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1. Introduction

1.1 This report considers the 'Strategy for the New Forest: Draft for Consultation' published by the New Forest Committee ('the revised Strategy'). The original Strategy for the New Forest was published in 1996 by the New Forest Committee, and since that time has provided an important policy framework for coordinating the work of the statutory organisations with responsibilities for the conservation of the Forest.

1.2 The Strategy has now been extensively revised and produced as a working draft for public consultation. The main purposes of the revised Strategy are to:

(i) provide an updated document which includes current thinking on a wide range of topics, notes achievements to date and lists a comprehensive set of proposals to address key issues;

(ii) provide a framework for coordinated policies and actions across the whole of the Strategy remit area;

(iii) broaden the ownership of the Strategy and include wider partnerships in its implementation; and

(iv) take into account current proposals for National Park designation and ensure the policies and proposals in the Strategy can be adopted by any future National Park Authority.

1.3 Copies of the revised Strategy have been sent to all local Members and Members of this Committee. It has also been sent to a wide range of officers in departments within the County Council, who have been consulted in the preparation of this report. The County Council's Economic Development Unit will be submitting a separate response. The consultation period closes on 16 September 2002.

The Remit Area of the Revised Strategy

1.4 The remit area of the revised Strategy has been extended from the original Strategy to include the boundary set out in the National Park (Designation) Order 2002, in order that the Strategy remains relevant in the event of National Park designation. The boundary and other arrangements for the proposed National Park are subject to a Public Inquiry. However, it is argued that the objectives and proposals set out in the Strategy have been designed to address the overall needs of the Forest and will therefore be appropriate regardless of the precise geographical area.

The Vision and Aims of the Strategy

1.5 The vision provides a summary of the long term aspirations for the Forest in the future. The overall aims of the Strategy are to:

(i) work in partnership to promote and achieve the Vision for the Forest through coordinated and innovative policies and actions;

(ii) conserve and enhance the unique environment of the Forest, and in particular the special qualities of its landscape, cultural heritage and wildlife habitats;

(iii) support the culture, life and economic well-being of local communities in ways which sustain the special character of the Forest; and

(iv) encourage everyone to understand and enjoy the special qualities of the Forest, whilst ensuring that its character is not harmed by recreational use.

The Strategy

1.6 The Strategy is divided into three broad themes:

(i) Conserving the Forest;

(ii) Living and Working in the Forest; and

(iii) Enjoying the Forest.

Each broad theme is a chapter in the Strategy which addresses several topic areas and includes key proposals.

1.7 The chapter on Conserving the Forest forms the heart of the Strategy and describes the central importance of conserving the special character and overall environmental quality of the Forest landscape, cultural heritage and biodiversity. The links between these and the role of commoning are emphasised in maintaining the landscape, habitats and many of the local traditions of the Forest. The chapter also addresses wider issues, such as pollution control, waste minimisation and energy conservation.

1.8 The chapter on Living and Working in the Forest includes topics relating to the rural economy, sustainable development, affordable housing, business, employment and the economic life of local people. It illustrates the links between these and the conservation of the Forest's special character. Traditional farming, commoning, sustainable forestry and woodland management are recognised as being vital in maintaining the landscape and nature conservation value of the Forest and playing a central role in the lives of Forest communities.

1.9 The chapter on Enjoying the Forest focuses on the use and enjoyment of the Forest by its many visitors. It is enjoyed as a popular holiday destination for people all over southern England and by local people living within the Forest or in nearby residential areas. The issue of visitor pressure on the sensitive habitats and landscapes and the need for visitor management, coupled with promoting a better understanding of the special qualities of the Forest, is identified as essential .

1.10 There are also two other chapters of note in the document:

(i) Working Together - this emphasises the importance of building on the current community participation and partnership involved in the New Forest to translate the Strategy proposals into action. It also recognises the importance of links with the local Community Planning process.

(ii) Implementation and Monitoring - this is the final chapter which describes practical mechanisms for implementing the Strategy through a partnership approach. It also includes a number of headline indicators to provide a means of measuring broad trends over time and which will indicate how successful the Strategy proposals have been in achieving the aims.

