Exe Estuary Management Plan 2016 - 2021 Protecting our Estuary for future generations
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Exe Estuary
Management Plan
2016 - 2021
Protecting our Estuary for future generations
Preface
This Management Plan has been prepared by the Exe Estuary Management Partnership. The Partnership
acknowledges the helpful contributions made by all of those who use and value the Exe Estuary. This Plan
updates the 2012 - 2015 Exe Estuary Interim Management Plan and will cover the period until 2021.
The “Exe Estuary Management Plan 2016 - 2021” is supported by the “State of the Exe 2014”. The “State of the
Exe 2014” was reviewed and updated from the 2006 edition through the Living with a Changing Coast (LiCCo)
project and describes the changing pressures, natural processes, varied uses and quality of the Estuary, and
how these aspects interact with each other. It is being used to identify the management measures set out in this
Management Plan.
The “Exe Estuary Management Plan 2016 - 2021” forms the second part of the review process. It outlines
policies, issues and five year objectives to ensure sustainable use of the Exe Estuary for the future. Integration
with spatial planning and informed management activity will strengthen our commitment to this valuable area
for the future.
Acknowledgments
The Exe Estuary Management Partnership would like to thank all of the people who have contributed to
this report: the local people who use the Estuary and have offered their time, opinions and experience; the
professional officers who monitor, manage and protect the Estuary and have offered their advice and views for
the future; the organisations that manage water bodies on a national scale; Plymouth Marine Laboratory for
their guidance and support in incorporating elements of Ecosystem Services into the Management Plan; and
the Partnership itself who contribute daily to its successful functioning, both professionally and financially.
The Management Plan review was facilitated and funded by the Exe Estuary Management Partnership.
Exe Estuary Management Partnership
DAWLISH
EXMOUTH TOWN COUNCIL
TOWN COUNCIL
1 | Exe Estuary Management Plan 2016 - 2021
Exe Estuary Management Plan 2016 – 2021
Protecting our Estuary for future generations
Table of Contents
1 Background to the Exe Estuary
1.1 The Exe Estuary and Management Plan 5
1.2 Management of the Partnership and Organisation 17
2 Climate Change 19
3 Natural and Historic Environment
3.1 Wildlife, Habitats and Designations 21
3.2 Landscape 23
3.3 History and Archaeology 25
4 Use of the Exe Estuary
4.1 Farming and Farmed Landscape 27
4.2 Fisheries 29
4.3 Water Based Recreation 31
4.4 Tourism 33
4.5 Public Transport, Access and Land Based Recreation 35
4.6 Navigation, Commercial and Other Uses 37
5 Environmental Quality
5.1 Water Quality 39
5.2 Waste Management and Recycling 41
6 Promoting Understanding of the Exe Estuary
6.1 Education & Interpretation 43
7 Protecting the Exe Estuary
7.1 Pollution Contingency Planning 45
7.2 Flood and Coastal Risk Management 47
7.3 Spatial Planning and Development Management 49
Exe Estuary Management Plan 2016 - 2021 | 2
Foreword from the Partnership Chair
I am very pleased to present this latest revision of the Exe
Estuary Management Plan. As Devon County Councillor, I have
represented the people in my constituency on the eastern banks
of the great River Exe between Exmouth Station and the River
Clyst Bridge for many years. It was an immense pleasure to go on
to serve the people around the entire Exe as Chairman of the Exe
Estuary Management Partnership Committee for 14 of these years.
This important publication reflects the contribution made over
many years by professional officers, elected local government
councillors, and many more local people with specialist interests in
all aspects of our magnificent Exe Estuary. It is in many ways just
the latest statement of “Work in Progress” and continues to evolve
in order to maintain the special qualities of the Estuary.
The depth of knowledge of successive Exe Estuary Officers
and senior Devon County Officers is incredible. Add to this the
professional officers and elected members of the districts, towns,
city and Parish Councils and where would we be without the input
of the RSPB, Environment Agency, Natural England, Devon and Severn Inshore Fisheries and Conservation
Authority, Devon Wildlife Trust, Lympstone Fisheries and Harbour Association, the RYA and the Powderham
Estate. Just as significant are the many hundreds of local people who love and care for this Estuary and work
together in protecting this special place for the future.
One notable achievement since the last Plan has been the completion of the Exe Estuary Trail, which was
started in my Local Government “patch”. This trail provides tremendous opportunities for people of all ages and
abilities to access and enjoy the Estuary.
Devon County Council has been an avid supporter of the Exe Estuary Management Partnership during
the 20-plus years of its existence. The County Council continues to take the lead role in facilitating the
Partnership and hosts the Exe Estuary Officer. Local Government has had to grapple with the loss of Central
Government finance and we are very grateful to all the Partners who have supported this Partnership through
some difficult times. My plea is to keep faith and do all that you can to keep this very valuable Partnership
viable and effective.
In conclusion, as I step down from Local Government I would like to thank everyone for their contribution to our
success, which is the Exe Estuary. May it continue to be loved, preserved, and maintained for posterity.
CC Bernard C J Hughes OBE
3 | Exe Estuary Management Plan 2016 - 2021
List of Abbreviations
AONB Area of Outstanding Natural Beauty MCA Maritime and Coastguard Agency
CaBA Catchment Based Approach MMO Marine Management Organisation
CEFAS Centre for Environment, Fisheries MSFD Marine Strategy Framework Directive
and Aquaculture Science NE Natural England
CIL Community Infrastructure Levy NEP National Environmental Programme
CO2 Carbon Dioxide NLO Net Limitation Order
D&SIFCA Devon and Severn Inshore Fisheries NNR National Nature Reserve
and Conservation Authority
NVZ Nitrate Vulnerable Zone
DCC Devon County Council
OS Ordnance Survey
Defra Department for Environment, Food
and Rural Affairs PML Plymouth Marine Laboratory
DLPG Devon Landscape Policy Group PUG Port User Group
DWT Devon Wildlife Trust RBMP River Basin Management Plan
EA Environment Agency RSPB Royal Society for the Protection
of Birds
EC European Commission
RYA Royal Yachting Association
ECC Exeter City Council
SAC Special Area of Conservation
EDDC East Devon District Council
SANG Sustainable Alternative Natural
EEMP Exe Estuary Management Greenspace
Partnership
SEDHRP South East Devon Habitat
EEO Exe Estuary Officer Regulations Partnership
EU European Union SMP Shoreline Management Plan
F&CERMS Flood and Coastal Erosion Risk SPA Special Protection Area
Management Strategy
SRC Shoreline Response Centre
FWAG Farming and Wildlife Advisory Group
SSSI Site of Special Scientific Interest
GDP Gross Domestic Product
SWW South West Water
GLA General Lighthouse Authority
TH Trinity House
HMO Habitat Mitigation Officers
UST Upstream Thinking
HRA Habitats Regulations Assessment
WCO Western Channel Observatory
LiCCo Living with a Changing Coast
WFD Water Framework Directive
LNR Local Nature Reserve
WRT Westcountry Rivers Trust
LPA Local Planning Authority
Source of the information presented in the images
Unless otherwise specified, all images used in this report are the property
of the Exe Estuary Management Partnership.
