Managing Grassed Areas for Climate Change and Biodiversity
Perth and Kinross Council · 31 May 2023
Back to Climate Change and Sustainability Committee — 31 May 2023 and its agenda
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PERTH AND KINROSS COUNCIL Climate Change and Sustainability Committee 31 May 2023 MANAGING GRASSED AREAS FOR CLIMATE CHANGE AND BIODIVERSITY Joint Report by Head of Environmental & Consumer Services/ Head of Planning and Development (Report No. 23/167) 1. PURPOSE 1.1 This report outlines the results of grassland maintenance trials on 42 selected sites, across Perth and Kinross, which ran during 2021 and 2022. The purpose of the trials was to assess the biodiversity benefits, community views and costs of different methods of maintenance to help deliver the Council’s Climate Change Action Plan. It is intended that the evidence provided through the trials is used to create a long term plan for grassland management across the Council area. 2. RECOMMENDATIONS 2.1 It is recommended that the Committee: • approves the creation of a long-term plan and commitment to grassland management, following the success of the trials in 2021/22 and 2022/23, which would involve a significant increase in the number of “No Mow” and “Cut and Lift” sites across Perth and Kinross; and • agrees that the proposed plan, be developed in consultation with community groups and residents, and be subject to approval by Committee at a future meeting. 3. STRUCTURE OF REPORT 3.1 This report is structured over the following sections: • Section 4: Background/Main Issues • Section 5: Proposals • Section 6: Conclusion • Appendices 4. BACKGROUND / MAIN ISSUES 4.1 Tackling climate change and supporting sustainable places is one of the Council’s priorities as set out in the Corporate Plan 2022 – 2027. In addition, the Council has recognised the importance of tackling the twin challenges of biodiversity loss and climate change, with both identified as emergencies, and mitigations set out in the Council’s Climate Change Strategy and Action Plan
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2019-2030. Reducing grass cutting can help reduce carbon emissions, provide more biodiverse and interesting open spaces, improve physical and mental health and wellbeing, whilst also reducing costs. Biodiversity can be increased by creating habitats for birds, insects, and small mammals, which do not exist in regularly cut grass. As such, grassland management trials have been undertaken at a number of locations during the 2021 and 2022 growing seasons. 4.2 In 2021, Council officers from Sustainable Development and Climate Change, Community Greenspace and Operations worked together to identify and map sites to implement an initial trial at the end of the growing season. This was successful and led to further trials being undertaken during the 2022 season. 4.3 The trials involved two new approaches to grassland management, focussing on “uncut” areas. These are defined as areas which are not cut regularly. The two approaches are: • “Cut and Lift” - where grass was cut once annually and the arisings removed. This was aimed at encouraging more wildflower diversity by reducing soil fertility and controlling common weed species. • “No Mow” - where no management of the grass was undertaken. This was aimed at providing enhanced wildlife value, but also reducing fuel use and avoiding cutting or applying chemicals around obstacles within the grass areas. 4.4 The trials involved 42 sites in total, 8 ‘Cut and Lift’ areas and 34 ‘No Mow’ areas areas. They also included three sites using both grass management regimes: South Inch, Perth Viewlands Reservoir in Perth and Larghan Park, Coupar Angus. 4.5 The uncut areas were carefully selected within the sites for the trials to ensure the main uses of the site were not affected (for example, open sports kickabout or play spaces) and that the overall amenity of the parks were not adversely affected. The “uncut” had the edges mown around them to indicate that they were being intentionally left uncut and had not just been forgotten. In addition, paths were cut through some areas to ensure people could enjoy walking through the trial areas and avoid large areas becoming inaccessible. 4.6 The trials also linked with other initiatives, such as planting native trees as part of the Council’s Climate Change Action Plan and working with the Perth and Kinross Countryside Trust to assist with their ‘Tree for Every Child Initiative’. “No Mow” areas were left around the new avenue of trees for the Queen’s Green Canopy on the South Inch and planted with a native mix of wildflowers. 4.7 Council officers, acting as volunteer Biodiversity Ambassadors in their own time, were involved in monitoring the trial sites. The Sustainable Development
