZ started sampling and unofficial monitoring, it can be stated that the Rijkswaterstaat is the initiator of the Sieperda project.

Has there been functional instruments to implement the strategy ? 2

No. Circumstances beyond one’s control. No clear strategy towards one or other steered action.

Has there been a methodology on which the planning was based ? 2

None. Ad hoc ‘management’ afterwards. Has there been flexibility of the organisation structure and process towards practical and operational needs ? 1,2,3

The ad hoc steering committee was established quite flexibly. The integration of new committee members, partners and a management budget went very easily.

Has there been a clear decision procedure to judge which is the desired state of a NLU area ? 2

Not in this case. Before the last dike breach no plans were made for the ecological ‘re-designing’ of the Selenapolder. Neither was there a prior permission to develop a new marshland in relation to the Verdronken Land van Saeftinghe. Also in this case the decision procedures were ad hoc again.

Has there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied ? 4,5

No. Concerning the ecological development of this area, several discussions took place and some working papers were made up, especially after the last dike breach. The technical and management approach is compiled in the document "Together with the tide. About the development of the Sieperdaschor" 4. In this document it was estimated how the Sieperdaschor would evolve without a change of management: "The grazed western part will keep his outlook: open, short vegetations of Sea poa and ruderal or pioneer species with swamps in the lowest parts. The pools and ditches will silt up and grow over with vegetation. The eastern part with higher vegetations will evolve to an unbroken reed marsh, in which different plant species will be pushed back. An eldorado for water birds, but the total bird numbers and species will decrease. In


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the most eastern part the same thing will happen for grazed resp. not grazed sites. In short, the Sieperda area will get more uniform, and will lose some of its biodiversity". To ensure Sieperdaschor will evolve towards a marsh, several management actions were planned: levelling parts of the Sieperda soil, extending the central channel, cattle grazing management and better retaining the water input. As far as we know only the channel extending has been realised. By tide restoration in the former Selena polder approximately 100ha of marsh is added to the total Westerscheldt marsh area. This marsh extending is considered to be positive, because a lot of marshes were destroyed by empoldering. On a European scale, brackish marshes are threatened and very rare biotopes. That is mainly the reason why they are an important element in the European Habitat directive.

4.5. Communication aspects Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan ? 2

No. Communication in advance was not possible because of the sudden occurrence of the dike breach. The former Selenapolder is part of an area that only has an important agricultural function. The recreational, societal, economical, …value of the Sieperdaschor is rather limited. Furthermore the area is surrounded by one of the most important Dutch nature reserves (the Verdronken Land van Saeftinghe) and the Belgian border, in other words in an ‘administratively hardly accessible corner of the Netherlands’. A specific structure to manage this area has never been developed before.

4.6. Societal, economic and ecological aspects Are the observed ecological effects positive, are they lasting, and can negative effects be reversed ? 6,7,8,9,10,11,12,13

When the central channel was repositioned in 1993, this enhanced the creek development in the eastern Sieperda zone. During the first two years after repositioning, the creeks deepened autonomously, and the draining of the Sieperdaschor improved. A shallow clay layer partly stopped the creek development. From then on the vegetation extended explosively. Since 1999 the mud flats that developed during the period 1990-1995, are replaced by a mosaic of reed swamps and other high growing marsh vegetations. Most of the organisms are typical for brackish marshes. Grazing led towards low marsh vegetation types dominated by Sea poa. Bird species changed because of the changed environmental conditions. The most eastern part of Sieperda always remained a bare mud flat without much vegetation and did not change significantly after reconverting.


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1 2

3 4

5 6

7 8 Some photos of Sieperdaschor (from the left to the right, and top-down): 1) name-board; 2) photo taken in the bird observation hut with western pond, quay and Verdronken land van Saeftinghe in the back; 3) from west to east; 4) a view on the Westerscheldt; 5) the southern Delta-dike; 6) the Sieperda ‘creek’ between Westerscheldt and inlet; 7) the Sieperda ‘creek’ from inlet to the west; 8) one of the natural ‘creeks’ scattered all over the Sieperdaschor (Source: Soresma, 2003)


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The last years a lot of water birds are replaced by other bird species that now started breeding in the Sieperdaschor, because of the changing vegetation. Although there is a clear impact of the salt of the Westerscheldt water on the vegetation in the Sieperdaschor, there were no significant morphological processes. The most important reason for that is the long-drawn-out shape of the Sieperdaschor and the limitation of the tidal water volumes as a result of the narrow opening under the bridge in the most eastern part of the Sieperdaschor. A wider ‘gap’ would create a greater impact on the morphological situation.

Are there economic consequences and was there any kind of financial compensation ? 2

Within this considered area different parcels could not be used anymore. The arable area shrunk. The farmers were partially compensated for the loss. Cattle breeding is still possible, although very extensively. The budget necessary for the nature management in the Sieperdaschor is negligible.

Are there any societal consequences towards planned NLU activities ? 1,2

Some Belgian and Dutch farmers of the villages of Doel, Emmadorp, Nieuw-Namen and Kieldrecht lost a part of their used parcels.

4.7. Intervention aspects Has there been developed a clear intervention procedure based on the decision procedure ? 2

No. The Sieperda area spontaneously developed as some sort of test case. A considerable amount of halophytes and brackish plants settled and maintained, together with a huge amount of birds using the Sieperdaschor as stop or as forage zone southerly of the Verdronken Land van Saeftinghe.

Has there been an intervention scheme containing a description of the timing and responsibilities during the operations towards ecology, economy and society, and were those elements monitored ? 2

None. 4.8. Were the objectives achieved ? 2,4,5,6,7,9,10,14 The development of the Sieperda area 10 years after the breaching of the dike showed that a former marshland can regain the character of a marshland. This in particular is the case for the eastern part of the Sieperdaschor with its quite well developed and natural creek system. The monitoring resulted in specific knowledge, in general and in particular. Now more than 10 years later, the fast evolution in vegetation and species diversity has stopped, but in a decreased tempo changes are still going on. It is clear that ‘pure chance’ is a major factor in nature development. Without any previous analysing an ecologically relevant marshland has been created. A study in which the Sieperdaschor was examined in relation to polder re-


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conversion elsewhere revealed that some essential soil features like redox potential, pH, nutrients and organic matter were not measured. These parameters are of great importance for nature restoration speed. Also the salt content of water and soil are not examined, though this is a decisive factor in vegetation evolution. Since 1999, only vegetation and birds are still monitored as part of the national monitoring program (MWTL). 4.9. Summary and lessons learned Ad hoc new land use at Sieperdaschor, NL - B Key Area Key Area result Lesson Objective aspects

None None


The legal and governance opportunities to create the NLU area are present. In the Netherlands a positive attitude towards large-scale nature development is present. Dealing with this dike breach problem was only possible due to a creative analysis of local legislation

It is advisable to have a clear view on the local policy and legislation, and the opportunities that it brings.


After the breaching of the dike specific management and monitoring took / take place. No specific new land use was planned in advance.

It is important to realise that not all new land use needs planning. Daring to realise a concrete dike breaching on a well located and safe place, with only a negligible societal and economic relevance, can result in some interesting information on natural development (without human interfering) and practical (and not only theoretical) information based on terrain experience. Nevertheless, it can be recommended to determine abiotic parameters in similar (future) projects and in project monitoring. A soil plan should identify the soil types that are present, and by that abiotic prediction of the future biotic c.q. botanical situation is feasible, and immediate management measures can be taken.


None None


Those aspects where studied, after dike breaching, not in advance. Societal (accessibility of the parcels), economic (the aggrieved

It is important to realise that a nature area, can do with a very coarse ‘design’. The addition of small elevated areas in the new nature area can ease goal-


34

parties), and ecologic (the possible vegetation types and bird populations)

oriented (ecological) measures (e.g. terps for cattle grazing, education spots, …)


For the moment, there is no clear intervention procedure in case something goes wrong.

The writing and implementation of a concrete and accurate management and monitoring program can trace eventual changes in the area, so that undesired effects can be countered immediately.

Are the objectives achieved ?

Although no specific objectives were defined, an interesting new land use type is achieved

/

Airial view (source: Bofoto luchtfotografie, Heinkenszand)

4.10. Contacts and information The following persons provided relevant information

1. Ir. S. Nollet (AWZ, Afd. Zeeschelde), Copernicuslaan 1, bus 13, B – 2000 Antwerpen www.awz.be

2. E. Stikvoort (RIKZ), Grenadierweg 31, NL – 4338 PG Middelburg, 0031–(0)118–672200, www.rikz.nl

3. Stichting Het Zeeuwse Landschap (Gert-Jan Buth [email protected] and Jos Neve [email protected] of visitors centre ‘Verdronken Land van Saeftinghe’ (Emmadorp))


4. Stikvoort E.C., 2000. - Met het tij mee. Over de ontwikkelingen in het Sieperdaschor. RIKZ-2000.046. RIKZ, Middelburg.

5. Van Oevelen D., Van den Bergh E., Ysebaert T. & Meire P., 2000. – Literatuuronderzoek naar ontpolderingen. IN – UIA, Brussel/Wilrijk.

6. Bouma S., Veen S.M. & Bonhof G.H., 2002. – Proefgebieden herstel zoet-zout overgangen in het Deltagebied. RIKZ, Middelburg.

7. Castelijns H., van Kerkhoven W., Wieland A. & Maebe J., 2000. - Tien jaar Sieperdaschor. Een evaluatie van het voorkomen van vogels in een in 1990 uit cultuurland ontstaan schor. Vogelwerkgroep De Steltkluut, Terneuzen.


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8. Holland A., 2000. - Veranderingen in de fysische en chemische parameters in de bodem van de Selenapolder. Werkdocument RIKZ/AB/2000.826x. RIKZ, Middelburg.