Exe Estuary Management Plan 2016 - 2021 | 4
Background to the Exe Estuary 1. Background to the Exe Estuary 1.1 The Exe Estuary and Management Plan Aerial view of the Exe Estuary Area of Study The Exe Estuary Management Plan study area is the area bounded by the 5m contour line around the Estuary (see Figure 1). The main focus of the management work is, therefore, on the sub-tidal, inter-tidal, shore and nearby areas of the River Exe between Exeter and Exmouth/Dawlish. Consideration is given to the management of the wider catchment area where necessary. 5 | Exe Estuary Management Plan 2016 - 2021
Background to the Exe Estuary
Exe Estuary Management Plan 2016 - 2021 | 6
Background to the Exe Estuary Exe at Topsham, Source: D. Burch The Exe Estuary The Exe Estuary covers 3,000 hectares of diverse aquatic and terrestrial habitat, which support an abundant range of flora and fauna. It is internationally designated as an Estuary of great importance for nature conservation. Protected from the open sea by the sand spits of Dawlish Warren and Pole Sands, the Estuary lends itself beautifully to a feeding and breeding retreat for birds. This also makes it a perfect open space for a wide range of recreational activities, shellfish cultivation and tourism. Access to the Estuary is excellent with rail and road connections along both sides and the Exe Estuary Trail multi-use route for cyclists and walkers circling the Estuary. The Exe Estuary contains many varied sites of archaeological and historical importance and has been used by people throughout time. Estuaries can act as barriers, boundaries, places of entry and exit, communication routes and as a source of mineral and food resources. The Exe Estuary landscape we know today has been shaped by both natural and human influences over time, and this will continue. This range of competing interests of users of the Exe can often lead to conflict between different user groups and between the best interests of wildlife and human use. While the Partnership must consider the impact that people have on the Estuary it must also investigate and understand the value of the goods and services that the Estuary provides to society and how human use may affect these assets. There are many fundamental benefits, or services, that marine ecosystems, such as estuaries, provide for human society including the provision of food, raw materials and opportunities for recreation. Estuaries also have a role in maintaining our climate, transforming waste products and preventing coastal erosion. By valuing the ecosystem services provided by the Exe Estuary we can examine environmental challenges in ways that can better inform the management and governance. It is important that the Management Partnership considers the components of the Estuary not only in terms of biodiversity and habitats, but also with regards to the functioning of its ecosystem and its provision of ecosystem services and benefits. Understanding and valuing ecosystem services is a growing scientific field. For the first time, the Exe Estuary Management Partnership has incorporated findings and concepts from this work into the Management Plan. Further detail about the Exe, including its present condition and recent changes in aspects of the natural and human environment, can be found in the “State of the Exe Estuary 2014”. The changes outlined in this report help to highlight that the Estuary is a dynamic system, and that the people and wildlife living here will need to adapt and adjust. 7 | Exe Estuary Management Plan 2016 - 2021
Background to the Exe Estuary
Dawlish Warren
The Designations
The international, European and national designations work to conserve and enhance the Exe Estuary and
ensure the protection of important habitats, species and geological and coastal geomorphological interests.
This chapter summarises information on the designations, with more detail within the “State of the Exe Estuary 2014”
report. All competent authorities have a duty to protect and, where possible, enhance the SPA, SAC and SSSI.
Following the European Union referendum result in June 2016, current arrangements remain in place and
the UK continues to be a member of the EU. There will be no immediate changes and, even once Article 50
is invoked, the UK will remain bound by EU legislation until the withdrawal agreement comes into force. Until
the UK formally leaves the EU, it still has a legal obligation to comply with EU law and all of the rules and
regulations that apply and we still need to meet international and domestic commitments. This means current
arrangements for fishing, farming and the environment are unchanged.
International designations
Exe Estuary Ramsar site (including Dawlish Warren)
This site encompasses the waters, foreshore, low-lying land, three marshes and an unusual double spit across
the mouth of the Estuary and sand dunes of Dawlish Warren. This complex of habitats supports internationally
important numbers of wintering and passage waterfowl, as well as populations of breeding birds and nationally
important rare plants and invertebrates.
European designations
Exe Estuary Special Protection Area (SPA) (including Dawlish Warren)
This SPA is designated due to supporting populations, of international importance, of the following
overwintering / non-breeding species; Avocets; Slavonian Grebe; Black-tailed Godwit; Dark-bellied Brent
Goose; Dunlin; Grey Plover and Oystercatcher.
The site also qualifies for its internationally important assemblage of wintering wildfowl and waders. The main
species in this assemblage include, but are not limited to, Oystercatcher, Grey Plover, Black-tailed Godwit,
Dunlin, Dark-bellied Brent Goose, Wigeon, Ringed Plover and Greenshank.
Natural England has published Conservation Advice for the Exe Estuary SPA. This advice includes attributes
(characteristics or requirements) for the qualifying species and a target for each attribute. Targets for the
Exe SPA generally relate to the maintenance (rather than restoration) of populations and habitats / features.
