Cynulliad Cenedlaethol Cymru | National Assembly for Wales
Y Pwyllgor Newid Hinsawdd, Amgylchedd a Materion Gwledig | Climate Change, Environment and Rural Affairs Committee
Ymchwiliad i bolisi coedwigaeth a choetiroedd yng Nghymru | Inquiry into Forestry and woodland policy in Wales
FWP 17
Ymateb gan : Cyfoeth Naturiol Cymru
Evidence from : Natural Resources Wales
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Crynodeb Gweithredol: prif negeseuon
1. Mae Strategaeth Coetiroedd i Gymru (CiG) Llywodraeth Cymru (LlC) (2009) yn parhau i fod yn weddol addas at y diben, ond byddai trydydd argraffiad diwygiedig yn caniatáu gwell aliniad â deddfwriaeth Gymreig ddiweddar a’r Cynllun Adnoddau Naturiol Cenedlaethol (NNRP) er mwyn cyflawni dyheadau LlC yn llawn. Mae'n hanfodol bod y weledigaeth 50 mlynedd yn ddigyfnewid. Wedi ei diwygio rhaid i'r strategaeth ddod yn rhan fwy amlwg o bolisi ac arfer rheoli tir cynaliadwy Cymru er mwyn manteisio ar y buddion y gall coed, coetiroedd a'r diwydiant coedwigaeth eu cynnig i bobl, yr amgylchedd, yr economi a diwylliant Cymru. 2. Byddai Cynllun Gweithredu pum mlynedd, wedi’i ariannu, mwy uchelgeisiol yn darparu cyfleoedd ar gyfer gwella cyflawniad canlyniadau CiG yn sylweddol. Gellid hybu gweithgareddau partneriaeth drwy adrannau 'agenda ar gyfer gweithredu' diweddariad o wyth sefyllfa polisi cefnogol CiG. 3. Mae’r Panel Cynghori ar y Strategaeth Goetiroedd (WSAP) yn fforwm gwerthfawr sy'n darparu arbenigedd, trosolwg a dull cyd-gynhyrchu o gyflwyno CiG. Fodd bynnag, mae angen adfywio’r grŵp ac iddo fod yn fwy deinamig ei agwedd tuag at sicrhau cyflawni'r camau gweithredu partneriaethol gyda ffocws clir ar ddatblygu gweledigaeth CiG. Os oes gobaith i lais WSAP gael ei glywed y tu hwnt i'r sector coetiroedd a choedwigaeth yna mae angen i’w waith gael ei hyrwyddo’n well a’i ymgorffori ym mholisi, rhaglenni a chyllid LlC. 4. Mae Adnoddau Coedwigoedd Cymru yn gwneud cyfraniad gwerthfawr i iechyd a gwytnwch ecosystemau, ac yn creu nifer o fanteision sy'n cyfrannu'n uniongyrchol at lesiant (fel yr adroddwyd yn yr Adroddiad o Gyflwr Adnoddau Naturiol [SoNaRR] 2016). Mae angen rhagor o integreiddio rhwng CiG, NNRP, Datganiadau Ardal a gwaith y Byrddau Gwasanaethau Cyhoeddus (PSBs) yn ogystal â chydweithio ar draws y gwahanol sectorau rheoli tir. 5. Thema sylfaenol CiG - natur, cyflwr, maint a rheolaeth ein coetiroedd a choed - yw sail cyflawni holl Strategaeth CiG. Mae cyfleoedd integredig i hybu’r canlyniadau hyn yn aml yn cael eu hanwybyddu ym meysydd datblygu gwledig, rheoli tir a pholisïau eraill ac eto maent yn hanfodol er mwyn cyflawni pob un o'r 20 canlyniad a geisir yn ogystal â'r weledigaeth 50 mlynedd. Cynnydd araf a fu o ran dod â mwy o goetiroedd dan reolaeth a chreu mwy o goetiroedd newydd. 6. Ychydig iawn o ddatblygiad, dim ond 104 hectar yn 2015-16, a fu o ran gwireddu’r uchelgais o greu 100,000 hectar o goetir newydd erbyn 2030 er mwyn helpu i gyflawni targedau lleihau carbon Cymru, ac mae angen newid radical yn y lefel o gymhellion sydd ar gael ynghyd â dull mwy galluogol o reoleiddio. Nododd SoNaRR mai plannu'r coed iawn yn y lle iawn yw'r weithred unigol sydd fwyaf tebygol o weld y budd mwyaf o ran rheoli adnoddau naturiol yn gynaliadwy (SMNR) a gwneud cyfraniad sylweddol i nodau llesiant Cymru. 7. Mae angen cysylltiad nes rhwng Cynllun Gweithredu Strategaeth CiG ac allbynnau cyfoes y Strategaeth Gwyddoniaeth ac Arloesi ar gyfer Coedwigaeth ym Mhrydain Fawr. Mae hyn yn arbennig o bwysig er mwyn mynd i'r afael â heriau Asesiad Risg Newid Hinsawdd 2017 ar gyfer coedwigaeth ac iechyd coed. Byddai gwaith mwy penodol trwy gyfrwng y WSAP yn helpu i sicrhau'r camau gweithredu integredig sydd eu hangen. 