9. Kornman B.A., 2000. - Het Sieperdaschor. Tien jaar morfologische ontwikkeling in vogelvlucht, lessen voor de toekomst. Werkdocument RIKZ/OS/2000.850x. RIKZ, Middelburg.

10. Reitsma J.M., 1995. - Vegetatiekartering Sieperdaschor 1995. Rapportnummer 95.34. Bureau Waardenburg, Culemborg.

11. Rijkswaterstaat, 1999. - Waterstandsmetingen Selenapolder Land van Saeftinge 1992 t/m 1999. Rijkswaterstaat Meetdienst Zeeland.

12. Stikvoort E.C., 2000. - 5e en laatste voortgangsrapportage Monitoringsplan Sieperdaschor. Werkdocument RIKZ/AB/2000.829x. RIKZ, Middelburg.

13. Stikvoort E.C., 2000. - Vijf jaren bodemdieren bemonsteren in hert Sieperdaschor: 1995-1999. Werkdocument RIKZ/AB/2000.829.002. RIKZ, Middelburg.

14. Van der Pluijm A.M. & de Jong D.J., 2000. - Vegetatieontwikkeling Sieperdaschor 1990-1999. Werkdocument RIKZ OS/2000.831x. RIKZ, Middelburg.

15. Van Oevelen D., Van den Bergh E., Ysebaert T. & Meire P., 2000. – Literatuuronderzoek naar estuariene herstelmaatregelen. IN – UIA, Brussel/Wilrijk.

16. http://www.minlnv.nl/thema/groen/natuur/natura2000


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5. Case: Baie des Veys 5.1. General case description Situation The inclusion of the “Baie des Veys” case in the FraME-NLU main review was motivated by elements from different angles. The site does not comprise FCA projects in the strict sense, it does however fulfil an important estuarine flood control function which is being maintained, and its land use is being managed and adapted in that respect. This makes the site functionally strongly comparable to the FRaME demonstration site in the IJzer valley (B) where a similar system of water management and land use solutions is being implemented (be it at a significantly different scale). A peculiar functional and spatial differentiation is observed: a large estuarine area is subject to fresh water flooding under indirect tidal influence, while a few small coastal NLU projects downstream of the tide locks are being developed. The latter are not being considered in detail in this review since they are rather considered with giving land back to the sea than to the river. By consequence, they have no impact on the estuarine flood control issue. The Baie des Veys itself hosts an important cultivation area of mussels and oysters in the off-shore waters. In the past decades, this important economic activity has suffered some set back due to silting up of the banks and pollutant contamination of the water. Measures to reduce the silting up of the cultivation banks are currently being studied and in a future phase, different scenarios will be evaluated in order to formulate adequate management measures in the total bay area. These may have an impact on the desired management scheme of the sluices on the rivers feeding the bay, and therefore on the total hydrological and ecological situation in the estuary. This issue is being studied in detail and the outcome will have to be incorporated with the needs and possibilities of all other conservation and development issues in the site.

Baie des Veys Situation map Baie des Veys (Bron: http://natura2000.environnement.gouv.fr)

Ecology The marshland area of the “Marais du Cotentin et du Bessin” is situated 250 km west of Paris in the Manche (Cotentin peninsula) and Calvados departments, in the Basse-Normandie region. The two departments meet in the Baie des Veys. The marshes of the Marais du Cotentin et du Bessin cover


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the four river valleys of the Taute, Douve, Aure and Vire. This uninterrupted stretch of marsh opens out into the sea at the Baie des Veys. The site is subject to a very marked oceanic climate with typically slight temperature differences, prevailing westerly winds and frequent rainfall. The marshes are subject to regular winter flooding. The Cotentin peat bogs cover 15 – 16.000 ha, making them the largest peat reserve in France. The Marais represent an exceptional wetland in terms of size and ecological diversity, hosting a mosaic of biotopes. It is the largest flatland area of peat in France. It hosts a good representative example of a western European coastal wetland, with its wet meadows along the coast. The site is a particularly favourable wetland for waterfowl because the bay and marsh complement each other: birds can feed in the marshes by day and roost in the bay at night. These wetlands are well suited for breeding bird species because of the lack of disturbance during the breeding season and the mosaic of biotopes. For migratory birds, the Marais du Cotentin play a prime role due to their position on the migration routes. Hydrology& Soil Due to their small gradient, the rivers have low evacuation capacity with respect to the amount of water captured in the catchment. A system of sluice gates downstream prevents salt water from flowing upwards to the marshes. This does not imply the exclusion of tidal impact since the outflow is blocked as well. The result is a regime of fresh water flooding under (indirect) tidal influence. This hydrological regime inherited from two centuries of management and water control has led to alternating flooding in winter and drying out in spring and summer. Peat is still the major soil component, although it can be concealed under surface mineral strata. Peat strata play a decisive role in the changes in height of ground water tables. Land Use Nearly the entire domain of wetland prairies is used for extensive cattle stock raising (1,4 Large Cattle Equivalents per ha), either by direct grazing or by cultivating grass for hay. In the sixties, several projects for land reclamation or drainage have been studied, in order to upgrade the area for more intensive agricultural activities. Due to the anticipated high costs and the problems the presence of peat would raise, they were abandoned. In the eighties the discussion between agricultural production and environmental protection rises again, to be strongly moderated by the appearance of the European issue of reduction of milk product reduction. This supports the maintenance and promotion of extensive livestock farming activities. The latter observation would then combine with the insight that maintaining and promoting the traditional livestock farming practice is the best way to guarantee the preservation of the so valuable ecological system. Abandoning the extensive grazing or haying would cause the marshes to be in danger of becoming completely abandoned, leading to progressive overgrowth by rank vegetation, scrub and, ultimately, woodland. This would in turn lead to the disappearance of the flora and fauna that are presently of great conservation significance.


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These insights led to the integration of the formerly opposed objectives of agriculture and environmental protection. Debate is still sometimes vivid, but the overall agreement reigning currently is that sustainable development will have to be based upon the integration of both values. In 1990, proposals for commercial exploitation of peat were subject to an environmental impact study. Finally, there is very little tourism in the area, but a lot of fishery and hunting. Environmental Protection Several parts of the site are in some way protected. There are six hunting reserves, one nature reserve, one public riverine reserve and one protected biotope reserve. All of the Cotentin and Aure marshes are classified as Natural Zone of Ecological, Floristic and Faunistic Interest (ZNIEFF), and a large part of the site is included in a Special Protection Area under EU regulations. The most important regional initiative however was developed in the late eighties, consisting of the creation of the Regional Natural Park “Marais du Cotentin et du Bessin”. The parc covers a total of 145.000 ha of which 25.000 ha wetland prairies and 16.000 ha peat bogs. It stretches over the territories of 144 municipalities hosting 65.400 inhabitants. The principal aim of the Regional Natural Park is to maintain extensive agricultural practices, but without the use of fertilisers or additional drainage, that could in turn also cause problems to the site. This type of management is considered to be the only way of assuring that the marshes have a lasting future. The purpose of the Regional Natural Park would also be to improve water quality, to manage watercourses and to develop fish stocks. 5.2. Objective aspects Has a clear strategic objective been developed ?

Yes. The Charter regulating the creation of the Regional Natural Park “Marais du Cotentin et du Bessin” (14 May 1991) was accepted by all 144 involved municipalities. It was elaborated in consultation amongst all involved; policy makers, local authorities and associations. The Charter formalises the project envisaging “the preservation and valorisation of the natural and cultural patrimony, while promoting the economical, cultural and social development in connection with its inhabitants”. A clear strategic objective is set and it has been officially installed in a legal document laying out the basis, setting the wider scope and drawing the strategic limitations for concrete action.

Has a clear operational objective been developed ?

Yes. The broadly scoped strategic objective is translated into operational objectives along the following fields of action:

• to manage and preserve the environment • to contribute to the economical development • to contribute to the country planning • to mobilise the population • to develop the knowledge on the state and evolution of the territory


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In particular the activity field concerning the objective of “managing and preserving the environment” is further specified in a number of concrete operational targets:

• to maintain and restore biodiversity • to restore the “bocage” landscape • to guarantee the preservation of the areas with major ecological

importance • to stimulate improvements of the waste management

The operational objectives are being elaborated at the level of individual projects or measures, ensuring that their impact serves the balance of the strategic objective for the entire park. The actual implementation of the Charter plan is conducted under supervision by two dedicated bodies:

• the Mixed Syndicate regrouping all stakeholders and steering the implementation process through analysis, evaluation and deliberation

• a multidisciplinary technical team supporting municipalities in the conception and execution of actual projects

5.3. Legal and governance aspects To what effect has national legislation been an impediment or opportunity for alternative land use strategies ?

The construction of a Regional Natural Park is in France the most suited official procedure to develop an action programme integrating “nature and landscape protection” and “economical development”. This legislative instrument has been exploited in all respects in the installation of the Regional Natural Park of the “Marais du Cotentin et du Bessin”. National legislation has therefore provided with the necessary frame deploy an integrated initiative at such a regional scale.

To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies ?

The Regional Natural Park contains some conservation sites recognised as such in the European networks. European legislation therefore provides for additional support to the conservation issues in the land use strategy planning. o the « Marais du Cotentin et du Bessin, Baie des Veys » site was

designated a Ramsar wetland in 1991, code France 7FR004 (surface 32.500 ha)

o two Natura 2000 sites intersect in the area: o FR2510046 Basses Vallées du Cotentin et Baie des Veys,

1990 (15.465 ha) o FR2500088 Marais du Cotentin et du Bessin – Baie des Veys,

1999 (29.270 ha) An important impulse to the discussion between the agricultural and conservational concerns has been the issue of the surplus production of


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milk products in the EU and the legislative reaction to that situation by providing support to initiative reducing milk production. This brought in a strong support to the option of maintaining and promoting the traditional extensive livestock farming practice. In addition to the legislative support, European programmes have been instrumental in studying, evaluating, instigating the establishment and supporting the operations of the Regional Natural Park (ACE 1983-’89, LIFE 1995-’98, agri-environmental support)

To what extent has a co-operation between government bodies or lack thereof affected the implementation of alternative land use strategies ?