However, importantly Natural England has set targets relating to increasing the current population of Dark-
bellied Brent Goose, Oystercatcher and Slavonian Grebe. Targets include:
Exe Estuary Management Plan 2016 - 2021 | 8
Background to the Exe Estuary • restoring the non-breeding populations of Dark-bellied Brent Goose, Oystercatcher and Slavonian Grebe (which has a five year average (2010/11 - 2014/15) of only two individuals), • reducing disturbance caused by human activity to Oystercatcher and Dark-bellied Brent Goose, • restoring the distribution, abundance and availability of food for Oystercatcher at preferred sites (e.g. it is thought that a significant decline in the density and extent of mussel bed communities at Bull Hill and Starcross has reduced the availability of mussels for oystercatchers in intertidal areas) The numbers of non-breeding Black-tailed Godwit and Avocet have increased on the Estuary since the SPA was classified in 1991. Note that while the numbers of non-breeding Grey Plover and Dunlin have also declined this is thought to be due to general fluctuations in population distribution, rather than site specific pressures. Natural England is required to report on the Favourable Condition Status of the SPA features every six years, there is currently no Natural England feature condition assessment for the Exe, however the development of a new condition assessment methodology began in 2016. Dawlish Warren Special Area of Conservation (SAC) This site is designated for its dune systems and population of petalwort (a liverwort). Natural England has published High Level Conservation Objectives for this site. Natural England has published a Site Improvement Plan for the Exe Estuary SPA and Dawlish Warren SAC as part of the Improvement Programme for England’s Natura 2000 sites. This plan sets out priority issues and actions relating to the features of the European Sites (including actions for the Exe Estuary Management Partnership). National and local designations Exe Estuary Site of Special Scientific Interest (SSSI) This site is designated due to the international importance of its wintering wildfowl and waders, the rare species of plant and the sandbanks and mudflats which support invertebrate communities of national significance. This site includes Orcombe Rocks, which are also recognised as a feature of geological interest, and mark the start of the Dorset and East Devon Coast (Jurassic Coast) World Heritage Site. Dawlish Warren SSSI / National Nature Reserve (NNR) / Local Nature Reserve (LNR) Dawlish Warren is designated primarily for its saltmarsh and dune communities which support aggregations of non-breeding waterbirds. It is also recognised for its coastal geomorphology, invertebrate assemblage and vascular plant assemblage as well as supporting the rare sand crocus. The double sand spit at Dawlish Warren is also recognised for its archaeological and historical value. The most recent Natural England assessments state that the condition of the majority of the two SSSIs is favourable. There are some areas which are recognised as unfavourable recovering / declining condition, which are due to the following reasons: poorly understood declines of some wintering bird populations across the sites; the recovering but not yet favourable mussel beds at Bull Hill; the presence of coastal defence structures at Dawlish Warren which impede the active geomorphological processes of the sand dunes on the foreshore; and some unconsented work in adjoining grassland. Further information on these sites can be found on Natural England’s Designated Sites System. Exmouth Local Nature Reserve (LNR) This Reserve provides protection for the eelgrass beds and invertebrates, which live in the tidal mudflats, which provide a rich food source for the bird populations. The large eelgrass Zostera noltii beds are particularly notable. A nationally rare bristle worm Ophelia bicornis can also be found on the Reserve. 9 | Exe Estuary Management Plan 2016 - 2021
Background to the Exe Estuary
Lapwing, Source: Mike Lane
Further information on waterbirds associated with the Exe Estuary
In general on the Exe, wader numbers have declined since 1971. Wildfowl numbers have increased, in part due
to a major increase in the non-native Canada Goose population over that period.
The WeBS Alerts system provides a method of identifying changes in numbers of waterbirds at a variety of
spatial and temporal scales. Of the 10 species that are evaluated on the Exe Estuary short (five years), medium
(10 years) and long term (25 years) trends currently (2016) include Oystercatcher, Lapwing, Brent Goose, Red
Breasted Merganser and Grey Plover all triggering either high or medium alerts. Further information on the
WeBs alert system and the current alerts for the Exe Estuary can be found on the BTO website:
https://www.bto.org/volunteer-surveys/webs/publications/webs-alerts
Comparison of site trends with broadscale trends suggests that declines may be driven by site-specific
pressures.
There is a large residential population close to the Exe, and high levels of residential development being
planned for into the future. This will increase the demand for recreational activity on and around the Estuary,
which, if not addressed, will potentially exacerbate existing recreational impacts on sensitive wildlife, such as
disturbance and habitat damage.
The South East Devon Habitat Regulations Partnership (SEDHRP) manages additional pressures from new
development on areas of international wildlife importance, such as the Exe Estuary, Dawlish Warren and the
East Devon Pebblebed Heaths. The work of this partnership is guided by the South-east Devon European Site
Mitigation Strategy and is implemented by two Habitat Mitigation Officers and a Dog Project Coordinator, over
seen by the Habitat Regulations Delivery Manager. Their roles will help provide safe areas for people to enjoy
and protect the important bird species these areas support. On behalf of the EEMP, the Exe Estuary Officer is a
member of the SEDHRP Working Group and works in partnership with the SEDHRP.
Exe Estuary Management Plan 2016 - 2021 | 10Background to the Exe Estuary
Mussels at the mouth of the Exe
Nature’s value
It is important to understand that the use of the Exe provides many benefits to society and that these uses and
benefits are inter-related and may change in the future. These benefits derive from the Estuary’s ecosystem
services and they can be classified into four categories which are shown in Table 1. They include the mental
and physical benefits that the natural environment can provide as well as the more tangible products, such as
fish. Considering the Exe Estuary’s natural environments from this perspective and attributing an economic
value to each benefit provides a better understanding of exactly what will be gained or lost from exploiting
different aspects of the environment. It ensures that all valuable aspects of the Estuary can be considered in
the management process, and allows direct comparisons of the economic and societal impact of different uses.
The Estuary’s ecosystem services are strongly interlinked with biological activity or functions which underpin
waste regulation, climate regulation and nutrient cycling. These functions also underpin cultural services, such
as leisure and recreation, which depend on clean, functioning seas. For instance, seabirds and mammals are
important for tourism and recreation, but compete with humans for fish as food or are trapped in fishing nets;
this indicates a trade-off between food provision, cultural services and conservation. Likewise, mussels provide
a food source for local wildlife and improve water quality. The farming of mussels provides important economic
wealth and jobs for the local community as well as a food source. Mussels need good water quality and a
supply of healthy phytoplankton to thrive but water quality is significantly impacted by inputs up river and by
the different uses of the catchment. During periods of high rainfall the Exe is used to minimise flooding in local
towns and villages by pumping untreated water directly out into the Estuary; demonstrating the often competing
uses of the Exe and the trade-offs that are made between protecting communities and providing for them.