8. Mae gweithgarwch anghyfreithlon ac ymddygiad gwrthgymdeithasol sy'n gysylltiedig â choedwigoedd, coetiroedd a choed yn bryder cynyddol yr ydym yn ei gymryd o ddifrif wrth reoli Ystâd Coetir Llywodraeth Cymru (WGWE) a thrwy ein cyfrifoldebau rheoleiddio a’n gweithgarwch gorfodi. Gellid integreiddio ymgyrchoedd wedi'u targedu trwy fodelau cyflenwi allweddol y Cynllun Datblygu Gwledig, megis Cyswllt Ffermio a Choedwigaeth. 9. Mae’r canfyddiad o ostyngiad yn nifer y coedwigwyr a rheolwyr coetiroedd sydd â sgiliau proffesiynol, arbenigol yng Nghymru yn bryder. Yn gysylltiedig â hyn, mae’r her o barhau i hyrwyddo rôl coetiroedd a choed yn ehangach mewn addysg, dysg, iechyd a llesiant. 10. Mae angen i newid yn nefnydd tir a pholisi rheoli tir fod yn fwy ymwybodol o gyfraniad, gwerth a photensial y diwydiant coed (pren meddal a chaled) o ran cyflawni polisïau allweddol LlC. Os na fydd Cymru’n creu rhagor o goetiroedd cynhyrchiol newydd bydd y gostyngiad a ragwelir o ran faint o bren meddal fydd ar gael o'r 2030au yn fygythiad i’r cyflenwad o bren, swyddi a thwf y diwydiant coedwigaeth. Mae angen i Gymru gefnogi twf yn y gadwyn gyflenwi yn well a gwneud y gorau o 'werth ychwanegol' y pren a brosesir yng Nghymru. 11. Mae'r trawsnewid o aelodaeth o’r Undeb Ewropeaidd yn cynnig heriau a chyfleoedd i'r diwydiant coed, coetiroedd a choedwigaeth. Rhaid i bolisïau datblygu gwledig Cymru yn y dyfodol roi gwell cefnogaeth i ddarparu’r Cynllun Adnoddau Naturiol Cenedlaethol, yr 20 canlyniad a geisir gan CiG ac argymhellion SoNaRR. Rhaid atgyfnerthu rôl gadarnhaol coed a choetiroedd mewn polisïau trefol ac amdrefol. |
Figure 1 - The outcomes for the foundation and four strategic themes of the Woodlands for Wales Strategy and a summary of documents supporting implementation and tracking of progress
Woodlands for Wales (WfW) Strategy documents |
Publication Date |
Policy Position Statements (eight separate publications providing further evidence for the Strategy) |
2010 |
Woodlands for Wales Strategy (1st edition) |
2001 |
Progress report (2001-2006) |
2006 |
Woodlands for Wales Strategy (2nd edition) |
2009 |
Action Plan (1st edition) |
2010-2015 |
Action Plan (2nd edition) |
2015-2020 |
Indicators (annual statistics) |
2009 onwards |
Introduction
1. We welcome this opportunity to contribute to the CCERA Committee inquiry into forestry and woodland policy in Wales. We have multiple roles and responsibilities in relation to forestry, woodlands and trees and our response provides an overview of our work across all areas via case studies (Annex 1) as well as more focused content on what we consider to be the key issues.
NRWs roles and responsibilities
2. NRWs purpose, as set out in the Environment (Wales) Act 2016, is to pursue sustainable management of natural resources. We apply a specific set of sustainable management principles while maximising our contribution to the well-being goals in all of the work that we do. In addition we have various duties delegated to us from WG including many from the extant Forestry Act (1967 as amended) including having ‘... due regard to the national interest in maintaining and expanding the forestry resources of Wales’. We have a general statutory duty to ‘... promote in Wales the interests of forestry; the development of afforestation; and the production and supply of timber’. Our new duties under the Environment (Wales) Act 2016 and Well-Being of Future Generations (Wales) Act 2015 cut across everything that we do, and woodland and trees have an important role to play. Consistent with our statutory duties there are also significant non-statutory opportunities for us to positively influence the management of the wider Welsh Forest Resource[1], as well as support woodland creation, through partnership working and engagement.