The installed Regional Natural Park and especially its Charter base document is the result of a consultation process between local and regional authorities. It was accepted by all 144 municipalities involved, and can as such be seen as an indisputable instrument for balanced implementation of a land use strategy affecting a large area covering the jurisdiction of many independent authorities.

5.4. Organisational, technical and management aspects Who was the initiator and who were the actors of the process, and to what extent did they improve or facilitate the implementation of the NLU?

The start to the project was given in 1980-’81 when departmental and regional authorities (Directions Départementales de l’Agriculture et des Forêts (DDAF) resp. Délégation Régionale à l'Architecture et à l'Environnement (DRAE)) installed a working group to formulate solutions to the problems presented at that time. From 1983 to 1989 studies were conducted in the fields of pedology, agronomy, fauna and flora, in order to elaborate the “wetlands charter”. With the formulation of this document, and its acceptance by the participating municipalities, the actors and their mutual relationships are established.

Has there been functional instruments to implement the strategy ? The functional instruments to translate strategic options and decision into operational objectives consist of the deliberation processes between the stakeholders as they are regulated in the Park Charter. Important bodies in this process are the Mixed Syndicate and the Technical Support team.

Has there been a methodology on which the planning was based ?

Not specified. Has there been flexibility of the organisation structure and process towards practical and operational needs ?

The way of working through a Charter clearly stating the broad scope of the Park and the means and procedures to bring this scope into operational and practical existence (including supervising and supporting


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bodies) in se provides for flexibility and the need for deliberation between stakeholders and project partners. The impact of individual projects and activities needs to be considered with respect to the envisaged balance over the entire park en region. It is however inevitable that in specific local situations, conflicts may rise between individual stakeholder interests. This is where the strategic umbrella and the supervising bodies play their major role in maintaining a balanced regional project.

Has there been a clear decision procedure to judge which is the desired state of a NLU area ?

Yes and no. Deliberation amongst all stakeholders throughout the conception and planning phase of the Regional National Park is a central theme in the Park operational way of working. The decision procedure consists of searching a common understanding between stakeholders, not of a predefined scheme under which a unique solution is imposed to a certain situation.

Has there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied ?

Yes. From 1983 to 1989 studies were conducted in the fields of pedology, agronomy, fauna and flora, in preparation of the “wetlands charter”. These studies were supported through regional, national and European funding (ACE programme). Several modelling studies were executed in order to evaluate the impact of modified sluice operation.

Result of one of the modelling studies (red are the areas with strong silting-up) The impact of possible controlled summer flooding of a part of the Park was studied with respect to land use and ecological development. The


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opposition to the loss of agricultural land however prevents its implementation.

5.5. Communication aspects Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan ?

The central process of deliberation at each of the strategic, operational and practical levels can as such be seen as societal participation. Opposition is a nearly constant factor in this regional scale programme, drastically affecting both agricultural and environmental issues. Hence the importance of an integrated approach where stakeholders from all sectors are involved in the consultation, conception, planning and implementation. One of the five core strategic objectives of the Park Charter is “to raise public awareness”. Public awareness campaigns are permanently running.

5.6. Societal, economic and ecological consequences Are the observed ecological effects positive, are they lasting, and can negative effect be reversed ?

The evaluation of the overall scheme is positive, as can be derived from the extension of the charter for 10 more years in 1997. From the preparatory studies performed, it can be derived that without the initiatives developed by the Park authorities, the existence of the marsh and wetlands was under serious threat. By consequence, the Park has offered significant operational support to safeguarding this important natural value. Several other initiatives, ideas and options that might have brought further improved functionality with respect to the environmental value of the area have not been realised due to opposition to giving up agricultural land. It is clear that the balancing between both fields of interest limits the possibilities of each individual activity field.


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Pictures taken in winter (Source: http://www.normandia.com)

Are there economic consequences and was there any kind of financial compensation?

The economic consequences are mostly focused on the agricultural practice conducted in the Park area. While some two decades ago, this extensive cattle breeding activity was bound to be abandoned, the installation of the Park and the support possibilities linked to it have helped to promote and maintain this agricultural practice. The outcome is clearly beneficial for the agricultural sector.

Are there any social consequences towards planned NLU activities ?

There are no significant consequences to be noted since the Park activity basically comes to safeguarding a traditional agricultural land use practice.

5.7. Intervention aspects Has a clear intervention procedure been developed based on the decision procedure ?

The intervention procedure adopted is fairly straightforward. Once a project is determined to have suitable operational objectives serving the regional strategic objective, the actual implementation measures will be supervised by the technical team. This team will assist the project initiator and executor (municipality, land owner, association) in the implementation.

Has there been developed an intervention scheme containing a description of the timing and responsibilities during the operations (and also afterwards) towards ecology, economy and society, and were those elements monitored ?

Yes. All interventions are planned and executed under responsibility of the Park Mixed Syndicat. The actual implementation of the projects is being supported and supervised by a dedicated technical support team. In addition, an evaluation and revision procedure is explicitly foreseen in the Regional National Park implementation scheme. The RNP « Marais du Cotentin et du Bessin » was installed in 1991and the original Charter was revised, adapted and extended for another 10 years in 1997. At the same occasion, a number of additional municipalities subscribed to the Charter and thus joined the Park and its strategic land use planning.


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5.8. Were the objectives achieved ? The Regional Natural Park “Marais du Cotentin et du Bessin” appears to meet its core strategic objectives fairly well.

o The anticipated loss of the traditional landscape and ecological values of the marsh and wetland area has been countered to large extend.

o This was realised according to the original strategic objectives set, by maintaining and promoting the traditional land use practice of extensive livestock agriculture.

o European level impulses were successfully integrated in both the deliberation process and the support to the actual measures.

Nevertheless, the “Marais du Cotentin et du Bessin” cover an exceptionally large consistent area, with extremely high and internationally important ecological value. The carrying capacity in particular with respect to migratory and nesting waterfowl could still be improved through specific measures. Opposition to the linked loss of agricultural land however is at this time blocking such initiatives. 5.9. Summary and lessons learned Baie des Veys, F Key Area Key Area result Lesson Objective aspects Clearly specify strategic goals,

centred on five lines of action, captured in a Charter subscribed to by 144 participating municipalities, specifically for agriculture nature area. Translate the strategic goals into operational goals and practical measures on a project basis

It can be important to specify the actions and the elements you want to realize on the field, and the aspects you want implement (economical development, landscape conservation), in the very beginning of the project.


The construction of a Regional Natural Park is the appropriate official procedure to develop an action programme integrating “nature and landscape protection” and “economical development”.

The construction of a Park area can be useful to integrate the needs of different public sectors (e.g. social/industry, nature/agriculture, water control/cattle breeding, …). It is advisable to have a clear view on the local policy and legislation, and the opportunities that it brings.


The implementation of the Regional National Park Charter was under supervision by two dedicated bodies: o the Mixed Syndicate

regrouping all stakeholders

It can be helpful to provide for sound conceptual and strategic planning, translating in a stepwise manner into operational level objectives (local as well as thematic)


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and steering the implementation process

o a multidisciplinary technical support team which coordinated the different study aspects

and further on into practical measures.


Deliberation is a core process in the implementation of actions linked to the Park Public awareness development is a strategic goal

It is important to provide for broadly accessible and lasting deliberation platforms. Interests change over time, and so will the balance between them.


Preservation of the traditional land use leads to environmental protection Permanent conflict between conservation and agriculture interests remains

It is advisable to take advantages of economical evolutions and the impulse they can provide to the integration of apparently opposed interests (e.g. milk quota).


Intervention procedures are foreseen in the Charter procedure. Evaluation, revision and extension of the Charter proves overall satisfaction

The writing and implementation of a concrete and accurate management and monitoring program can trace eventual changes in the area and sensitivities at the public and partners.

Were the objectives achieved ?

The objectives are fairly well achieved

/

5.10. Contacts and information: The following persons and organisations were contacted; not all of them supplied us with information yet:

- l’Agence de l’eau Seine-Normandie, Direction des Bocages Normands, Rue de la Pompe 1, 14200 Hérouville-Saint-Clair, tel: 0033 – 02 - 3146.20.20, fax: 0033 – 02 - 3146.20.29, [email protected]

- DDAF de la Manche, Cité administrative, Bâtiment B, 50009 Saint-Lo Cédex, tel : 0033 – 02 - 3377.51.00, fax : 0033 – 02 - 3356.09.57, [email protected]

- le conservatoire de l’espace littoral et des rivages lacustres, Jean Philippe Deslandes, rue Pémagnie 5-7, 14037 Caen Cedex

- Forum des marais atlantiques, Quai aux vivres, 17300 Rochefort, 0033 – 05 -4687.06.00, fax: 0033 – 05 - 4687.69.90, [email protected]

- Parc naturel régional des Marais du Cotentin et du Bessin, Valérie Paquereau Maison du Parc, Rue de Cantepie 17, 50500 Les Veys, tel: 0033 – 02 - 3371.61.90, fax: 0033 – 02 - 3371.61.91

- direction régional de l’environnement (DIREN) Basse Normandie, Cite Le Pentacle, Avenue de Tsukuba, 14209 Herouville-Saint-Clair


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cédex, tel: 0033 – 02 - 3146.70.00, fax: 0033 – 02 -3144.7281, [email protected]

- Direction de la nature et des paysages; direction d’ études économiques et de l'évaluation environnementale, Avenue de Ségur 20, 75302 Paris Cedex 07, tel: 0033 – 01 - 4219.19.00