Table 1: The benefits provided by estuaries, such as the Exe, can be divided into four categories
Provisioning Regulating Habitat Cultural
Food provision: • Air purification • Gene pool protection • Aesthetic experience
• Wild caught fish • Biological control • Migratory and nursery • Cultural heritage
(e.g. salmon, bass) (checks & balances) habitat • Cultural diversity
• Farmed sea food • Climate regulation • Information for cognitive
(e.g. mussels, oysters) • Coastal erosion development
Fishing bait prevention • Inspiration for culture,
(e.g. rag worm, crabs) • Disturbance prevention art and design
and moderation • Leisure, recreation
Biotic raw material: • Regulation of water and tourism
• Genetic resources flows • Spiritual experience
• Medicinal resources • Waste treatment and
• Ornamental resources assimilation
Many of these benefits are accrued by the local communities but some can have far wider implications, benefitting
UK society in general.
11 | Exe Estuary Management Plan 2016 - 2021Background to the Exe Estuary
Crab tiles and boats: multiple use of the Exe Estuary
The need for a Management Plan:
The Exe Estuary Management Plan is written to provide guidance on delivering statutory compliance and best
practice in managing this special place. It will:
Promote the sustainable use of the Exe Estuary, balancing the demands made on its natural resources and
resolving conflicts of interest where they arise.
Provide a framework for the co-ordinated management of the Estuary and improve communications
between users and organisations with authority over the Exe.
The Exe Estuary Management Plan 2016 - 2021 was drafted following a review of the 2012 - 2015 Interim
Management Plan. In the drafting of this new plan, consideration has been given to the ongoing relevance of
objectives that were included in the Interim Management Plan. A further review will be carried out during 2020/21 to
inform a new Plan for the following five years.
The contents of the Management Plan:
• Background and evidence for topics within each section
• Key achievements during the period of the Interim Management Plan 2012 – 2015
• Current and potential management issues
• The key objective for each sector of activity for the next five years
• The policy framework for each sector
• Indicative actions for delivery within the five year timeframe (full detail on actions to be delivered each year will be
given in an annual Delivery Plan)
The Exe Estuary Management Plan incorporates the Management Scheme for the Special Protection Area
(Regulation 34, Habitats Directive). Therefore, it identifies policies which aim to achieve favourable condition of the
wildlife and supporting habitats protected under the Special Protection Area (SPA). Relevant actions will apply to the
Competent Authorities that have a statutory responsibility for the protection of the SPA.
Exe Estuary Management Plan 2016 - 2021 | 12Background to the Exe Estuary The Management Plan: Where has it come from and where does it take us? The Exe Estuary Management Plan: • Is based on the scientific report: “The State of the Exe Estuary 2014” • Identifies specific management measures which will be implemented through an annual Delivery Plan • Shall be applied until the next review of the State of the Exe Estuary The “State of the Exe Estuary 2014” records the information currently available on the condition of the environment. It shows how the Estuary has changed over the years and illustrates its present condition. The report identifies the potential management issues on the Exe, which have been addressed in the Management Plan. The plan includes background information on each topic, but further detail can be found in the “State of the Exe Estuary 2014” report. The Exe Estuary Management Plan 2016 - 2021 is jointly agreed by Partner organisations and local community representatives. Priorities for action were informed through a public consultation exercise at the Winter Forum in 2016, a six-week public consultation period from 19th September to 30th October 2016 and a public consultation drop-in event on 5th October 2016. This Management Plan will be delivered through an annual Delivery Plan in a process led by the Exe Estuary Officer. The Delivery Plan indicates how the Management Plan will be implemented and identifies who is responsible for a given action. Electronic copies of the State of the Exe Estuary 2014 and the Delivery Plans, as well as details of the public consultation, are available on the Partnership’s website at www.exe-estuary.org The role of Key and Statutory Organisations The management measures specified within this plan encompass the duties that key and statutory organisations have a responsibility for, when managing this designated site. Table 2 lists the organisations that are involved with the management of the Exe Estuary and highlights which sections of the Management Plan they have an interest in. Key Legislation and Policies The principle European, national, regional and local legislation, plans and policies relevant to the Estuary, and the sections to which they apply, are set out in Table 3. 13 | Exe Estuary Management Plan 2016 - 2021
Background to the Exe Estuary
Table 2: Key and Statutory Organisations
Public Transport, Access and Land Based Recreation
Management of the Partnership and Organisation
Spatial Planning and Development Management
Navigation, Commercial and Other Uses
Flood and Coastal Risk Management
Waste Management and Recycling
Wildlife, Habitats and Designations
Farming and Farmed Landscape
Pollution Contingency Planning
Education & Interpretation
Water Based Recreation
History and Archaeology
Climate Change
Water Quality
Landscape
Fisheries
Tourism
Organisation 1.2 2 3.1 3.2 3.3 4.1 4.2 4.3 4.4 4.5 4.6 5.1 5.2 6.1 7.1 7.2 7.3
Devon County Council
District Councils
Exeter City Council
Town Councils
Parish Councils
Harbour Authority
Port Authorities
Natural England
Environment Agency
Devon and Severn IFCA
Defra
Marine Management Organisation (MMO)
European Union
Chambers of Commerce
CEFAS
Plymouth Marine Laboratory (PML)
Lympstone Fishery and Harbour Association
RSPB
Devon Wildlife Trust (DWT)
Royal Yachting Association (RYA)
Maritime & Coastguard Agency
Trinity House
Powderham Estate
Crown Estate
National Trust
Westcountry Rivers Trust
English Heritage
South East Devon Habitat Regulations Partnership
East Devon AONB
Jurassic Coast World Heritage Site
Climate UK
Devon Countryside Access Forum
National Farmers Union
Country Landowners Association
FWAG South West
Visit Devon
Network Rail
Sustrans
Exmouth Marina
Local Ferry Operators
Stagecoach
Exeter Airport
Business Link
Local Business Associations
Federation of Small Businesses
Armed Forces
South West Water
University of Exeter
University of Plymouth
Marine Response Centre
Shoreline Response Centre
Local Communities
Exe Estuary Management Plan 2016 - 2021 | 14Background to the Exe Estuary
Table 3: Key Legislation
Public Transport, Access and Land Based Recreation