3. We have a close working relationship with WG in relation to our management of the Welsh Government Woodland Estate (WGWE). This is a public asset and is managed to support delivery of WfW as well as other public policy priorities. Of relevance to our role in managing the WGWE is the previous NAW Environment and Sustainability Committee inquiry into the Public Forest Estate in Wales in 2014 and ourwritten submission. One of our key actions is the implementation of a forest sector engagement plan known as the ‘Ten Areas for Action’, in partnership with WG, Confor and Wood Knowledge Wales. Progress of the ‘Ten Areas for Action’ plan is reviewed quarterly with NRWs Forest Business Sector Group and actions updated in agreement with partners annually.
4. WG are responsible for the provision and allocation of funding for woodland under the Glastir Woodland element of the Rural Communities – Rural Development Programme 2014-2020. In relation to funding towards the cost of establishing new woodland, Glastir Woodland Creation, NRW undertake the verification role on behalf of WG. NRWs roles and responsibilities are summarised in Annex 1 and a summary of NRW and WG roles and responsibilities in Annex 2.
Policy and legislative context
5. We have a lead or key supporting role to play in delivery of the 20 outcomes under the foundation theme and four strategic themes of WfW (Figure 1) through our management of the WGWE, as well as through our regulatory and advisory roles. We recently provided an update on progress to WG on our contribution to delivery of the Action Plan and forms part of the documentation supporting this inquiry. Our contribution is measured and reported via the Woodlands for Wales Indicators report.
6. Enshrined within WfW, and the UK Forestry Standard, is the concept of sustainable forest management[2]. This is compatible with the principles of SMNR and we are currently undertaking a piece of work to better understand and communicate the ‘fit’ between these two sets of guiding principles. This work will ensure that NRWs long term planning (25 year) and management practices within the WGWE fully support the delivery of SMNR and maximise the contribution that forestry makes to the achievement of the well-being goals. It will also underpin our approach to regulation and advisory functions.
7. The nature and extent of ecosystem services and the well-being benefits derived from woodlands are well documented in the 2016 State of Natural Resources Report (SoNaRR). Increasing woodland cover was identified as one of the seven areas offering the greatest opportunity for dealing with the challenges and risks highlighted in SoNaRR and for contributing to Wales' well-being goals:
“Creating more woodland and bringing existing woodland into more sustainable management would: help increase diversity and connectivity of woodlands (making them more resilient to disease and better for wildlife, for example); increase the woodland resource; provide building materials and fuel; help reduce flood risk; help store carbon to tackle climate change; and provide recreation opportunities to improve health and happiness”.
8. However, five of the seven opportunities identified in SoNaRR are relevant to wider land management policy and practice. In particular, woodlands and trees can make a significant contribution to:
· greening our urban areas;
· increasing active travel;
· sustainable drainage;
· restoration of our floodplains;
· improving air quality;
· providing urban sound barriers;
· better soil management; and the,
· restoration of our peatlands and uplands.
Whilst WfW is broadly in line with these opportunities the strategic actions required, especially for new woodland creation, have not been able to achieve sufficient traction in the development and implementation of broader WG policy and programmes. This is highlighted in the CCERA Committee’s report on ‘The future of land management in Wales’.
9. Our response to the WG consultation to inform the development of the NNRP reinforced SoNaRR’s key messages and highlighted the key issues in relation to forestry and wider land use and its management. It also emphasised the importance of all sectors across Wales breaking away from their traditional silos to seize opportunities to build new partnerships and networks that can drive a significant change in the way that we seek to meet our goas. NRW is committed to playing our part through our role on PSBs, and via the preparation of Area Statements. These priorities will be at the heart of our Well-being Objectives which were published on 31st March in our Well-being Statement and new Corporate Plan which will be published in summer 2017.
Key messages
10. WfW remains broadly fit for purpose but it would benefit from a refreshed third edition. The 50 year vision should remain in place, in recognition of the long timescales needed to establish trees and manage change in woodlands. The environmental, social, economic and cultural issues relevant to the planning and management of forests, woodlands and trees are consistent with contemporary evidence and policy. However the foundation theme and four strategic themes are not easily related to the interconnected and cross-cutting principles of SMNR and the well-being goals. The Strategy, once refreshed, should be more visible across the Programme for Government so that it is clear what action is being taken to improve and secure the future of the Welsh Forest Resource and what ‘offer’ it can make to the people, environment, economy and culture of Wales by delivering SMNR at National and Area levels.