- Délégation à l’aménagement du territoire et à l’action régionale (DATAR), Avenue Charles Floquet 1, 75343, Paris Cedex 07, tel: 0033 – 01 - 4065.12.34

- Institut francais de l’environnement (IFEN), Boulevard Alexandre Martin 61, 45058 Orléans Cédex 1, tel: 0033 – 02 - 3879.78.78, fax: 0033 – 02 - 3879.78.70, [email protected]

- IFREMER, direction de l’environnement littoral (DEL), DEL Haute et Basse Normandie, Avenue du Général de Gaulle, 14520 Port-en-Bessin, tel: 0033 – 02 - 3151.13.00, fax: 0033 - 02 - 3151.13.01, [email protected]

- chambre d’agriculture Normandie, Rue des Rocquemonts 6, 14053 Caen Cedex, tel: 0033 - 02 - 3147.22.47, fax: 0033 – 02 - 3147.22.60; [email protected]

- Université de Caen, Anne-Marie Fixot, UFR de géographie, tel: 0033 – 02 -3156.58.07, [email protected]

- l’association Terre et Mer environnement, Cour Saint Martin, Rue Emile Demagny, 14230 Isigny-sur-Mer, tel: 0033 – 02 - 3121.89.78, fax: 0033 – 02 - 3121.34.41, [email protected]


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6. Case: Flood bank setback of Norfolk Broads (UK) 6.1. General case description The project overall The Broadland Flood Alleviation Project is a long-term project to provide a range of flood defence improvements, maintenance and emergency response services within the tidal areas of the Rivers Yare, Bure, Waveney and their tributaries. The project is based in the eastern part of the County of Norfolk, and also the northernmost part of Suffolk, both English counties. The project is based on an area called The Broads (or Broadland). In May 2001 BESL (Broadland Environmental Services Limited) was appointed by the Environment Agency to deliver these services in a 20-year programme of sustainable and cost-effective flood defences for Broadland. This is the first such project of its kind in Broadland – and in the country – to provide a long-term commitment to the continuing maintenance of riverine flood defences.

Location of Norfolk broads in UK context, and key fluvial features of the Norfolk Broads This publicly-funded project is being delivered by BESL under the Public Private Partnership Programme on behalf of the Environment Agency. BESL is a consortium of two private companies, Edmund Nuttall Ltd and Halcrow Group Ltd. For the first two years of the project BESL worked with CSERGE (Centre for Social and Economic Research on the Global Environment) part of the University of East Anglia. CSERGE assisted and advised on consultation and public participation aspects of the BFAP (Broadland Flood Alleviation Project). The Broadland grazing marshes, wetlands and fens all lie below current high tides. The riverside settlements face a future of higher sea levels with, as yet,


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no flood defences. Economic activity in the Broads, whether it be through agriculture, local commerce, recreational boating, fishing or rambling is heavily dependent upon reliable flood defences. The Broadland project meets rigorous environmental standards in a way that is technically feasible, cost effective, environmentally sound and acceptable to communities – this underpins BESL’s approach to the provision of sustainable flood defences. It is also a project that is subject to extensive public participation in a manner that identifies, and wherever possible and appropriate, incorporates the views and opinions of its stakeholders. Overall, the progressive implementation of the project will maintain and improve the Broadland environment for the benefit of local communities both now and into the future. The Project will implement flood defence improvements in Broadland whilst also aiming to ensure that navigation, recreational and wildlife interests are all fully protected. However it cannot do this entirely on its own. BESL must also consult widely with a range of stakeholders to ensure that the programme as a whole is sustainable both economically and environmentally and has continuing public support. The project represents a unique opportunity to integrate flood defence work with other public interest initiatives of benefits to the Broads. The Environment Agency is actively engaged in developing partnerships with stakeholders. The delivery of partnership benefits in conjunction with improved flood defences for Broadland forms an important element of the overall vision for the Project. The case study Managed retreat is one of the flood alleviation solutions being promoted in Broadland. In the project area, this is called ‘setback’ and involves constructing a new flood bank up to 50 metres inland from the existing in one (i.e. setting back a flood bank). This is usually planned where the erosion protection provided by either a reed rond, or sheet steel piling in insufficient. Stable ground conditions, sufficient local sources of clay for construction and landowner agreement are factors that contribute to the feasibility of setback. Where setback is carried out, this involves the existing flood bank being removed once the new bank is stable. Once this is done, the rond can become flooded at most normal high tides and drain as tides recede. This acts to allow the river to act more naturally while still being an embanked watercourse – it also increases flood storage capacity during peak flood events. Re-profiling the existing flood bank allows a substantial area of new rond to be established, enhancing the local presence of this wetland habitat type. Reeded ronds in the study area have alternative uses that include nature conservation, recreation (such as angling and wildfowling) and growing and managing ronds for a crop of reed. Among the first setback schemes in Broadland will be carried out at Halvergate. Of the 6km of flood banks in the study area, setback is the solution for 2.5km.


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6.2. Objective aspects Has a clear strategic objective been developed ?

Yes. The Broadland Flood Alleviation Project is implementing the Environment Agency’s Flood Alleviation Strategy for Broadland, 1995.

Has a clear operational objective been developed ?

The Broadland Project has an environmental vision and three over-arching aims that set out and encapsulate a high-level approach to delivering sustainable flood defences. They are:

1. To improve flood defences and to increase flood banks’ resistance to breach with an allowance for future bank settlement and sea level rise;

2. To provide flood defences to undefended riverside communities; and

3. To provide sustainable flood defences that are technically feasible, cost effective, environmentally sound and acceptable to communities.

6.3. Legal and governance aspects To what effect has national legislation been an impediment or opportunity for alternative land use strategies ?

Though a publicly-funded, public infrastructure project of the Environment Agency, sponsored by Defra (Government’s Department of Environment, Food and Rural Affairs), The Broadland Project must still comply with a full range of national legislation. This especially relates to planning and environmental protection legislation, having regard to the duties of the Broads National Park duties that include a remit for navigation, conservation and public access/enjoyment. Each presents additional duties and responsibilities to this project. Because of the potential cost uplift over core flood defence objectives it has been necessary to develop a shared vision between key organisations. Strategic partnerships have therefore been developed to add value to aims and objectives of different organisations.

To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies ?

Broadland is considered one of Europe’s finest wetlands supporting a wide range of habitats and species. The nature conservation value of the study area is recognised through various international, national and local designations:

International

• Breydon Water SPA (Special Protection Area) (including Breydon Water Marine Site);

• Breydon Water Ramsar Site; • Broadland SPA; • Broadland Ramsar Site; and • The Broads cSAC (Special Area of Conservation);


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Breydon Water SPA The SPA comprises Breydon Water SSSI (Sites of Special Scientific Interest) and part of Halvergate Marshes SSSI. The site provides habitat for a large assemblage of wintering and migratory waterfowl including the Annex 1 species (of the Birds directive) Bewick’s swan (Cygnus columbianus bewickii), Avocet (Recurvirostra avosetta), Golden plover (Pluvialis apricaria) and Ruff (Philomachus pugnax). In summer a further Annex 1 species, Common tern (Sterna hirundo), is present in nationally important numbers. In addition, the site regularly supports over 20.000 waterfowl. Both the Halvergate and Breydon component SSSI’s are utilised by most of the species, though Golden plover and Ruff tend to favour the grazing marshes while Avocet remain on the mudflats in the winter. The Halvergate SSSI includes the RSPB’s Berney Marshes Reserve (RSPB = Royal Society for the Protection of Birds). Large numbers of birds are attracted to Berney, where water level management and sanctuary from shooting provide ideal conditions. An area of arable conversion, currently outside the designated site, is particularly attractive for both wintering and breeding birds. The Breydon Water Marine Site comprises those areas of the Breydon Water SPA that are covered continuously or intermittently by tidal waters (i.e. Breydon Water SSSI and the ronds within Halvergate Marshes SSSI). The qualifying interest is the same as that of the SPA, and the important habitats are those listed for Breydon Water SSSI. Breydon Water Ramsar Site The boundaries of this site are co-incident with those of Breydon Water SPA. The qualifying interests are Bewick’s swan, Lapwing (Vanellus vanellus) and the large assemblage of wintering waterfowl. Broadland SPA The SPA comprises 27 SSSI’s throughout Broadland. Component sites within compartment 11 are Decoy Carr SSSI and part of Halvergate Marshes SSSI. Upstream of compartment 11 two further component SSSI’s, Cantley Marshes and Yare Broads and Marshes, adjoin the river. Halvergate Marshes supports the following Annex 1 species: Bewick’s swan, Bittern (Botaurus stellaris), Whooper swan (Cygnus Cygnus), Marsh harrier (Circus aeruginosus), Hen harrier (Circus cyaneus) and Ruff. Lapwing, a non-Annex 1 species, also occurs internationally important numbers. The site also qualifies because it regularly supports at least 20,000 waterfowl, including populations of Gadwall (Anas querquedula), Pink-footed goose (Anser branchyrhynchus) and Shoveler (Anas clypeata) that are of European importance. Broadland Ramsar Site The Ramsar site comprises 28 SSSI’s throughout Broadland i.e. the same ones as the Broadland SPA with the addition of Damgate Marshes. Component sites within compartment 11 are Damgate Marshes SSSI, Decoy Carr SSSI and part of Halvergate Marshes SSSI. Cantley


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Marshes SSSI and the Yare Broads and Marshes SSSI are also included within this site. The citation refers to:

1. Regular usage >1% of the biogeographic populations of waterfowl species;

2. Supports an appreciable assemblage of rare, vulnerable or endangered species or subspecies of plant or animal, or an appreciable number of individuals of any one or more of these species; and