Management of the Partnership and Organisation
Spatial Planning and Development Management
Navigation, Commercial and Other Uses
Flood and Coastal Risk Management
Waste Management and Recycling
Wildlife, Habitats and Designations
Farming and Farmed Landscape
Pollution Contingency Planning
Education & Interpretation
Water Based Recreation
History and Archaeology
Climate Change
Water Quality
Landscape
Fisheries
Tourism
Key documents, legislation and statutory plans 1.2 2 3.1 3.2 3.3 4.1 4.2 4.3 4.4 4.5 4.6 5.1 5.2 6.1 7.1 7.2 7.3
1. National Policy, Legislation and Documents
Ancient Monuments and Archaeological Areas Act
1979
Coast Protection Act 1949
Common Law Public Right of Navigation
Control of Pollution (Oil Storage) (England)
Regulations 2001
Coastal Margins. In The UK National Ecosystem
Assessment technical report, ch. 11. Cambridge,
UK: UNEP-WCMC. Jones et al (2011)
Countryside and Rights of Way Act 2000
Ecosystem Services Valuation for Coastal
Managers: A follow-on guide based on a PML-led
Ecosystem Services Valuation Workshop for
southwest coastal managers. Plymouth Marine
Laboratory. Austen, M. et al (2016)
Eels Regulations 2009
Environment Act 1995
Environmental Assessment of Plans and
Programmes Regulations
Environmental Civil Sanctions Order 2010
Environmental Damage Regulations 2009
Environmental Damage (Prevention and
Remediation) Regulations 2009 as amended
Environmental Permitting (England and Wales)
Regulations 2010 as amended
Environment Protection Act
Flood and Water Management Act 2010
Harbours Act 1964
Marine and Coastal Access Act 2009
Marine Licensing Regulations 2014
Marine Strategy Regulations 2010 – plus the UK
Marine Strategy (Marine Strategy Framework
Directive)
MCA Marking of Fishing Gear 2008
Merchant Shipping Act 1995 (as amended)
National Parks and Access to the Countryside Act
1949
National Planning Policy Framework
Natural Environment and Rural Communities Act
2006
Onshore Hydraulic Fracturing Regulations 2016
Salmon and Freshwater Fisheries Act 1975
Town and Country Planning & the EIA Regulations
1999 (inc. marine)
UK Marine Policy Statement
Urban Waste Water Directive
Waste (England and Wales) Regulations 2011
(Waste Framework Directive)
Water and Sewerage Order 2000
Water Environment (Water Framework Directive)
(England and Wales) Regulations 2003
Water Resources Act
Wildlife and Countryside Act 1981 (as amended)
15 | Exe Estuary Management Plan 2016 - 2021Background to the Exe Estuary
Key documents, legislation and statutory plans 1.2 2 3.1 3.2 3.3 4.1 4.2 4.3 4.4 4.5 4.6 5.1 5.2 6.1 7.1 7.2 7.3
2. Regional and Local Policy, Plans and
Documents
Dawlish Warren Beach Management Scheme
Devon & Severn IFCA Byelaws
Devon County Coastal Pollution Plan (2008)
Devon Landscape Character Assessment:
East Devon AONB
Teignbridge
Devon Redlands
Devon Local Flood Risk Management Strategy
(2014 – 2020)
Devon Minerals Plan 2011 – 2031
Devon Standing Environment Group Contingen-
cy Plan (2010)
Devon Waste Plan 2011 - 2031
East Devon Catchment Action Plan 2015
East Devon Local Plan 2013-31
Ecosystem Services Valuation for Coastal
Managers: A follow-on guide based on a PML
-led Ecosystem Services Valuation Workshop for
southwest coastal managers. Plymouth Marine
Laboratory. Austen, M. et al (2016)
Exe Catchment Flood Management Plan
Exe Disturbance Study (Footprint Ecology, 2011)
Exe Estuary Flood and Coastal Erosion Risk
Management Strategy (2014)
Exe Estuary Protection Plan (1999)
Exe Estuary Recreational Framework (EEMP,
2014)
Exeter City Council Core Strategy 2006-2026
Exmouth Tidal Defence Scheme
Exmouth Town Centre and Seafront Masterplan
Exe Estuary Recreational Framework 2014
Green Infrastructure Strategy
South Inshore and South Offshore Marine Plan
South-east Devon European Site Mitigation
Strategy (Liley et al, 2014)
South Marine Plan (draft)
South West River Basin Management Plan
(2015)
Shoreline Management Plan
Starcross and Cockwood Tidal Defence Scheme
Teignbridge District Council Local Plan 2013-33
3. Exe Estuary Designations
Dawlish SAC citation
Dawlish Warren SAC Conservation Objectives
Exe Estuary Ramsar – Ramsar Sites Information
Service
Exe Estuary Ramsar – Site information,
Designated Sites View (DSS)
Exe Estuary SPA Conservation Advice Package
Exe Estuary SPA citation
Exe Estuary SPA – Improvement Plan for
European Natura 2000 Sites (IPENS) – Site
Improvement Plan (SIP)
Exe Estuary SSSI – Citation, Views About
Management (VAM) and Operations Requiring
Natural England’s Consent
Exmouth LNR – Site information
Ramsar Convention 1971
4. European Legislation and Directives
Bathing Waters (EC Bathing Water Directive)
Regulations 2008
Common Agricultural Policy
Cross Compliance: Guidance for 2015
Conservation of Habitats and Species
Regulations 2010 (as amended)
Drinking Water Directive
EU Fisheries legislation
EU Recreational Craft and Personal Watercraft
Directive 2013
Industrial Emissions Directive
International Convention for the Prevention of
Pollution from Ships
Exe Estuary Management Plan 2016 - 2021 | 16Background to the Exe Estuary 1.2 Management of the Partnership and Organisation Exe Estuary Management Partnership: Mission Statement The Exe Estuary Management Partnership (EEMP) coordinates management of the Estuary, on behalf of local authorities, government agencies and conservation bodies and provides a contact point for local communities of the Estuary. The Partnership seeks to conserve and enhance the Estuary’s special nature and promote sustainable economic and social activity by managing competing demands and addressing any conflicts as they arise, to ensure that interests and activities are harmonised. Figure 2: Structure of the Exe Estuary Management Partnership (see page 3 for explanation of abbreviations) Background and Evidence The Exe Estuary Management Partnership has existed since the mid-1990s. Due to the complex array of organisations with (sometimes overlapping) management responsibilities for different aspects of the Estuary, a partnership approach is the most effective model by which to achieve consistent management of the Estuary resource as a whole. The Exe Estuary Management Partnership is the management group responsible for the delivery of the SPA management scheme. The structure of the Exe Estuary Management Partnership is illustrated in Figure 2, and reflects the effective and streamlined structure of the delivery of Estuary-related work. The Partnership funds an Exe Estuary Officer, who is hosted by Devon County Council, to act on its behalf but retains joint authority for the work through regular Management Group meetings. Users of the Estuary play a key role in the Partnership and the Public Forum will 17 | Exe Estuary Management Plan 2016 - 2021
Background to the Exe Estuary
continue through annual public meetings. The Partnership also includes a Forum Chair and Forum Vice Chair, who
have been elected by the local community to represent their views through this group.