11. There are opportunities to significantly improve the delivery of outcomes contained within the Strategy, through for example:
· A comprehensive update of the eight Policy Positions and their ‘agenda for action’ sections that support WfW, ensuring that prioritised actions then feed into the five year Action Plan;
· Revision of the five year Action Plan to ensure prioritised, funded and adequate actions relevant to all outcomes in the Strategy, not just some. For example, actions to address the achievement of soil and water outcomes is absent;
· The role, purpose and committed contribution of each partner is not clearly established within the current Action Plan and Progress Reports are not now regularly published beyond the annual Indicators Report. More focused attention on obtaining commitment of delivery and driving actions by all partners involved in the Action Plan and regularly reporting progress on outputs and progress towards the Strategy outcomes (the WfW Indicators). This should be the core business of the WSAP and could benefit from a ‘rapporteur’ or ‘outcome champion’ approach;
· Reviewing, improving and resourcing the Woodlands for Wales Indicators[3], as a means of tracking progress over time alongside consideration of the suite of National Statistics and Forestry Statistics already published at UK and Wales levels. Extending the incorporation of key measures for trees, woodland and forestry into broader WG progress reporting frameworks would be beneficial.
· More collaborative and secure partnership working with the wider land management sector, alongside cross-directorate working within Welsh Government, will help to ensure delivery of SMNR and well-being benefits in an integrated way. For example, the relevant role of woodlands and trees in new infrastructure and transport developments (National Development Framework for Wales); and by,
12.The WGs Woodlands Strategy Advisory Panel (WSAP) should continue but the group needs to be revitalised and more dynamic in its approach. NRW currently has two members on the panel. WSAP has a long-standing and active role in guiding delivery towards the 20 WFW outcomes since the first Strategy was developed and published in 2001. Without the expertise and representation of this group the WfW Strategy, Action Plan and Indicators risk losing focus in broader WG policy oversight. This risk is especially prevalent with the changes to governance of forestry at UK and country level including tree health, research in forestry, international policy and representation and the production of UK and country forecasts, economics and statistics. If WSAP is to realise its full potential and be capable of resonating beyond the woodland and forestry sector its work needs to be better represented and linked to other key WG stakeholder groups especially those guiding rural and economic development policy and programmes. In summary WfW requires action in eight main areas and yet WSAP and the Action Plan do not sufficiently drive action across the whole Welsh Forest Resource to:
· bring more woodlands under management;
· increase tree species diversity (improve resilience to climate change, pests and diseases but also to improve woodland habitat condition);
· reduce the areas managed by clearfelling;
· increase new woodland creation;
· mitigate for climate change – including the role of timber substituting for other more carbon intensive materials, new woodland creation capable of producing good quality wood products, and woodlands providing locations for renewable energy projects;
· extend native woodland area and improve condition;
· improve public involvement in decision making; and,
· stimulate economic development in the forest sector via investment, enterprise and skills.
13. Tackling the challenges to meet the six outcomes of the foundation theme is critical to the success of the other four strategic themes (Figure 1). The Welsh Forest Resource makes a valuable contribution to the health and resilience of ecosystems, and generates multiple benefits that directly contribute to well-being, as reported in SoNaRR. However, we note that the scope of the inquiry does not cover the Foundation theme of the strategy - Welsh woodlands and trees. The six outcomes of this Foundation theme are that:
· More woodlands and trees are sustainably managed;
· Woodland ecosystems are healthy and resilient;
· Woodlands are better adapted to deliver a full range of benefits;
· Woodland cover in Wales increases;
· The management of woodlands and trees is more closely related to other land uses; and that,
· Urban woodlands and trees deliver a full range of benefits.
14. There are ongoing concerns about their nature, condition and extent of the Welsh Forest Resource[4]:
· Around 40% (147,000 ha) of Wales’ woodlands have little or no management which may affect their resilience and ability to provide ecosystem services and well-being benefits.
· Fragmentation is a significant pressure affecting woodland condition: there are nearly 22,000 woodlands identified as being smaller than 2.0ha.
· Woodland condition continues to be negatively impacted by browsing and grazing pressures from domesticated and wild animals, especially wild deer, and is also affected by Invasive Non-Native Species (INNS) and increasingly tree pests and diseases.
· The overall conservation status of woodland habitats on protected sites in Wales is regarded as unfavourable although woodland processes operate over long timescales so the recovery to favourable condition may lag behind management action that is being taken.
· Our urban forest is in decline[5]. There is just 1% of urban tree cover to be found in modern high density housing, which is often in our most deprived wards where more tree cover could provide health and well-being benefits.
· Wales is reported as having the highest proportion of declining parks, with the highest percentage reduction in staff and no foreseeable improvement in the condition of parks in the next three years[6].
· Tree health is declining and pests and diseases are likely to be more prevalent in future due to climate change and our reliance on imported goods.
· The forecasted drop in softwood timber availability in the 2030’s poses a risk to wood supply and the wider benefits that woodlands provide. WfW stated that this should be tackled by bringing more woodland into sustainable management and by creating new woodland that is capable of producing utilisable timber but progress has been slow. As a productive resource, Welsh woodlands contribute a GVA of £528.6M per annum[7] to the Welsh economy. There is likely to be an increase in demand for timber, fibre and wood products in the future.