3. It comprises many good and representative examples of wetland habitat characteristic of the biogeographical region.

Broads cSAC The Broads cSAC comprises 27 SSSI’s throughout Broadland. Component sites within compartment 11 are Damgate Marshes SSSI, Decoy Carr SSSI and part of Halvergate Marshes SSSI. Cantley Marshes SSSI and the Yare Broads and Marshes SSSI are also included within this site. The site is designated because it contains habitat types or species that are rare or threatened in a European context. Part of Halvergate Marshes SSSI form part of the cSAC designation due to the presence of alder carr woodland on the floodplains and naturally nutrient rich lakes (dykes) that are often dominated by Pondweed (Potamogeton lucens). Extensive discussions and negotiations have taken place with English Nature and Defra on the principle of retreating the line of riverine flood defence (setback) into the European site. In the case of Halvergate, English Nature was able to advise that the flood defence works were ‘necessary for the conservation management of the European site’ on the grounds that failure to protect the site from the damaging effects of a breach would cause long-term, damaging saline inundation of the protected freshwater features. The standard of flood defence was suitable to allow some saline overtopping, but at a frequency (10 to 1 chance) that allowed habitats and species to recover. Habitat Change for Halvergate Habitat Area (ha) within

European site Area (ha) outside European site

Total

Rond +9.7 -0.1 +9.6 Floodbank +3.6 +0.5 +4.1 Folding -0.2 -0.1 -0.3 Soke Dyke +3.9 +1.1 +5.0 Grazing Marsh Dyke -0.6 -0.03 -0.63 Grazing Marsh -16.1 0 -16.1 Scrub -0.03 0 -0.03 Arable 0 -1.4 -1.4

While setback has created 9.5 ha of reed rond (a priority habitat) setback has also necessarily resulted in a loss of 16.1 ha of lowland wet grassland, in this case grazing marsh (also a priority habitat). The statutory advice on this proposal is that the benefits for the conservation


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of the freshwater ecological interest outweighed the loss of grazing marsh habitat. BESL have re-provided this on a voluntary basis through habitat creation and reversion of former arable land adjacent to the designated site.

To what extent has a co-operation between government bodies or lack thereof affected the implementation of alternative land use strategies ?

The key organisation is the Broads Authority who are the National Park Authority as well as the local planning authority. They thus have a wider stakeholder role and a statutory function to operate the local planning decision-making process. The statutory plan for the area is the ‘Broads Local Plan’, a statutory development framework adopted in 1997. It contains a positive policy framework to help the Environment Agency deliver its programme of flood defence improvements. The Authority’s management plan, the ‘Broads Plan’, adopted in 1997, also provides a positive context for the Authority’s wider work to help deliver the flood defence work. Another key statutory body is English Nature who have examined specific aspects of BESL’s supporting technical work concerning hydraulic modelling and the contribution of BESL’s work to medium term targets to bring designated sites into favourable condition.


The initiator is the Environment Agency and the work is being carried out on their behalf by BESL. The key decision making agencies were the Broads Authority and English Nature. The RSPB is an NGO who have a direct interest in the area being an owner of the Berney Nature Reserve in Halvergate. They were a key actor in the decision-making process.

Have there been functional instruments to implement the strategy ?

Yes. BESL’s work for the Environment Agency is based on stringent financial controls that are verified to ensure best value of public expenditure. All expenditure is in accordance with prevailing Government policy for flood defence.

Has there been a methodology on which the planning was based ?

Yes, there is a clear set of decision-rules by which setback is proposed as a valid technical solution. The planning, design and implementation of all of BESL’s work for the Environment Agency is based on a rigorous set of environmental standards that have been subject to public scrutiny and endorsement. The proposals for Halvergate were assessed by the Broads Authority in accordance with the policies of the statutory Broads Local Plan.


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Has there been flexibility of the organisation structure and process towards practical and operational needs ?

The organisational structure of the Environment Agency and BESL is solely geared towards delivery of flood defence improvement in consultation with key local stakeholders and, crucially, landowners whose agreement is required.

Has there been a clear decision procedure to judge which is the desired state of a NLU area ?

Yes. There are clear objectives for the creation of new setback flood banks, and the rond in front of it that provides the erosion protection. Post construction monitoring is an essential component of planning and will take place for at least two years to verify predicted impacts, and to ensure the enhancements have been delivered. BESL has convened a panel of local experts in the field of rond establishment and usage. They will advise on alternative models for habitat creation and management. Being among the first of the new setback areas, monitoring in Halvergate will continue over several years before drawing conclusions on its outcome.

Have there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied ?

Yes. Setback provides the opportunity for significant ecological enhancement to the existing habitats by creating a mosaic of brackish communities including new large areas of reed rond and saltmarsh communities. Vegetation communities on the existing ronds at Halvergate are a mixture of reed swamp and mid to upper saltmarsh. The extent of the different communities is summarised in table1. The rond edge next to the river and drainage channels tends to be dominated by sea couch grass (Elytrigia atherica) i.e. ‘high saltmarsh’ whilst the relatively lower ground behind has a mixture of species typical of mid-upper saltmarsh. Stands of reed tend to be confined to the band of rond next to the flood bank following the line of the former backfilled soke dyke. Further upstream, above Seven Mile House, there is some saltmarsh on the first section of rond but the remainder are dominated by reed. Photographs in Appendix 1 give examples of the existing rond vegetation communities. The objective of ecological management on the new rond at Halvergate will be to establish similar vegetation communities to those that already exist, although the extent of these habitats will significantly increase. To establish successful reed bed, a series of lateral drains (‘grips’) will be dug to link the old soke dyke with the new water/rond interface. These will allow the rond to be flooded adequately at high water. The grips will allow water on and off the rond as the water levels fluctuate. These grips will be subject to some erosion where they connect into the main river due to normal tidal flows into and out of the rond. BESL will assess the need for soft erosion protection in these locations. BESL’s approach to erosion and erosion protection is set out later in this report.


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The new rond will form an integral part of the new setback flood defences. BESL will design and initially manage the rond to ensure its long-term effectiveness for flood defence purposes and also to accrue the ecological and landscape benefits associated with this solution. Following the establishment of the vegetated rond and removal of piling, BESL will review the need for further work to the flood defence as part of its annual maintenance programme for the remainder of the overall Broadland contract.

Aerial photo of setback works underway in Halvergate. July 2003. The creation of a reed rond will provide natural erosion protection; this is an integral part of the proposals. Reeds are technically suitable for channels in soft silty clays and muds such as those in Broadland. They dissipate boatwash by absorbing up to 60% of wave energy. They are able to tolerate tidal waters and seasonal fluctuations in water levels. The amount of rond being generated by the proposed setback provides considerable protection against moderate rates of erosion. However the line of existing piling will be retained in place to allow the reed rond to establish. The vegetation communities that develop on the new rond will be monitored by a combination of fixed point photographs and recording species composition and cover within quadrats across the rond.

6.5. Communication aspects Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan ?

Yes. There was substantial public consultation before progressing to the formal planning stage. As this is a new approach to flood defence on inland waterways, a number of significant policy decisions needed to take place. Although few objections were recorded there was concern about the likely success of previously untried methods. This public consultation for Halvergate is part of a wider consultation strategy by BESL to communicate effectively at the appropriate level on all aspects of its work.


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6.6. Societal, economic and ecological aspects Are the observed ecological effects positive, are they lasting, and can negative effect be reversed ?

At the time of writing (Autumn 2003) the first year of a three-year work programme had been completed. It is too early to measure actual environmental responses, or to audit consistency with predicted environmental effects. An EIA for the Halvergate scheme was undertaken and reported no significant adverse environmental impacts (after mitigation or management systems are put in place).

Photographs of some rond habitat types that will be created or recreated as part of the setback works (source: J. Halls, 2002)

Are there economic consequences and was there any kind of financial compensation ?

Landowners are compensated for direct losses during construction and for permanent changes in land usage afterwards. These can include loss of marshland available for cattle grazing, loss of income from agri-environment schemes (particularly the Environmentally Sensitive Areas Scheme) and other incidental costs. However, in practice, many potential claims are mitigated by a positive and pro-active relationship between the BESL contractor and landowners.

Are there any social consequences towards planned NLU activities ?

There are no long-term social consequences, expect for the long-term positive benefits of protection from the damaging effects of saline flooding. At a detailed level, there are recreational uses that may be affected in the short-term, notably public rights of way, navigation, birdwatching angling and wildfowling. The EIA for the project has concluded that any residual significant impacts after mitigation measures are in place are short-term, during construction only.

6.7. Intervention aspects Has there been developed a clear intervention procedure based on the decision procedure ?

Yes. There is a clear methodology and procedure in place for physically effecting the change in land use (and removing the existing floodbank).


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Has there been an intervention scheme containing a description of the timing and responsibilities during the operations towards ecology, economy and society, and were those elements monitored ?

Yes. There is a monitoring scheme in place as part of the Environmental Action Plan.

6.8. Were the objectives achieved ? Specific objectives were defined and were achieved. 6.9. Summary and lessons learned Flood bank setback of Norfolk Broads, UK Key Area Key Area result Lesson Objective aspects Improving and providing

(sustainable) flood defences along the tidal rivers.

It can be important to make clear the elements you want to realize on the field, and to give a firm basis to the reason why implementation is necessary (flood problems).


The statutory advice and policy is in place to deliver this type of flood defence solution. Its eventual success also depends on agreement with landowners.

It is advisable to have a clear view on the local policy and legislation, and the opportunities that it brings. Flexibility in policy or acting to the intention of an order is important.


An innovative and sustainable flood defence solution that relies on monitoring to test and confirm the validity of environmental predictions and of the suitability of the solution.

It is advisable to design the interior of the FCA’s carefully to suit the needs that can be derived from the land use objectives.


Positive public consultation set in the context of a wider on-going inclusive, participatory process.

The provision of a flexible and broad deliberation platform or consultative body is essential. If already a platform is available it is advisable to fit the new participatory process in the existing platform.


A full EIA was carried out as part of the statutory planning and consenting process. The significant effects are likely to be during construction only, with no long-term residual effects.