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and Climate Change team used the results to produce a detailed report on the results – Managed for Wildlife Trials Report 2022 (Appendix 1). 4.8 The report indicates that the areas covered by both the “uncut” approaches contained more wildflowers, and a higher number of different species, providing more variety compared to regularly cut grass. A total of 64 wildflower species were recorded that would not have flowered had these areas continued to be regularly mown. However, as the trials have only been monitored for one year, it is not possible to do an accurate comparison between the different grassland management approaches. As more data is collected going forward, it is anticipated that these comparisons will be able to be made. 4.9 The range of species found by B-Lines (a series of pathways for bees and insects, set up by the charity Buglife) and the results of the biodiversity monitoring found that two of the ‘No Mow’ sites would benefit from ‘Cut and Lift’ management. As such, the approach for these sites will be changed. 4.10 Online public consultation for the 2022 trials ran from February to the end of October and the overall results were very positive. A total of 386 responses were received and, initially, the majority (73.8%) were in favour of the changes, 21.2% disagreed with them and 4.9% were neutral. Some specific site concerns were raised, for example, in Rattray Common, Alyth Jubilee Park and Carsie. At Rattray Common, some areas were not managed in accordance with the plans produced and there were concerns about wildfires following the long dry spell. However, once specific issues were discussed and resolved, the percentage in favour increased to 78%. The results can be found in the Consultation Summary (Appendix 2). 4.11 It is anticipated that, over time, biodiversity will increase as a result of the “uncut” approach to grassland management. However, monitoring of sites will continue in future years to ensure that sites remain fit for purpose. This will be undertaken subject to available resources, while also working with local residents and communities. Community engagement will be supported through the additional funding of £75,000, agreed by Council on 1 March 2023. 4.12 In addition, the trials demonstrated that savings could be made with the “No Mow” regime and that this could be scaled up through larger areas and more sites. Currently, “Cut and Lift” is more expensive for the Council to undertake than standard grass cutting due to the scale of the trials and the need for specialist equipment and removal of the arisings. However, officers will continue to investigate external funding opportunities as outlined in para 5.5 below. 5. PROPOSALS 5.1 Given the overall success of the grassland management trials in improving biodiversity, it is proposed that a long-term action plan be produced with a view to support the “uncut” approach on more sites across Perth and Kinross.
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This could potentially involve 1,700 of the 1,900 sites that the Council currently maintain while continuing to ensure that there is no impact on areas such as sports pitches, formal and informal play areas, picnic areas, events spaces and paths for active recreation. This plan would be subject to community engagement and brought back to a future meeting of this Committee for approval. 5.2 It is currently anticipated that most sites the Council manage will have some element of “No Mow”. This will help to identify how the maintenance changes could be implemented to match the resources available through the budget savings agreed over the next two financial years. Any additional “Cut and Lift” sites would need to be maintained in partnership with community groups, given the additional costs involved. As noted above, an additional budget of £75,000 has been allocated to assist communities in enhancing sites to improve and promote biodiversity. This is likely to include planting wildflower ‘plugs’ and more pollinator plants, working in conjunction with the Council’s plant nursery at Westbank 5.3 It is proposed that all “uncut” areas will have mown edges and paths will be mown through the larger areas to retain access for enjoyment of the spaces. For reassurance, areas containing weeds such as thistles, docks, and nettles may be treated depending on the nature of the site and their location and invasive and notifiable weeds, such as Giant Hogweed and Japanese Knotweed, would continue to be treated as they are now. 5.4 Learning from the pilot in 2022, there will be more informative signage on site, together with accurate online maps to make it clear which grassland management approaches are being undertaken. Videos will be posted on social media to explain the management regimes and volunteers will be sought to help locally wherever possible. Cross-team working will continue within the Council and with other stakeholders, such as Perth and Kinross Countryside Trust and the staff Biodiversity Ambassadors. This will enable more coordinated monitoring, as well as better links with other biodiversity and climate change initiatives, along with other engagement activities, such as the Big Place Conversation. 5.5 External funding will also be sought for specialist machinery though, for example, the Nature Restoration Fund. It is anticipated that this may support the scaling up of the grass management changes, or buying more hand operated flails to help communities manage “Cut and Lift” areas. Changes to Council machinery will also be considered when the existing equipment is due for renewal. 6. CONCLUSION 6.1 The online public consultation as part of the trials found that 78% of respondents ultimately supported changes to the management of parks and greenspaces to improve biodiversity. In addition, the largest number of additional comments requested the Council to do more for biodiversity and be more ambitious.