15. More new woodland creation is needed and the potential for investment needs to be unlocked. The 2010 ambition to create 100,000 hectares of policy aligned new woodland by 2030 to help meet Wales’ carbon reduction targets[8] has seen little progress and requires a radical change[9]in the level of support available including an enabling approach to regulation. Public funding available for new woodland creation currently preferentially supports the creation of small, mainly native woodlands on farms. New woodland creation is recognised as having cost-effective potential[10] to significantly contribute to the management of Wales’ carbon budgets but requires consistent policy and additional funding to encourage investment and act as a stimulus for green growth. All sectors across Wales have roles to play in reducing emissions and transitioning to a low carbon economy. Confor state that there is at least £20M of potential investment available for Wales[11] and this needs to be matched to WGs ambition for new woodland creation. Investment requires available land, the ability to realistically scope financial return and an enabling decision-making approach to that helps to develop viable planting schemes that meet the requirements of the UK Forestry Standard. If new woodland creation proposals are expected to meet broader WG policy objectives including those required by WfW then additional financial support would be appropriate in line with recommendation 18 made in the CCERA Committee’s report on ‘The future of land management in Wales’ that:
‘The Welsh Government must ensure that future funding for land managers is based on the delivery of outcomes which contribute to the ambitious targets for climate change adaptation and mitigation set out in Welsh legislation such as the Environment (Wales) Act 2016 and the Well-being of Future Generations (Wales) Act 2015.’
16. SoNaRR highlighted that planting the right trees in the right place is the single action most likely to derive the greatest benefit in terms of delivering the sustainable management of natural resources (SMNR) and making a significant contribution to Wales’ well-being goals. More planting of native broadleaves, mixed woodland and productive softwoods would for example:
· increase the diversity and connectivity of woodlands (making them more resilient to disease and better for wildlife, for example);
· increase the woodland resource;
· provide building materials and fuel;
· help reduce flood risk;
· help store carbon to tackle climate change; and,
· provide access and recreational opportunities to improve health, education and learning outcomes and well-being.
The location and design of planting, including that in urban areas, needs to be carefully considered to maximise these benefits whilst avoiding damage to the structure and functioning of other priority open habitats.
17. The WfW Strategy Action Plan requires a closer link to the outputs of the Science and Innovation Strategy for Forestry in Great Britain. This will be particularly critical in seeking to tackle the challenges set out in the 2017 Climate Change Risk Assessment for forestry and tree health. More focused work via the WSAP would help secure the integrated actions required to support the achievement of healthy trees and woodland ecosystems. The Climate Change Risk Assessment (CCRA) 2017 Evidence Report has identified risks and opportunities from changes in forestry productivity and land suitability for particular woodland habitat types and individual native and non-native tree species. There are also risks associated with water scarcity and flooding; from pests, pathogens and invasive species; and from change in frequency and/or magnitude of extreme weather and wildfire events. Woodland productivity and carbon sequestration rates are also likely to be impacted by climate change. The same key messages are highlighted in the Living with Environmental Change (LWEC) Report Card 2016 on Agriculture and Forestry Climate Change Impacts. A relevant Welsh example is the ‘Living with Climate Change’ report for the Clwydian Range and Dee Valley AONB which looks at future impacts and resilience issues.
18. Illegal activity associated with forests, woodlands and trees is a growing concern. In relation to our management of the WGWE, the additional land manager liability arising from illegal mountain bike trail building and use (known as wild trails), and of illegal off-roading activity is a growing challenge. Increasing and significant numbers of wild trails are being built, particularly in the South Wales Valleys. These sometimes involve illegal tree felling and obstruction of highways, with public safety potentially at risk through unknown trail quality and build. There is a further risk related to the acquisition of rights through prolonged usage. Limited resources are available to manage these activities, either through formal adoption or through their removal. Illegal off-roading is a growing challenge across Wales, and NRWs Enforcement Teams have worked well with local policing teams to challenge perpetrators. Reports of Alleged Illegal Felling (AIFs) have also steadily increased over the last 6 years, from approximately 70 in 2010/11 to approximately 180 in 2016/17. The recent example from Blackwood[12] in Caerphilly highlights that this is an issue that the general public feels strongly about. In addition to illegal activity, there is also concern about anti-social behaviour which reduces public access to, and enjoyment of, woodlands. It will be important to continue with public funding for targeted management campaigns to help tackle these issues.