The role of the Partnership is two-fold: to deliver the Management Plan for the Estuary, including the European
Marine Site Scheme of Management; and to work with local users and communities to find a balance of interests
and work to resolve issues where they arise. The funding arrangements for the Estuary Partnership are detailed in a
Memorandum of Agreement, which also sets out the roles of the Management Group and Officer Working Group.
Key Achievements 2012-2016
• Funding through the LiCCo initiative (further details in ‘Climate Change’ section) allowed the Partnership to deliver
a number of community and education projects.
• State of the Exe Estuary 2014 report produced, funded through the LiCCo project.
Issues
• At a time of reducing resources, the Partnership needs to broaden its funding base for core and project work
and to look for new opportunities for sponsorship, income generation and external funding, including commercial
possibilities.
• The composition and operation of the Partnership is kept under regular review to ensure it remains effective,
efficient and fit for purpose.
• There is an ongoing need to foster and develop links with other local and sub-regional bodies such as the East
Devon Catchment Partnership to help effective delivery of the Management Plan at a time of reducing resources.
• Opportunities should be taken to increase joint working and good practice exchange with other Estuary
partnerships, both in Devon and elsewhere, to avoid duplication and to optimise limited resources.
Key Objective
The Exe Estuary Partnership has sufficient resources to operate efficiently in coordinating the management of the
Estuary and to promote its sustainable use.
Policies
PO1: Maintain an effective and fit for purpose management structure for the Estuary Partnership which can
demonstrate accountability and transparency of decision making.
PO2: Encourage Partnership members, individually and collectively, to actively support the implementation of the
Management Plan and the reporting requirements.
PO3: Engage local communities and user groups in the management of the Exe through an active Forum and Task
and Finish Groups.
PO4: Find sufficient resources to maintain the employment of an Exe Estuary Officer to be hosted by Devon County
Council to support the management function.
PO5: Support a volunteer network as an increasingly important resource for undertaking delivery of some aspects of
the Management Plan.
PO6: Ensure that the Management Plan is reviewed every five years and is regularly reported on and monitored.
PO7: Maintain a clear relationship with other partner bodies which have a role in delivering the Management Plan
objectives.
PO8: Enable partners, parish and town councils, other stakeholders, local communities and user groups to be
informed of activity on the Exe Estuary through its Forum.
Indicative Actions
• Annual Delivery Plans and Annual Reports are published each year.
• Produce updated State of the Exe report for 2019.
• Produce updated Management Plan for 2021-2026.
• Explore opportunities to provide a Technical Secretariat for other Exe Estuary groups where appropriate.
Exe Estuary Management Plan 2016 - 2021 | 18Climate Change 2. Climate Change Failing groyne at Dawlish Warren Background and Evidence According to the fifth synthesis report from the Intergovernmental Planet on Climate Change (2014), “warming of the climate system is unequivocal”. Climate change is already bringing changes to some of the physical attributes of the Exe Estuary including erosion of cliffs and beaches, and longshore drift and tidal currents moving sand and sediments on a major scale. These changes are being caused by sea level rise. Climate projections indicate more frequent and severe storms and potential increases in intensity and duration of rainfall patterns in the future which will contribute to further change. Changes in sea temperature are likely to affect most ecosystem services provided by the Exe. Nationally, these changes are already understood to be affecting food production, wildlife populations, such as seabirds, and possibly human health through the increase in optimum environmental conditions that could facilitate outbreaks of pathogens. Yet at the same time, climate change could bring increased benefits for the marine leisure and recreation industries because of the potential for warmer summers. Human activities that emit greenhouse gases are extremely likely to be the main cause of global warming. Without intervention, the Stern Review in 2006 estimated that overall costs of climate change impacts will be equivalent to losing between 5% and 20% of global GDP each year, now and forever. Climate change is affecting all sectors of society, from industry and commerce to utilities, infrastructure and buildings. Climate change is also impacting the natural environment of the Exe Estuary, causing “coastal squeeze” against hard defences as sea levels rise. As this progresses, this will result in loss of habitats, which are legally protected by both UK and European law, and affect internationally important wildlife. The Exe Estuary Management Partnership was involved with ‘Living with a Changing Coast’ (LiCCo), the cross- channel, European-funded project which was led by the Environment Agency. It aimed to help coastal communities better understand, prepare for and adapt to the impacts of climate change, sea level rise and coastal erosion. The project, which has now come to its end, has achieved a number of objectives, including the development of a suite of learning and teaching resources, which won a Geographical Association Publishers’ Award. Further information and all resources can be found at www.licco.eu 19 | Exe Estuary Management Plan 2016 - 2021
Climate Change
Key Achievements 2012-2016
• Completion of the Living with a Changing Coast (LiCCo) project.
• Dawlish Warren Beach Management Scheme demonstrates how flood defences should adapt to coastal change.
Issues
• Climate change is already affecting, and will continue to have an impact on all social, environmental and economic
aspects on an international scale.