2. County Planning Officer's Comments on the Draft Strategy

General

2.1 The Strategy is well-written and easily understood; however, it is a lengthy document that could be more succinct.

2.2 Reference should be made to data sets as well as documents in the 'Key Documents' section of each topic area.

2.3 An indication of who may be the lead partner under partnerships would provide a focus for action.

2.4 Where no resources are identified, a specific proposal to identify funding sources should be included.

2.5 In a number of cases the `headline indicators' for each chapter are really measurements of inputs and avoid measuring outputs which is really the test of a strategy. Indicators need to be precise and should refer to targets as a basis for monitoring progress. All indicators will need a baseline measurement and baseline survey needs should be identified and cross-referenced.

2.6 The Strategy is a strategic management plan which strays into proposals for development plans and administrative structures for discharging the function of a proposed National Park Authority. This is premature and inappropriate.

The Remit Area of the Revised Strategy

2.7 Whilst the boundary and other arrangements for the proposed National Park are subject to a Public Inquiry, it is reasonable that the revised Strategy should anticipate the future boundary of the National Park. The revised Strategy will then enable a seamless transition of land management responsibilities and targets to a future National Park Authority.

The Vision and Aims of the Strategy

2.8 The Vision should reflect the special characteristics of the Forest more strongly by reference to its qualities and diversity. It also needs to recognise the relationship of the Forest to its hinterland and to the need for it to respond to the aspirations of modern society.

Working Together

2.9 The headline indicators should include measures for what is to be achieved by way of output rather than simply measuring input in terms of numbers of organisations involved or consultation exercises undertaken.

2.10 Paragraph 2.3 of the revised Strategy refers to statutory organisations. Their role should also be addressed in paragraph 1.4 of the revised Strategy.

2.11 Paragraph 2.6 of the revised Strategy should clarify that the creation of the National Park would bring about a new structure for the implementation and coordination of activities.

2.12 The proposals should avoid rehearsing scenarios for joint working and delegation that will be addressed through the National Park Public Inquiry and subsequent decision by the Secretary of State, or will be affected by the enactment of the Planning Green Paper. These issues should be addressed in a section on 'Looking Forward' rather than in the section on working together.

2.13 Local authorities should be included as partners, separate from statutory organisations.

Conserving the Forest

2.14 The headline indicators include measurements of input (eg number of community based projects) rather than measurements of the effect of them on conserving this area. Other headline indicators (litter, light pollution) are not precise in their intent. The headline indicators fail to address the key components of landscape, cultural heritage and biodiversity which are emphasised in the chapter about Conserving the Forest. It would be helpful to develop a headline indicator for each of these. For example, for landscape one might be:

'Intactness of the intrinsic character of the different landscapes of the Forest, and of its historic landscapes'.

This could be measured by mapping and aerial and fixed point photography of selected areas.

Section 3.2 The New Forest Landscape

2.15 Paragraph 3.2.8 of the revised Strategy. The map referred to in the heading must be that in the landscape character assessment. At the end of 3.2.8 add:

'The landscape character assessment has the approval of the Countryside Agency, English Heritage and the County and District Councils. It has been subject to wide public consultation and is adopted as supplementary planning guidance.'

2.16 Under the proposals section, the County Council welcomes the proposals to extend the New Forest landscape assessment, and to reassess and refine the Tranquil Areas Study. The methodology for the Tranquil Areas Study should also be reviewed.

2.17 Under partnerships, add voluntary organisations such as the British Trust for Conservation Volunteers and the Wildlife Trust.

2.18 Under resources, the County Council does not have specific funding for community projects to promote land management skills. Funding would be available towards the implementation of actions identified in the New Forest District Landscape Assessment and in the Hampshire Landscape Strategy. The Department for the Environment, Food and Rural Affairs Rural Enterprise Scheme is a source of funding for training.

Section 3.3 Cultural Heritage

2.19 The objective should be reworded to read:

'Conserve the cultural heritage of the Forest and raise awareness of landscape, archaeology, the built environment, social history and present day culture, and the links between them.'

2.20 Reference should be made to the various historic landscape studies at County and District level and the information that these have provided for 'time depth' in the present-day landscape. This is a key level of information when considering issues of intactness and prioritising actions.

2.21 Add the Archaeology and Historic Buildings Record to the list of documents.

2.22 Paragraph 3.3.25 of the revised Strategy should read 'Many sites of national importance have been designated ...'. However, it should also refer to the fact that there are nationally important sites not designated, and that the English Heritage Monuments Protection Programme is currently under way.