It is useful to assess the planned activities and the way in which they will affect the environmental conditions, and to remedy or re-evaluate (second opinion) the planned activities.


There is a clear methodology and procedure for construction. There is a monitoring programme to verify the predictions, and may highlight further remedial work if

It is advisable to determine in advance the desired species and vegetation types and implement an accurate monitoring program (for al


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unexpected effects are also detected.

types of animals and plants; monitoring the field situation to test the validity of vegetation predictions).


At this stage, all high-level objectives for the project overall and the Halvergate scheme are met.

/

There has been very significant lessons learnt amongst organisations involved in decision-making for these works in Halvergate, being located in a National Park, and in European sites. These are mainly concerned with establishing new structures for decision-making in ways that support common objectives for the management, protection and implementation of vital work to promote flood alleviation work in the public interest. It is too early to tell at this stage what lessons can be learnt about implementation. 6.10. Contacts and information: The following persons provided relevant information:

- Paul Rao, Environmental Manager, Broadland Environmental Services Limited, 103 Prince of Wales Road, Norwich NR1 1DW, United Kingdom, Tel +44 (0)1603 226161, [email protected], www.halcrow.com


- Several Halcrow c.q. BESL studies on the Norfolk Broads


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7. Case: Paull Holme Strays in Humber Estuary (UK) 7.1. General case description The Humber Estuary is one of the North Sea’s major estuaries, draining more than one fifth of England’s land area. It also has the largest tidal range on the east coast of the British Isles. The estuarine/intertidal habitats and species supported by the estuary, especially the large numbers of wetland birds, give it international importance in this respect recognised by the majority of the area being designated as a Special Protection Area (SPA) and possible Special Area of Conservation (pSAC) under the EU Birds and Habitats Directives respectively. Land around the estuary is protected by 235km of flood defences largely comprising grassed, earth embankments, or heavier rock/stone protected banks where the wave climate makes this necessary. Land use in the estuarial flood plain comprises agriculture (with significant reclamation for agricultural use having taken place historically), nationally important port facilities at Goole, Hull and Immingham/Grimsby, and large areas of industry. The Paull Holme Strays area (previously known as Thorngumbald) lies on the north bank of the Humber some 10km to the south east of Hull. In 1995 a 2,5km length of sea defence (embankment) fronting this area, and ultimately providing protection to Hull itself, was identified as being in need of urgent improvement to ensure the appropriate standard of flood/tidal protection was maintained. After considering many options for the provision of new defences in the area a strategy of ‘managed realignment’ was selected. The proposals received planning consent in 2001 and construction was completed in 2003. The consultation, design and consenting period took many years due to the complexities of application of the EU Habitats Directive, links to ongoing development of longer term plans for the estuary e.g. The Humber Estuary Shoreline Management Plan (HESMP) and the Humber Estuary Coastal Habitat Management Plan (CHaMP). In summary the proposed defence realignment scheme and creation of the NLU involved: • Construction of a new embankment between 500 and 250m landward of

the existing defence line; • Construction of new ‘drainage’ ditches to landward of the new

embankment; • Creation of two breaches (one of 150m and one of 50m) in the ‘old’

embankment to allow tidal waters into and out of the site. • Considerable modelling of the breach scenarios was undertaken to

optimise the filling and emptying of the site and minimise risks of scour / creek formation in unwanted areas.

• Provision of some new protection to parts of the new and old defence in areas where erosion might be problematic.

• The strategy for the majority of the old bank was to let it gradually decay with wave action etc, over time.


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The realignment (or NLU) area included the following features, prior to implementation, many of which had to be considered carefully in the design of the scheme. • Two lighthouses of navigation and historic importance – access to the long

term security from flooding/erosion had to be provided; • The majority of the NLU had been previously reclaimed earlier in the 20th

century by empoldering; • Existing internationally protected intertidal habitats; • A gas distribution compound, which had to be excluded from the NLU and

two high pressure gas pipelines running under the NLU, which had to be provided with protection from future scour.

• A gravity-fed freshwater drainage outfall, which required installation of a pumping station to ensure continued operation.

The project was promoted by the Environment Agency (who are responsible for the provision of appropriate flood and coastal defences in the UK), funded through the flood defence budget of the Government’s Department of Environment, Food and Rural Affairs (DEFRA) and supported by a number of other organisations who formed an Environmental Steering Group, including English Nature, Royal Society for the Protection of Birds (RSPB), Yorkshire Wildlife Trust, East Riding of Yorkshire Council and Paull Parish Council.

7.2. Objective aspects Has a clear strategic objective been developed?

Yes. The original strategic objective at the area was to provide improved tidal defences. It was decided that the most economic and most

Humber Estuary Existing mudflat Approximate boundary of NLU area


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environmentally desirable way to achieve this was to ‘set-back’ the defence and create a NLU. The strategic objective for the site in terms of an NLU became the creation of intertidal habitat to provide ‘compensation’, under the Habitats Directive, for the adverse impacts of other tidal defence works in the estuary and for the intertidal habitat losses being caused by ‘coastal squeeze’ Note: ‘coastal squeeze’ is a term used to describe the process by which sea level rise causes loss of habitat where this is adjacent to hard defences i.e. where habitats cannot migrate in land.

Has a clear operational objective been developed ? Yes. A number of clear objectives for the NLU were developed by an Environmental Steering Group. These included the provision of approximately 75ha of intertidal habitat of suitable quality (over time) to qualify for inclusion within the SPA/pSAC boundary and provide appropriate ‘compensation’ for losses/changes elsewhere in this part of the estuary. More specifically a scheme of monitoring was put in place to measure the development of the site against a number of targets: • Quantitative habitat creation targets based on levels of habitat losses

elsewhere – the NLU is anticipated to absorb these easily. • Provision of the following habitat types, based on topography and

anticipated tidal inundation regime:

- 3ha upper saltmarsh - 25ha middle saltmarsh - 15ha lower saltmarsh - 32ha of mudflat (including 15ha of potential temporary muddy

pools where borrow pits existed).


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Qualitative targets comprising lists of characteristic species / communities for the above habitat types and for birds using the area. • A number of other ‘soft’ objectives were set for the site including the

provision of footpaths around the perimeter, car parking, interpretation boards and bird hides for ornithologists.

7.3. Legal and governance aspects To what effect has national legislation been an impediment or opportunity for alternative land use strategies?

In this case there has been some impediment in terms of the long time taken to achieve the NLU area, but this has more to do with the national interpretation of European legislation and the lack of familiarity of the relevant authorities in dealing with this legislation (see below).

To what effect has European legislation (e.g. Natura 2000) been an impediment or opportunity for alternative land use strategies?

European legislation in the form of the Habitats Directive has been both an impediment to and driver of the development of the NLU area. The requirement placed on the UK Government, by the Directive, in respect of ensuring the maintenance of SPA/SAC integrity and the compensating for ‘coastal squeeze’ losses has been a significant driver for the project. The priority habitats and species, listed within the Directive, have also been a significant driver for the design of the NLU area. However it is also true that the lack of familiarity, of the relevant authorities and organisations, with the UK Habitats Regulations caused significant delays in the consenting process. The definition of ‘significant adverse effect on integrity’ of the site was a key factor in this.

To what extent has a co-operation between government bodies or lack thereof affected the implementation of alternative land use strategies?

Cooperation between government (and other) bodies was generally good in striving to implement the NLU area. Key Government parties were: • Environment Agency (lead authority with regard to promotion) • Defra (provision of main funding) • English Nature (advisor with regard to the Habitats Directive) • East Riding of Yorkshire Council (planning authority and ‘competent

authority’ with regard to ‘appropriate assessment’ under the Habitats Regulations)


• The project was promoted by the Environment Agency as the most economic and environmentally sustainable option for improving tidal defences in the area.


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• Funding was secured through the flood defence budget of the Government’s Department of Environment, Food and Rural Affairs (DEFRA).

• Planning permissions was consented by East Riding of Yorkshire Council.

• The project was facilitated by a number of other organisations who with individuals from the above formed an Environmental Steering Group (ESG) including:

- English Nature - Royal Society for the Protection of Birds (RSPB) - Yorkshire Wildlife Trust, and - Paull Parish Council.

A significant factor in the implementation of the project was early negotiations with the two landowners. The purchase of the land from these was done in parallel with securing planning consent for the work.

Have there been functional instruments to implement the strategy?

The project was implemented through the existing framework of functional instruments available for the implementation of flood/coastal defences in the UK. A Section 105 agreement (a legal agreement produced as part of the planning consent) was set up to ‘guarantee’ the subsequent land use and management of the site for the purposes of securing planning consent for the project.

Has there been a methodology on which the planning was based?

The planning and design of the project was based on the following: • Environment Agency & Defra guidance and procedures for the

planning and implementation of flood/coastal defence capital works.

• Experiences and results of monitoring of other ‘managed realignment’ schemes in the UK e.g. at Wash Banks and Tollesbury.

• Consultation with interested parties representing nature conservation and local community interest.

• The qualifying features of the adjacent SPA/SAC formed a basis for design of the land use in the area.

• The production of an Environmental Action (or Management) Plan under the auspices of the Environmental Steering Group. This plan was initiated at the planning consent stage and developed through the detailed design and construction phases. It also dictates the likely management and the monitoring of the site for the first 5 years of operation/development.

Has there been flexibility of the organisation structure and process towards practical and operational needs?

Yes. The Environmental Steering Group was set up to guide and review the detailed design process and deal with any variations from the original


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planning consent that were found to be necessary due to constraints arising during the construction process.

Has there been a clear decision procedure to judge which is the desired state of the NLU area?

Yes. The design was based on meeting the requirements for ‘compensatory habitat’ under the UK Habitats Regulations. Obviously designs were constrained also by the topography and inundation regime for the area.