19. The perception of declining numbers of foresters and woodland managers with professional, specialist skills in Wales is a concern[13]. There is a need for investment in skills and training to ensure the future prosperity of the forest sector. As part of the Cyfle Placement Scheme, NRW currently has four Trees and Timber apprentices in their first year of study towards a Level 3 qualification. Linked to this, is the challenge of continuing to promote the role of woodlands and trees in education and learning more widely, from increasing physical literacy and the provision of places to play, through to increasing understanding and appreciation of trees and woodlands and towards long term behaviour change. We now take an enabling role rather than that of direct delivery following difficult choices made as part of our Business Area Review in December 2015, recognising that other providers may be better placed to take on direct delivery of formal education.
20. Land use change and land management policy needs to be more cognisant of the contribution, value and potential of Wales’ timber industry to deliver key WG policies. If Wales does not bring more woodland into management and the rate of new woodland creation remains low the forecasted drop in softwood timber availability from the 2030s poses a risk to wood supply, jobs and the growth of the softwood forest industry. Hardwoods account for under 5% of the Welsh forest industry. The majority of the forecasted timber potentially available will continue to be coniferous, but the relative proportion of broadleaves will slowly increase. Whilst there is potential to significantly increase production and use of broadleaves in Wales, there are also constraints related to costs, time, planning, woodland fragmentation, access arrangements, and poor stem form and timber quality including pressures from pests such as the grey squirrel[14]. Rising prices for timber will make imports more expensive, help drive demand for home-grown supplies and continue to improve the economic case for investment in new woodland creation. Despite continuing to import 80% of our wood product needs Wales is capable of adding high value in the processing sector (UK value-add is not far behind Sweden and more than Finland)[15]. Alongside an enabling approach to release investment for new woodland creation, Wales needs to better support growth in the supply chain and optimise the ‘value add’ of the timber processed in Wales.
21. There are two fundamental issue around wider land use and management, beyond the WfW Strategy that needs to be addressed which we highlighted in our response to the NNRP consultation. The first is the need for clear direction on land use change priorities at national, area and local levels[16] alongside a more streamlined regulatory and change support framework. The second is that, by inference, delivering more sustainable land management requires an ‘extensification’ of land use to achieve SMNR whilst the expectation is that Wales will increase timber and food outputs. For forestry the pursuit of more nature based solutions (such as the eight actions listed in paragraph 12) is impacting on forecasted future timber availability[17]. There will clearly be a need for compromise at least in the short term, recognising there may be a need to develop an approach to sustainable intensification or increase imports. Compromise could include zoning by objective such as intensive productive, functional protective or extensive multi-purpose forests. Innovative solutions could include better choice of genetic material, changes in planting prescriptions and modified harvesting scenarios.
22. The forest industry and timber should be included in the development of ‘Brand Wales’ alongside agriculture and fisheries. These two issues need to be recognised and addressed in the WGs development of future economic and rural policies and programmes to drive clearer SMNR outcomes that embrace the potential for green growth of the forest sector in Wales. Policy choices must be explicit so that all delivery agencies, the private sector and communities are aware of the intended goals. In future more equitable rural development plan support for forestry in line with its value and potential alongside consideration of agriculture is necessary. For NRW, this is particularly important where we have a specific role in managing our own land and regulating natural resources, as in the case of forestry.
23. The transition from European Union membership presents both challenges and opportunities. In terms of challenges, an example is the need to maintain, as part of the processes surrounding the Great Repeal Bill, the level of protection for both species and habitats as currently provided by the Birds and Habitats Directives[18]. In terms of opportunities, EU transition may release potential investment flows for woodland management and new woodland creation alongside supporting process improvements in forest regulation, rural development plan support payments and the stronger development of woodland related Payments for Ecosystem Services Schemes (and sustainable land management in general).
24. The condition of woodland and trees is being heavily affected by increasing pressure from pests and pathogens. Phytophthora ramorum is the most significant tree disease to affect woodlands in Wales in recent years. It has caused the widespread death of larch, a significant timber-producing tree species, and is a potentially serious threat to other trees and plants. As of 28th February 2017, approximately 8,850 of larch in Wales has been found to be infected with Phytophthora ramorum and larch is no longer used for restocking on the WGWE. Chalara Dieback of Ash (Hymenoscyphus fraxineus) is also of concern, having been first confirmed in South Wales in 2012. It is potentially a very serious threat, having caused widespread damage to ash populations in continental Europe, including estimated losses of 60-90% of Denmark’s ash trees. Chalara Dieback of Ash has now been found in 63% of the 10km grid squares across Wales (180 of 284)[19]. The disease is now clearly established and sporulating in the wider natural environment across the country, albeit at low levels, and not restricted to new planting sites as previously thought. The majority of new cases have been found in roadside hedgerows and natural regeneration. The predicted effects of climate change together with increased reliance on imported goods will increase the incidence of pests and diseases: for example, more frequent milder winters will increase the size of overwintering populations.