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6.2 Grassland management changes in parks and greenspaces present an opportunity to respond to the climate crisis and pressures on biodiversity through creating and restoring natural habitats to benefit biodiversity, as well as reduce carbon emissions and chemical use. Establishing and maintaining wildflower meadows, through supported community partnerships, to undertake “Cut and Lift” and increasing “No Mow” areas, will help the Council maintain areas within the resources available and contribute to the Council’s Climate Change Strategy and Action Plan. The proposals outlined in this report allow this to be undertaken in a planned way. 6.3 The proposed plan, will be developed in consultation with community groups and residents, and brought back to a future meeting of this Committee for approval. Authors Name Designation Contact Details Lesley Ann Cassidy Senior Greenspace Officer (01738) 476500 ComCommitteeReports@pkc.gov.uk Joanna Dick Tree and Biodiversity Officer Approved Name Designation Date Barbara Renton Executive Director (Communities) 23 May 2023 APPENDICES • Appendix 1 - Managed for Wildlife Report 2022 • Appendix 2 - Consultation Summary
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ANNEX 1. IMPLICATIONS, ASSESSMENTS, CONSULTATION AND COMMUNICATION Strategic Implications Yes / None Community Plan / Single Outcome Agreement Corporate Plan Yes Resource Implications Financial No Workforce No Asset Management (land, property, IST) Yes Assessments Equality Impact Assessment No Strategic Environmental Assessment No Sustainability (community, economic, environmental) Yes Legal and Governance No Risk No Consultation Internal Yes External Yes Communication Communications Plan No 1. Strategic Implications Community Plan/Single Outcome Agreement 1.1 The Community Planning Partnership (CPP) has identified two cross cutting issues in addition to its five priorities. The CPP has established a Climate Change Working Group to contribute to the National Priorities of reducing emissions by 2030 and achieving Net Zero by 2045 to address the Climate Change Strategic Priority. 1.2 Increasing biodiversity and reducing carbon emissions directly contributes to “Creating a safe and sustainable place for future generations”. Corporate Plan 1.3 The revised corporate plan that was approved at committee on 21 December 2022 showed the revisions to address the Climate Change Emergency. This report and the proposals contribute directly to the Perth and Kinross Climate Change Strategy and Action Plan and is being monitored. “To conserve and enhance the biodiversity of our natural environment”. (iii) Promoting a prosperous, inclusive and sustainable economy; (iv) Supporting people to lead independent, healthy and active lives; and (v) Creating a safe and sustainable place for future generations.
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2. Resource Implications Financial 1.1 All changes to the maintenance will be met within existing resources and budgets. The savings of £250,000 in financial year 2024-2025 and a further £250,000 in 2025-26 are planned as a reduction from the Grounds Maintenance budget will be implemented through reductions in grass cutting and weed killing. It is anticipated that lessons learned from the trials of grassland management undertaken to date will underpin the changes to the maintenance regimes. £75, 000 has been identified to support biodiversity initiatives through community groups. Workforce 2.2 No implications for workforce in 2023-2024, although some tasks may be reprioritised, but they will still be within the scope and job profiles for the staff. Proposed savings to posts in the subsequent financial years will be met by reductions in maintenance activities. Asset Management (land, property, IT) 2.3 The management and maintenance of Council land will change, there are no proposals to dispose of land or to purchase any. 3. Assessments Equality Impact Assessment 3.1 Under the Equality Act 2010, the Council is required to eliminate discrimination, advance equality of opportunity, and foster good relations between equality groups. Carrying out Equality Impact Assessments for plans and policies allows the Council to demonstrate that it is meeting these duties. The Equality Impact Assessment undertaken in relation to this report can be viewed clicking here. This section should reflect that the proposals have been considered under the Corporate Equalities Impact Assessment process (EqIA) with the following outcome: (i) Assessed as not relevant for the purposes of EqIA. Strategic Environmental Assessment 3.2 The Environmental Assessment (Scotland) Act 2005 places a duty on the Council to identify and assess the environmental consequences of its proposals. This section should reflect that the proposals have been considered under the Act and no further action is required as it does not qualify as a PPS as defined by the Act and is therefore exempt.
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Sustainability 3.3 Under the provisions of the Local Government in Scotland Act 2003 the Council has to discharge its duties in a way which contributes to the achievement of sustainable development. Under the Climate Change (Scotland) Act 2009 the Council also has a duty relating to climate change and, in exercising its functions must act: • in the way best calculated to delivery of the Act’s emissions reduction targets; • in the way best calculated to deliver any statutory adaptation programmes; and • in a way that it considers most sustainable. Legal and Governance 3.4 None. Risk 3.5 None. 4. Consultation Internal 4.1 Consultation has been undertaken with Operations and Planning and Housing Strategy within the Communities Service. External 4.2 The site changes have been out to public consultation and further consultation will be undertaken. 5. Communication 5.1 Communications shall be undertaken with the public and internal consultees to ensure that changes are understood and put into practice. In addition to information being put on the consultation hub and website, revised signage will be put on site to distinguish between No Mow and meadow areas with QR codes linking to the web pages for further information. Face to face Briefings will also be offered to Elected Members. 2. BACKGROUND PAPERS 2.1 None.