Has there been different technical and management approaches in implementing and maintaining land use changes considered, tested or studied?

Yes. The critical drivers for the development of the desired land uses (or in this case habitat types) in the NLU area are as follows:

• Topography – it was considered that this should remain largely as existing (no significant artificial changes), but that sedimentation in the NLU area would lead to raising of the lower mudflat areas over time.

• Breach size and location – in combination with topography the size and locations of breaches in the old (seaward) embankment are the main driver for the inundation regime, which in turn drives the habitat type. Breach design was extensively modelled to ensure an appropriate flooding regime for the site.

• Creek creation – drainage of the site was largely left to develop naturally once the breaches were constructed but some artificial channel/creek construction was carried out to constrain movement of water and development of natural creeks in

• areas where this might threaten the embankments. Some shallow ponds/scrapes were also constructed within the NLU area.

• Monitoring and Management – the development of habitats on the site is largely being left to ‘nature’ but this is being monitored closely to help decide what if any intervention may be needed in the future.

Humber Estuary

Old Flood Embankment

Agricultural land (previously reclaimed)


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7.5. Communication aspects Has there been any societal participation or opposition, and was this addressed successfully, or has there been a functional communication plan?

Yes. Community involvement and consultation hase been as follows: • The outline design of the project was subject to the normal

consultation process for planning consent in the UK • The Environmental Steering Group for the project included a

representative from Paull Parish Council, the local community representative body.

• Public meetings were held locally to discuss designs and identify other community enhancements such are car parking, footpaths and access for disabled persons.

There was no significant opposition and minor conflicts were resolved in public or specific stakeholder meetings. A communication plan was not produced at the beginning of the process, but this is now standard practice for the Environment Agency on such schemes. In this case the EIA and later the Environmental Action Plan laid out the plans for communications with statutory and other stakeholders through the design, implementation and operational phases. These aspects of the project were very successful

7.6. Societal, economic and ecological aspects Are the observed ecological effects positive, are they lasting, and can negative effect be reversed?

The area has only been subject to flooding since 10 September 2003 and the development of the desired habitats will take some time. Habitats, flora, fauna and morphological development of the site is being monitored. Early signs are that the predictions as regards inundation regime were very good and that therefore habitat development and the subsequent ecological benefits should be realised. Already the area is being used by large numbers of wetland birds. The positive effects should increase and be lasting. Any negative effects will be identified through the monitoring scheme and addressed through intervention if necessary.

Are there economic consequences and was there any kind of financial compensation?

The land was previously in agricultural use and the project was clearly going to prevent this in the future. There were two landowners at the site and agreements were reached for the purchase of the land. The purchase was made economically viable by the improved flood defences realised by the scheme.


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Are there any social consequences towards planned NLU activities? It is planned that the NLU area will bring a number of social benefits including:

• Better and more interesting recreational footpaths with some access for disabled persons;

• Improved flood defences for persons living within the flood risk area;

• Bird watching facilities and opportunities • Local car park to aid access and interpretation boards for the

purposes of ecological education. 7.7. Intervention aspects Has there been developed a clear intervention procedure based on the decision procedure?

The planned process is to reduce intervention to a minimum and makes decisions to do so based on the results of monitoring. Possible interventions might include:

• Increased protection may need to be supplied to the high pressure gas pipes that go under the site, if erosion causes a problem;

• Increased protection may need to be provided to the new and old embankments in specific locations, if erosion causes a problem;

• Further re-profiling or construction of scrapes/ponds or artificial creeks may be implemented, if habitats do not develop as anticipated.

View from the lighthouse (Source: http://myweb.tiscali.co.uk/hullvalley/hv05010.htm) Has there been an intervention scheme containing a description of the timing and responsibilities during the operations towards ecology, economy and society, and were those elements monitored?

There is extensive monitoring of the ecology planned and any required interventions will be highlighted by this. Monitoring of any economic and societal aspects are less likely. Perhaps use of the site by different groups (cars, walkers, birdwatchers, disabled persons etc) should be implemented to better understand the economic benefits arising in this area.


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7.8. Were the objectives achieved ? Specific objectives were defined and were achieved. 7.9. Summary and lessons learned Example: Paull Holme Strays in Humber Estuary, UK Key Area Key Area result Lesson Objective aspects Clear strategic and operational

objectives were set It is essential to specify the actions and the elements you want to realize on the field


The legal and governance opportunities to create the NLU area were present, but procedures associated with Habitats Regulations consenting process were unfamiliar to the parties involved (this will be better in the future) and this created long time delays

It is important to have a good knowledge of local legislation. Lack of familiarity with the requirements of the regulations, directives, conventions, laws, policies, … can cause delays to the planning and consenting process.


Extensive monitoring was put in place for pre, during and post construction phases. The specific NLU was well planned.

It is important to model the inundation regimes; that can allow good prediction of the habitat types and that may reassure the project could deliver its objectives.


Communications were extensive and successfully planned and executed

Extensive consultation and the involvement of key parties in the design team ensured ownership of decisions and outcomes. Although this project proved extensive communication is important, the setting up of a steering group to guide detailed design of the area and make quick decisions regarding environmental aspects during the construction phase has proved invaluable.


Those aspects were more or less studied before the dike breaching, but will probably be studied intensively later on.

The production of an environmental plan can provide all parties with assurances regarding the environment.


Intervention procedures, dictated by monitoring are reasonably clear.

The production of a detailed scheme of monitoring can provide all parties with assurances regarding protection of the environment both during and post construction.


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Excellent NLU appears to be in development. This was well planned and executed, although the time to achieve design and consents was considerable.

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7.10. Contacts and information: The following persons provided relevant information

- Keith Slaney (Project Manager), Environment Agency North East Region, Phoenix House, Global Avenue, Leeds, LS11 8PG, [email protected]

- Helen Richardson (Humber Ecologist), Environment Agency North East Region, 1 Viking Close, Great Gutter Lane East, Willerby Hull HU10 6DE, United Kingdom, [email protected], www.environment-agency.gov.uk


- # Halcrow studies on Thorngumbald c.q. Paull Holme Strays


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8. Main review conclusions 8.1 Introduction General overall observations In this final chapter we summarize the findings after reviewing and evaluating of five case studies. The analysed cases show a diversity of findings and lessons in implementing New Land Use on the field. These are summarised in brief:

• Aakvlaai is designed for recreational and ecological purpose all year round ànd to cope with long lasting high water waves. The main threat comes from river discharges, the tide plays only a minor role in this area. Operational since 2001; original objectives more or less achieved.

• Sieperdaschor is designed to work permanently taking the normal and critical peak of the high water wave during high tides. The main flood risk comes from storm surges at sea. The ecological purpose is the most important one. Sieperdaschor developed more or less spontaneously out of a former polder landscape. Operational since the early 1990’s; although no objectives were formulated, an interesting New Land Use type is achieved.

• For Baie des Veys the management challenge is selecting a water level management strategy that optimally satisfies all the interests present in the system. This case provides an illustration of controlled flooding, in which not the reduction of flood damage, but the maintenance of an historically relevant landscape in relation to the economical needs of the area is important. Management operational since 2002; objectives are fairly well achieved.

• The Norfolk Broads provide interesting illustrations of the construction of floodplains by managed realignment. As such, this site is innovative on an organisational rather than a technical level. Not yet fully operational, but at this stage all high-level objectives are achieved.

• The Paull Holme Strays site was constructed as a cost-effective replacement of existing defences that also provided compensation for nature losses due to flood defence strengthening elsewhere in the system. Operational since September 2003; excellent NLU appears to be in development.

Site-specific lessons are discussed in the relevant chapters and are not repeated here.

8.2 Individual lessons learned Intercomparison of the lessons of different NLU-cases, and drawing specific characteristics of each case studied The italic parts in the table on the following page can be seen as very specific ideas; not italic table cells give general lessons towards NLU implementation. Key Area

Aakvlaai Sieperdaschor Baie des Veys Norfolk Broads Paull Holme Strays

OB

JEC

TIVE

It can be important to make clear the elements you want to realize on the field, and the aspects you want implement (recreation, nature).

None It can be important to specify the actions and the elements you want to realize on the field, and the aspects you want implement (economical development, landscape conservation), in the very beginning of the project.

It can be important to make clear the elements you want to realize on the field, and to give a firm basis to the reason why implementation is necessary (flood problems).

It is essential to specify the actions and the elements you want to realize on the field

LEG

ISLA

TIO

N



The construction of a Park area can be useful to integrate the needs of different public sectors (e.g. social/industry, nature/agriculture, water control/cattle breeding, …). It is advisable to have a clear view on the local policy and legislation, and the opportunities that it brings.

It is advisable to have a clear view on the local policy and legislation, and the opportunities that it brings. Flexibility in policy or acting to the intention of an order is important.

It is important to have a good knowledge of local legislation. Lack of familiarity with the requirements of the regulations, directives, conventions, laws, policies, … can cause delays to the planning and consenting process.


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Key Area


TEC

HN

ICA

L

It can be important to have a soil flow plan. This plan identifies the soil types that are to be excavated and where the material is best reapplied. It is recommended to determine abiotic parameters. A soil plan can identify the soil types that are present, and by that abiotic prediction of the future biotic c.q. botanical situation is feasible (also on the field), and immediate and specific management measures can be taken. It can be useful to work with a neutral soil balance in order to prevent delays with permit procedures. Make sure to know where soil pollution can be present, in order to limit extreme increase of the costs. Non-refreshment of water can be prevented by making a detailed DTM, a river sand and river mud input analysis in situ and in vitro, and a surface water flow model.