Key successes
25. In relation to the four strategic themes of the Woodlands for Wales Strategy, the breadth of our work is summarised in Annex 3 in a series of case studies. Each case study, highlights how it contributes to the achievement of the well-being goals.
Key opportunities
26. In this section we set out what are considered to be opportunities in the future. Success will be largely dependent on leadership from WG, NRW and WSAP. The WfW Action Plan and activity of WSAP is critical to secure partnership working across the forestry and land management sectors (with public, private and third sector engagement), and that forests, woodland and trees are considered ‘in the round’ in terms of their contribution to SMNR and the achievement of the well-being goals.
27. The transition from European Union membership presents both opportunities as well as challenges. Leadership and closer collaboration is needed to seize the opportunities highlighted in SoNaRR for all sectors including greater use of both woodland and trees as part of designing solutions to complex environmental problems. NRW is involved in ongoing discussion with Welsh Government and UK colleagues to inform the debate. Much of the existing framework of environmental regulation is derived from European Union (EU) law. Until such time as the exit negotiations are concluded, the UK remains a full member of the EU, and all the rights and obligations attached to EU membership remain in force. We will continue to implement EU legislation until exit negotiations are finalised.
28. A Defra-led public consultation on amendments to EIA regulations on forestry has recently closed to examine ways of reducing the burden on applicants which may, in time, result in more ambitious woodland creation proposals. New woodland creation projects are assessed for likely significant effect on the environment according to their nature, size and location. The amendments to the EIA Regulations are intended to ensure that fewer projects are subject to assessment; the size and cost of environmental statements in reduced; and fewer assessments are required. The focus should now be on those environmental factors that are significantly affected and not any potential impact. Applications received after 16th May 2017 will be processed to the amended regulations. We are also streamlining our regulatory and verification processes to help achieve the “right trees in the right place” and make planting as simple as possible (see also paragraph 34).
29. The development of a Welsh policy position[20] on permanent woodland removal and compensatory planting beyond what may be required in accordance with planning regulations would be beneficial. This would set out clear guidance for new woodland creation to compensate for woodland permanently removed to optimise other benefits and bring together evidence-based policy supporting permanent woodland removal (e.g. wind energy projects, open habitat restoration). The policy could be developed alongside the NNRP, Area Statements and National Development Framework. We have recently recruited a Woodland Creation Advisor who will enable us to manage a £500,000 ring-fenced fund that will increase annually, to achieve compensatory planting for woodland loss that occurs on the WGWE due to our Energy Delivery Programme. The Advisor could also contribute to development of a policy position and supporting framework.
30. The Welsh Government consultation and proposed White paper on Access Reform in Wales, will provide opportunities for how access and recreational opportunities on the WGWE (and other woodland where access rights exist) are managed, provided and regulated. These proposals cover:
· Achieving consistency in the opportunities available for participation in different activities and how activities are restricted and regulated;
· Simplifying and harmonising procedures for designating and recording public access;
· Improving existing advisory forums and how access rights and responsibilities are communicated to all interests.
31. The investment potential for the forest industry is high for all parts of the supply chain. There are big opportunities for the diversification of SME businesses particularly in innovative engineered wood products. This is dependent on the strength of the spotlight placed on the forest industry, woodland management and creation and its integration into WG economic and rural development policy and programmes during the transition from membership of the European Union. This should build upon the recommendations made following the forest sector workshop led by Confor to advise WG on Welsh softwood timber supplies and the green economy.[21] For example NRW are leading a task and finish group17 in conjunction with WSAP that will report to our Forest Sector Business Group to look at all practical actions linked to future timber availability. In addition we are supporting potential applicants in the development of proposals for the Rural Development Plan 2014-20 funded Co-operative Forest Planning Scheme which aims encourage innovative planning approaches for the creation of broadleaves and coniferous woodland.
32. We will be using the opportunities presented by Public Services Boards and Area Statement processes to identify where integrated and collaborative working utilising woodland, trees and forests in a place can maximise the contribution to SMNR and the seven well-being goals. We are mindful of the fact that a place based approach must deliver a coherent whole at a national level in keeping with our key messages in SoNaRR and the emerging NNRP.
33. Having a greater understanding of our urban tree canopy cover resource (via NRW’s Tree Canopy in Wales’ Towns and Cities Report) enables Wales to understand the extent, nature and trend of our urban forest more comprehensively than ever before. Work through assessments such as i-Tree Eco enable us to quantify the range of benefits that urban trees provide, and provide a stronger evidence base on which to build more ambitious and comprehensive local policies and design solutions for urban green infrastructure.