2.23 Proposal 5 of the revised Strategy should be reworded in line with the revised objective.

Section 3.4 Biodiversity

2.24 Paragraph 3.4.24 of the revised Strategy. Reference should be made to the LIFE 3 bid prepared by the County Council.

Section 3.5 Environmental Quality

2.25 Add to Objective: '... Forest environment and its natural resources'.

2.26 Under key documents, add 'Water in Hampshire - a comprehensive review' published by Hampshire County Council.

2.27 Under Proposals add 'Contribute to research into soil loss and degradation, including the causes and effects of diffuse pollution'. Also add 'Contribute to research projects into the effects of climate change'.

2.28 Proposal 5 of the revised Strategy should refer to a reviewed Tranquil Areas Study.

Living and Working in the Forest

Farming

2.29 The introduction should include reference to changes in cropping arising from climate change and changes in agricultural subsidies. The impact of renewable energy schemes and biomass on the Forest landscape could be considerable.

2.30 Paragraph 4.2.12 of the revised Strategy. The link between local processing and marketing and the opportunities that this creates for sustainable tourism should be expressed.

Sustainable Tourism

2.31 Paragraph 4.4.4 of the revised Strategy should refer to the lack of capacity at peak times - it is well below capacity as an average over the year. This highlights the need for more staying visitors in the off-peak periods. Another sector which is an important factor in Forest accommodation provision is the business and residential conference market.

2.32 Paragraph 4.4.7 of the revised Strategy should refer to work led by the County Council to set up the Tourism Trends Survey, in which the New Forest District Council was a partner. The work could also inform proposal 6.

2.33 Partnerships should include the Regional Tourist Board.

2.34 Resources may be available from District Council initiatives and from the Countryside Agency.

Affordable Housing

2.35 Paragraphs 4.6.8 and 4.6.9 of the revised Strategy should also refer to the other non-planning mechanisms to deliver affordable housing, such as Registered Social Landlords buying into existing stock, temporary social housing and mortgage rescue.

2.36 Add a further proposal to 'Support Registered Social Landlord initiatives to provide affordable housing through non-planning mechanisms'.

Business and Employment

2.37 Under Resources add the England Rural Development Programme (ERDP) Rural Enterprise Scheme.

Village and Town Centres

2.38 Paragraph 4.8.8 of the revised Strategy. An increase in the level of theatre and musical events could be achieved through projects such as the County Council Arts Section's 'Hog the Limelight' project.

2.39 Add community tourism groups to the list of partnerships.

Understanding the Forest's Special Qualities

2.40 Lack of funding is threatening the future of the Fordingbridge Visitor Information Centre. It is important to secure the future of the existing provision before expanding the network or duplicating its role with gateway information centres such as that proposed at Ringwood.

Managing Recreation

2.41 Paragraph 5.2.27 of the revised Strategy. Reference should be made to the vulnerability of archaeological sites to damage from visitor pressure and inappropriate recreation.

2.42 Paragraph 5.2.35 of the revised Strategy. The paragraph implies that relocation of camping sites could apply not just to those on Crown land but sites anywhere in the Strategy area. If so, it would affect private campsite owners who will need to be compensated and new sites purchased for relocation. The sources of such funding need to be considered if this is to be a realistic proposal.

2.43 Paragraph 5.2.36 of the revised Strategy. The impact of horse riding needs to be understood more fully, with research being undertaken to provide baseline information and to help determine policy. Out of this, proposals for a code of practice for horse riding activities could be developed with the relevant sectors of the industry and private riders. This section should also consider the significant impact of dog walking on the Forest environment.

Implementing the Strategy

Monitoring

2.44 Paragraphs 6.11 to 6.13 of the revised Strategy. Where specific terms are used these should be defined, such as 'rural areas' and 'local people', or for technical matters such as 'light pollution levels'. This will clarify what is being measured and how it is being done.

Appendix 2

2.45 Hampshire County Council also has a role in Countryside Management and in maintaining the County's ecological and archaeological records.

Recommendation

That the Executive Member for Environment be advised that:

(i) the New Forest Committee be thanked for the opportunity to comment on the draft New Forest Strategy; and

(ii) the draft New Forest Strategy be supported, subject to the amendments set out in Section 2 of this report.

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