It is important to realise that not all new land use needs planning. Daring to realise a concrete and controlled dike breaching on a well located and safe place, with only a negligible societal and economic relevance, can result in some interesting information on natural development (without human interfering) and practical (and not only theoretical) information based on terrain experience. Nevertheless, it can be recommended to determine abiotic parameters in similar (future) projects and in project monitoring. A soil plan should identify the soil types that are present, and by that abiotic prediction of the future biotic c.q. botanical situation is feasible (also on terrain), and immediate and specific management measures can be taken. By that

It can be helpful to provide for sound conceptual and strategic planning, translating in a stepwise manner into operational level objectives (local as well as thematic) and further on into practical measures.

It is advisable to design the interior of the FCA’s carefully to suit the needs that can be derived from the land use objectives

It is important to model the inundation regimes; that can allow good prediction of the habitat types and that may reassure the project could deliver its objectives.


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Key Area


CO

MM

UN

ICA

TIO

N

The provision of a flexible and broad deliberation platform or consultative body is essential; the lack of detailed information to the public at the project start, can be very invaluable for the progress of the process.

None It is important to provide for broadly accessible and lasting deliberation platforms. Interests change over time, and so will the balance between them.

The provision of a flexible and broad deliberation platform or consultative body is essential. If already a platform is available it is advisable to fit the new participatory process in the existing platform.

Extensive consultation and the involvement of key parties in the design team ensured ownership of decisions and outcomes. Although this project proved extensive communication is important, the setting up of a steering group to guide detailed design of the area and make quick decisions regarding environmental aspects during the construction phase has proved invaluable.

SOC

IETA

L, E

CO

NO

MIC

AL,

EC

OLO

GIC

AL

It is useful to design the interior of the FCA’s carefully to suit the needs that can be derived from the land use objectives. The Aakvlaai nature aspects could do with a coarser design than a nature recreation area. It can be a useful addition to the landscape to create small elevated areas, used for e.g. grazing cattle, in between channels and islands. The enlargement of spatial and biological diversity in that way, can increase the recreational appreciation.

It is important to realise that a nature area, can do with a very coarse ‘design’. The addition of small elevated areas in the new nature area can ease goal-oriented (ecological) measures (e.g. terps for cattle grazing, education spots, …)

It is advisable to take advantages of economical evolutions and the impulse they can provide to the integration of apparently opposed interests (e.g. milk quota).

It is useful to assess the planned activities and the way in which they will affect the environmental conditions, and to remedy or re-evaluate (second opinion) the planned activities.

The production of an environmental plan can provide all parties with assurances regarding the environment.


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Key Area


INTE

RVE

NTI

ON

It is advisable to determine in advance the desired species and vegetation types and implement an accurate monitoring program (for al types of animals and plants); in that way it is possible to intervene quite quickly when some unwanted land use evolution occurs.

The writing and implementation of a concrete and accurate management and monitoring program can trace eventual changes in the area, so that undesired effects can be countered immediately.

The writing and implementation of a concrete and accurate management and monitoring program can trace eventual changes in the area and sensitivities at the public and partners.

It is advisable to determine in advance the desired species and vegetation types and implement an accurate monitoring program (for al types of animals and plants; monitoring the field situation to test the validity of vegetation predictions).

The production of a detailed scheme of monitoring can provide all parties with assurances regarding protection of the environment both during and post construction.

8.3 Overall lessons learned Recommendations drawn from the KPI analysis on implementing New Land Uses in flood risk areas After analysing the individual lessons of the different case studies mentioned in this main review and after analysing the Key Area results, we can draw some conclusions. Those conclusions concern elements that seem to be essential in having a smooth course of the whole procedure starting from the first brainstorm to the finalisation of the field activities. Some aspects are – off course – quite obvious, but nevertheless important. The recommendations arising from this study have been subdivided to ensure that they are readily accessible for use in the FRaME demonstration projects. The subdivision is based on the three main phases of project implementation, i.e. Planning, Design, Implementation, but these phases are not mentioned as such. Though the succession of those three phases has been respected. We can mention the following aspects furthermore, information on detailed technical issues can be found within the FRaME literature review report): Lesson: Plan the strategy !!

The project best starts with a strategic planning. In this strategic planning one can determine which administration, authorities and private persons can be addressed, what is the objective of the study, which elements need to be assessed and analysed in the study, what will be the procedure of intervening, interviewing and communicating (see FRaME; strategy analysis, 2004). Some studies obviously go without previous strategy, though the risk of problems during maintenance and management is higher. The strategic objectives relate to long-term fundamental issues across an entire estuary, while the operational objectives refer to the goals of individual measures or projects and thereby enable the attainment of the strategic objectives. The establishment of clear objectives at the beginning of the project is essential in order to develop relevant New Land Use. Once the objectives are established, it must easily be possible to formulate and integrate alternative measures.

Lesson: Contact the key parties !!

The provision of a flexible and broad deliberation platform or consultative body is essential. A step-by-step part in which the different communication steps and practical measures that are necessary are lined out, can be advised. The provision of a ‘quick decision’ or ‘ad hoc’ steering group often proved to be invaluable. Anticipating on economical evolutions can create new options, and is easier when a deliberation platform is present. Communication issues are mostly critical and generally will need to have been dealt with at the planning stage, but ongoing consultation will almost certainly be required. The implementation of New Land Use may be seriously delayed when stakeholders oppose. Using the Main


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Review, it can not made not clear what can be an appropriate strategy to deal with this problem, but the earlier the opposition is addressed in the planning phase the better (see FRaME Communication Main Review, and Best Practice Manual, 2004).

Lesson: Fathom the different sensitivities !! Familiarity with local policy, legislation, authorities and all other kinds of ‘sensitivities’, as well as a detailed knowledge of the studied site is essential to be credible, to make your study convincing in the end, and to avoid delays. The range of solutions will also be determined by the regulations and policies at a local, national and European level. Options should be screened against these policy and legislation as early as possible in order that non-compliant options can be quickly eliminated.

Lesson: Give consideration to multiple land use types !!

Flood control often provides the economic justification for implementing an FCA, but measures to improve recreation, economical aspects or natural values are also useful to ensure successful progression of the project.

Lesson: Design carefully !!

A detailed designing plan is essential. It has to consider all conceptual ideas and especially the final ideas. One must be able to trace how the final ideas were chosen. Therefore study work must ‘go’ along essential lines, f.i.: o an inventory part by which it is possible to have insight in the

spatial, ecological, recreational, … relationships, potencies, bottlenecks and values. Given the nature of flood risk and the implementation of new land use in an area, designing of the NLU-area can rarely be considered in isolation from other tidal aspects (recreational, economical, nature values, etc.) around. It is therefore vital to take a broad approach (f.i. small project area, but very large study area). This will help ensure that the NLU is appropriate and its influence on flood risk is optimal. The visualisation of the present situation is also very important.

o a guiding part in which inventory elements are converted with regard to the definitive plan formation (drawing of aims or pursuits, target systems, eco-scope, …). It is common practice in the implementation of NLU areas to first consider a wide range of possible solutions, and then gradually reduce this range of options. It is recommended that a pragmatic ‘expert judgement’ is / can be used, in order to eliminate without excessive time or cost.

o a binding part in which one find a set of concrete measures. Usually the construction of NLU areas involves a number of measures that need to be carried out. Careful planning can save considerable time and money. Reusing soil1 that is dug out in the area itself for the construction of new dikes, for instance, may

1 A ‘soil plan’ can also be very useful. The qualitative and the quantitative aspects of the soil can be checked. In that way it is possible to reduce soil transportation (reduce cost, reduce contamination elsewhere), and it become possible to better determine spatial and ecological possibilities in the area concerned


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significantly reduce construction costs. Whether or not a certain scheme will work and to what extent, is usually not something that is easily established based on expert judgement. To deal with that, models2 can be used. Computer models are also often critical to gaining approvals, but in order to produce accurate computer results it is important to provide appropriate input information.

o a monitoring part increases flexibility, because new elements can more easily be integrated in the plan and realised on the field. Even adopting the best available technology and expertise during the planning and design phases is unlikely to remove altogether the uncertainty over the success of the scheme. In recognition of this, a useful approach is to accept a degree of uncertainty during the planning and design phases, but make sufficient provision for monitoring during operation such that remedial measures can be taken when necessary.

Some studies obviously go without previous designing and planning, though the risk of problems during implementation is higher.

Lesson: Make use of the existing guidances to NLU !!

Considerable effort has been spent in recent years on the implementation and monitoring of demonstration sites, and the development of guidance documents that have at least some bearing on the implementation of NLU areas. These are summarised in the FRaME Literature, Strategy and Communication Reports.

2 A ‘water plan’ can be very useful in New Land Use areas (used in Flood Control) with a significant sea and river water input and water level fluctuation. By that the areas with soil deposition and silting up can be indicated on forehand, so that specific actions can be undertaken and ad hoc intervening after implementation is not needed. Water refreshment reduces oxygen and overfertilization problems, so it can be useful to model how the water will flow, in which amount and where stagnation can result in anaerobic, unwanted situations. A clear modelling of inundation regimes has also an important, ecological and communicative relevancy


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For more information on the FRaME project contact the Project Manager Frank van Holst +31 70 3371 219 or Henkjan Faber +31 70 3371 242 or visit the FRaME website at http://www.frameproject.org Lead Partner:

DLG Government Service for Land and Water Management Burgemeester Feithplein 2 P.O. Box 3010 2270 JB Voorburg The Netherlands

FRaME is co-financed by the European Union Community Initiative Programme Interreg IIIBNorth Sea Region

For more information on the FRaME project contact the Project Manager Frank van Holst +31 70 3371 219 or Henkjan Faber +31 70 3371 242 or visit the FRaME website at http://www.frameproject.org

Lead Partner: DLG Government Service for Land and Water Management Burgemeester Feithplein 2 P.O. Box 3010 2270 JB Voorburg The Netherlands

FRaME is co-financed by the European Union Community Initiative Programme Interreg IIIBNorth Sea Region

FRaME Review and Evaluation of Alternative Land Use ......LTV Lange termijn visie Long term vision...

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