34. Following the NAW Environment and Sustainability Committee’s investigation into the management of the WG woodland estate of 2014 we have been working closely with the forestry sector to improve all aspects of our forestry regulatory processes. The need for a level playing field between the regulation of public and private forest management, was reiterated in the Better Regulation Delivery Office’s (now Better Regulation) report of 2015, and our progress here is monitored by NRW’s Forestry Business Sector Group as one of our ‘Ten Areas for Action’. In particular we have strengthened the NRW guidance available to Glastir applicants to support better quality applications and streamline our regulatory and verification role. In conjunction with the forest sector we are finalising our approach to felling permissions linked to delivery of long-term forest management plans compatible with the UKFS and plans produced as part of certification to the UK Woodland Assurance Standard and capable of adaption to future rural development support for woodland management.
35. We are investigating the scope for introducing Payment for Ecosystem Services by considering the roles PES might play, developing our approach to inform WG policy development, and playing an active part in the development of some pathfinder schemes. This includes looking at Green Markets to establish how we can support Wales to harness a range of funding sources to deliver the environmental outcomes we seek. We are working with WG to develop the proposals and processes to utilise experimental powers and incorporate new thinking into our work. All of this will be built in to the Area Statement guidance we are developing. For example, there is growing support for the use of tree planting in areas where it can reduce the flow of diffuse pollutants from agriculture into water. Forest Research is leading a European wide project called PESFOR-W to understand better how Payments for Ecosystem Services (PES) can be developed to provide cost-effective solutions to enable tree planting for water benefits.
36. We are working closely with WG to better communicate the opportunities stated in SoNaRR and how they may be communicated spatially through platforms such as WGs GeoPortal Y Lle. Also under development is an approach to natural capital inventory and accounting which has the potential to better inform integrated policy development and decision making about land use, land use change and management priorities for better outcome delivery. Building on the SoNaRR 2016 report we are working on improved spatial analysis to inform land use and land management policy development and decision-making including the identification of ‘opportunity spaces’[22] for key WG policy delivery.
Index of annexes
Annex 1 - NRW roles and responsibilities in relation to forests, woodlands and trees
Annex 2 - Simplified governance structure and relationship to NRW and WG forestry role and responsibilities
Annex 3 - Case studies demonstrating success against the four strategic themes of WfW and the well-being goals
Annex 1: NRW roles and responsibilities in relation to forests, woodlands and trees
|
Role |
Responsibilities |
|
Land manager |
We manage the Welsh Government Woodland Estate (WGWE) as well as National Nature Reserves which include some of the finest native woodlands in Wales with very high cultural and biodiversity value. The WGWE accounts for approximately 40% of the Welsh Forest Resource, and supplies almost 60% of Welsh timber certified to FSC/PEFC. The WGWE is dedicated Open Access Land, providing opportunities across Wales for access under the Countryside and Rights of Way (CRoW) Act (2000), often close to where people live and work. In addition, we provide and manage a range of recreational events, facilities and trails including visitor centres, walking, riding, cycling, running and mountain biking routes. These opportunities attract over 4 million visits annually, providing opportunity for increased physical activity, for learning in and about the environment and for downstream economic benefit to communities. |
|
Regulator |
We are responsible for the control of felling and replanting of woodland, new woodland creation, deforestation, forest tracks and quarries, and tree health in forest situations through the granting of permits and licences, the assessment of compliance, the investigation of potential offences and taking enforcement action. We are the statutory conservation body for designated sites: SSSI to comply with Countryside and Rights of Ways Act (1981) and CRoW Act; SAC and SPA under EU Habitats and Species Directives. These sites safeguard some of our native woodland. We also administer the Ancient Woodland Inventory. We are a regulator under the Habitats Regulations (2010) where forestry/woodland activities may affect European Protected Species. |
|
Advisor / consultation body |
We provide statutory and non-statutory advice and guidance across our organisational remit, to Welsh Government, industry and the wider public and voluntary sector. This includes development planning advice, conservation advice for protected sites, forest management and regulatory advice and guidance. We are a consultation body for our own and others programmes, plans and projects in respect of environmental assessments. We also advise on management of species that may be damaging woodlands such as deer and grey squirrels. |
|
Evidence gatherer |
We monitor our environment, commissioning and undertaking research, developing our knowledge, and being a public records body, including in relation to forestry and woodland management. |
|
Partner / Educator / Enabler |
We manage third party activity on the WGWE (on which we may then provide statutory advice to other authorities and be required to consider applications for permits against regulatory regimes where we have responsibility). Through our Mynediad (formerly Woodlands and You) framework we encourage individuals, groups and other organisations to use the WGWE for activities, projects, events and learning. We aim to be a catalyst for others’ work, helping them to also contribute to well-being goals. For example, we offer advice, guidance, training and resources on woodland based learning, working with Forest School Practitioners and facilitating the Outdoor Learning Training Network which ensures the standards and quality of training for practitioners in partnership with Agored Cymru. |