• Climate change will impact many of the goods and services provided by the Exe Estuary, including food provision
and coastal defence but there may be benefits in terms of tourism and recreation.
• It is difficult to manage the Estuary appropriately through five year Management Plans when the impacts of climate
change are on a far longer timeframe.
• No managed realignment projects, i.e. to set back sea defences, creating new inter-tidal land to enable natural
evolution of the Estuary as sea levels rise and counter losses of inter-tidal habitats to coastal squeeze (and all of
the societal and wildlife benefits they generate), are currently proposed on the Exe Estuary.
• The contribution of activities within the Exe Estuary to global warming is unknown, but it is safe to assume that
efforts should be directed towards reducing emissions.
• With a lack of monitoring, it is difficult to evaluate the potential impact of climate change on social, economic, and
environmental aspects of the Estuary.
• Even if greenhouse gas emissions cease now, the climate will continue to change well into the mid-21st century,
meaning that adaptation is necessary irrespective of international action on emissions reduction.
Key Objective
Impacts of climate change on the Exe Estuary are better understood, promoted, monitored and minimised through
promotion of adaptation measures and sustainable management.
Policies
CC1: Identify and minimise the activities within the Exe Estuary that are the main contributors to global warming, by
increasing public understanding and encouraging responsible behaviour.
CC2: Use local knowledge and existing surveys to analyse past occurrence of climate related incidents on social,
economic and environmental aspects of the Estuary, identifying the areas which are the most vulnerable
to climate change and suggesting adequate sustainable management (such as flood and coastal risk
management), ensuring that the chosen management method is “climate proof” for the following 50 years as
recommended in the Devon Climate Change Strategy.
CC3: Using the South West Coastal Monitoring programme, develop an integrated monitoring method for analysing
the impact of climate change on the Estuary in the short, medium and long term (to include impacts on
historical and archaeological sites).
CC4: Ensure that Partners and others with interests in the Exe Estuary are actively engaged in the potential impacts
of climate change and are prepared to adapt to these changes.
Indicative Actions
• Research existing studies on how plant and animal species can act as indicators of climate change.
• Continue to use and disseminate the LiCCo education resources.
Exe Estuary Management Plan 2016 - 2021 | 20Natural and Historic Environment 3. Natural and Historic Environment 3.1 Wildlife, Habitats and Designations Avocets and Black-tailed Godwits at Topsham, Source: Colin Scott Background and Evidence The Exe Estuary is recognised as a nationally and internationally important site for its species and habitats. The Estuary provides key habitats such as mudflats and sandflats, mussel beds, eelgrass beds, reed beds, sand dunes, salt marsh and intertidal reefs which attract internationally important numbers of wintering and on passage waterbirds. Their presence can act as a good indicator of the general health of the ecosystem. Changes in numbers that visit the site throughout the year can signal a variety of circumstances, for example, earlier arrival in the year of some birds may be due to milder winters and can indicate changes in climate, or alternatively can signal a failure to breed. Milder winters may also result in fewer wintering birds, as there is not the need to travel this far south. As well as waterbirds, the Estuary and its immediate environs are home and feeding ground to a diverse range of wildlife species, including birds of prey (e.g. Kestrel, Peregrine), invertebrates (e.g. dragonflies, worms), reptiles and amphibians (e.g. sand lizard, newts), fish (e.g. salmon, bass) and mammals (e.g. otters, seals, wild deer). The Exe Estuary is protected by national and international protection due to the important habitats and species present, as well as geological and coastal geomorphological interests. These designations and information on why they are protected is provided in Section 1. 21 | Exe Estuary Management Plan 2016 - 2021
Natural and Historic Environment
Key Achievements 2012-2016
• The majority of the Exe Estuary SSSI has reached a favourable condition.
• Eelgrass survey completed in 2016.
• Published the new Conservation Advice package for the Exe Estuary SPA.
• The Environment Agency’s investigation of the creation of intertidal habitat on the Exe.
• New Habitat Regulations Delivery Manager in post.
• Further survey work carried out on bird disturbance from human activities.
Issues
• Lack of knowledge and management of various impacts, such as invasive species, diffuse pollution,
development and sediment and hydrodynamics on the habitats and designated areas.
• Parts of the SSSIs are in unfavourable recovering / declining condition.
• Lack of enforcement of management measures on site.
• Some areas of nature conservation value fall outside present designations.
• Loss and deterioration of intertidal habitats due to development, provision of coastal defences and sea level rise
against hard defences (coastal squeeze).
• Lack of an integrated monitoring plan within the Estuary.
• Loss and disturbance of biodiversity, including wintering, farmland and breeding birds, due to a variety of
impacts which are not fully understood.
• Need for clarification nationally on the definition of disturbance and what level of disturbance is potentially
detrimental to bird life.
• Difficult to place a financial value on biodiversity.
• Limited public understanding of, and engagement with, the benefits of designated sites and management
measures.
Key Objective
Habitats along with qualification features of designated sites are maintained in favourable condition and, where
possible, enhanced.
Policy
WHD1: Identify how to increase the percentage of the SSSIs, SPAs and SACs in favourable condition status.
WHD2: Identify and pursue habitat re-creation opportunities that favour natural processes.
WHD3: Encourage further studies to help understand why certain species are declining and how this could be
managed.
WHD4: Work with the South East Devon Habitat Regulations Partnership (SEDHRP) to minimise and manage
harmful impacts of development and activities that take place on and around the Exe Estuary, developing
best practice guidance to ensure that the nature conservation features of the designated sites are not
adversely affected.
WHD5: Work with Estuary users and groups to achieve greater appreciation of biodiversity and increase
awareness and compliance of legislation for designated sites.
WHD6: Encourage the recognition and designation of any additional areas of high conservation value.
WHD7: Assess the economic value of biodiversity to EEMP area.
WHD8: Establish and deliver Habitats and Species of Principle Importance/ Priority Species and Habitats
(previously Biodiversity Action Plan) targets relevant to the EEMP area.
WHD9: Ensure priority biodiversity is appropriately monitored.
Indicative Actions
• Review Natural England’s Conservation Advice Package for the Exe Estuary SPA, identifying objectives and
issues where the Partnership can contribute to maintaining or restoring attributes necessary to conserve site
features.
• Support and help to guide future review of byelaws.
• Revise activity zones, exclusion zones and codes of conduct, working with Estuary users and groups.
• Provide guidance towards the work of the SEDHRP and work with Habitat Mitigation Officers (HMOs).
Exe Estuary Management Plan 2016 - 2021 | 22Natural and Historic Environment 3.2 Landscape Landscape as seen from across the Exe Estuary Background and Evidence The distinctive character, valued features and special qualities of the Exe Estuary area are protected through Local Plan policies linked to Landscape Character Assessments which form part of the Local Plan evidence base. These policies are also linked to a number of international, national and local landscape designations found within the vicinity of the Exe Estuary, including: • East Devon Area of Outstanding Natural Beauty • Dorset and East Devon Coast World Heritage Site • Haldon Hills ‘Area of Great Landscape Value’ (protected through Teignbridge Policy EN2A) • East Devon Coastal Preservation Area and Teignbridge Undeveloped Coast - which both seek to maintain the character of the undeveloped coast • East Devon ‘Green Wedge’ and Teignbridge ‘Strategic Open Break’ which seek to maintain the separate identity and character of certain settlements The “Exe Estuary and Farmlands” is one of 68 Devon Character Areas that have been defined within the Devon Landscape Character Assessment. The written profile for this area contains a description of the area’s character, constituent landscape character types, distinctive characteristics, special qualities and features, as well as the current and future forces for change and their landscape implications. It contains a landscape strategy and guidelines that seek to conserve and enhance the area’s distinctive character. The Landscape Character Assessments also describe variations in the generic ‘Landscape Character Types’ found in this area. These comprise lower rolling farmland and settled slopes, lowland plains, marine levels, estuaries, dunes and cliffs. The Exe Estuary and Farmlands also forms part of the ‘Devon Redlands’ National Character Area defined by Natural England. The Devon Landscape Policy Group (DLPG) is recognised as the body responsible for creating, updating and promoting Landscape Character Assessments relevant to planning and land management decisions in Devon. The DLPG has published Advice Notes relating to landscape policy and evidence, including those about Devon’s Landscape Character Assessments, Devon Character Area profiles and their use in neighbourhood planning, details of which are in the ‘Key Legislation’ table. The Devon-wide landscape character type profiles for East Devon and Teignbridge are being updated. This presents an opportunity for the Exe Estuary Management Partnership to engage with the process and influence the guidelines used in land management and planning decisions. 23 | Exe Estuary Management Plan 2016 - 2021
Natural and Historic Environment
Key Achievements 2012-2016
• Increased awareness within local planning authorities of the importance of the landscape when dealing with
planning applications and the sensitivity of the Estuary to development.
Issues
• Potential agricultural intensification, leading to loss of traditional field boundaries, change to existing landscape
patterns, and the need for larger farm buildings.
• New development and flood defences at the fringes of urban areas and larger villages and on undeveloped
Estuary sides.
• Potential pressure for the tidal energy of the Estuary to be harnessed as a renewable energy source in
response to government targets for climate change mitigation.
• Abandoned vessels and shipwrecks on the Exe which may have detrimental visual and environmental impacts.
Key Objective
The distinctiveness of the natural and cultural landscape of the Exe Estuary is conserved and enhanced and is
understood and valued by local residents, users and visitors.
Policies
L1: Ensure that all relevant authorities treat the Estuary as a single landscape character area entity with
reference to relevant Landscape Character Assessments as set out in Devon Landscape Policy Group
Advice Note 1: A Guide to Devon’s Landscape Character Assessments.
L2: Ensure that the planning process properly considers the character of the Exe Estuary landscape and the
likely visual impact of major developments (including coastal defences) and scope for mitigation of adverse
effects is fully explored as part of landscape and visual impact assessments along with opportunities to
enhance the landscape.
L3: Ensure that land management schemes conserve and where possible enhance the distinctive character
of the Estuary landscape with reference to the information contained within relevant Landscape Character
Assessments.
L4: Encourage new recreation and tourism initiatives and facilities which will help promote and celebrate the
unique and distinctive nature of the Estuary’s landscape whilst respecting its distinctive characteristics and
special qualities.
L5: Ensure the aims of the Management Plan are understood and implemented by the determining authorities
for development affecting the area and that the EEMP are consulted when the Landscape Character
Assessments are updated.
Indicative Actions
• Ensure relevant Landscape Character Assessments are up to date and adequately addressing the issues
of the EEMP.
• Engagement with Local Planning Authorities to ensure that proper consideration is given to the distinctive
character, special qualities and valued features of the Exe Estuary landscape.
• Promote Advice Notes published by the Devon Landscape Policy Group, including that related to
neighbourhood planning.
• Promote relevant Landscape Character Assessments to land managers within the EEMP area.
Exe Estuary Management Plan 2016 - 2021 | 24Natural and Historic Environment 3.3 History and Archaeology Historic hulk and boats at Topsham Background and Evidence The Exe Estuary contains many varied sites of archaeological and historical importance, indicating that the Exe played a strong strategic communication and supply/trade role during the first decades of the Roman occupation. Topsham was once the second busiest port in Britain through medieval centuries, with Dutch-influenced architecture coming via the strong wool trade links with Holland. Exeter Canal and Locks are the oldest of their kind in Britain, built in the 1560s to take lighters, transporting goods to and from seagoing ships moored in the Estuary, to the Quay. Many historical buildings can be found in the villages alongside the Estuary, including Powderham Castle which dates from the 14th century. Brunel’s Atmospheric Railway along the western bank of the Estuary opened in 1846 and was converted to conventional steam after 1848. A number of features of the original railway survive beside the course of the present railway, principally the engine house at Starcross. Many former dry land sites are now in a submerged or intertidal environment. Covered by layers of silt, they can be protected from erosion, but can also result in difficulties in establishing the existence and extent of sites. The Exe Estuary contains a significant number of abandoned vessels in relation to other estuaries in the South West, with over 20 historic vessels, with the majority identified as sailing trawlers or ketches and most dating from the late 19th and early 20th century. Natural resources have been extracted from the Estuary for thousands of years, including fish, shellfish and waterfowl for food, reeds to make thatch and bedding, seaweed for fertiliser and sand, clay and salt. 25 | Exe Estuary Management Plan 2016 - 2021
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