Biodiversity Action Plan

Main Contents

Background to the HABAP

Background to Biodiversity

England's Motorway and Trunk Road Network

Biodiversity and the Work of the Highways Agency

Delivery of the HABAP

Appendices

The Action Plan

Biodiversity Action Plan

Foreword from the Transport Minister

England's motorway and trunk road network is the core of the nation's transport infrastructure. The country needs roads to support the distribution of food and goods as well as for personal travel. But roads can adversely affect the environment, through the take-up of land and the associated impact on wildlife habitats; through noise, light and air pollution; and through animals affected by road traffic.

In 1998, the Government published its Integrated Transport White Paper and its associated document A New Deal for Trunk Roads in England, which set out how roads policy will be integrated with that for other transport systems, planning and the environment.

We need a balanced solution one which recognises both economic and environmental wealth. In the variety of plants and animals, and the habitats in which they thrive, we have inherited a valuable national asset. We have a duty to do all that we can to preserve this variety and support it for future generations.

Preservation of our natural environment has been, and will continue to be, a high priority for the Government. That is why I am very pleased to endorse the Highways Agency's Biodiversity Action Plan.

FlowerThe Agency incorporates extensive environmental measures into all its work, from routine maintenance to the largest road-building schemes. For instance the £124million A2/M2 widening scheme has involved moving a 400-year-old ancient woodland, and building a new lagoon for a protected species of lagoon worm. The Agency is also the second-largest planter of native trees and shrubs in England, after the Forestry Commission.

This Biodiversity Action Plan sets challenging targets to protect and enhance the country's biodiversity where it exists side-by-side with our motorway and trunk road network. I have every confidence that the Agency will successfully achieve this important contribution to national biodiversity.

David Jamieson

Foreword from the Transport Minister

Message from the Chief Executive

Protecting and enhancing the environment is an increasingly important role for the Highways Agency and we have a strong track record in environmental management. In the winter of 2000/01 alone, we planted nearly a million trees and shrubs. Our Biodiversity Action Plan sets out how we intend to build on these foundations.

We are developing our role as a network operator, and with it a wider vision to work with others in pursuit of the best use of roads and of other non-road alternatives. We need to maintain a balance between our responsibility to develop and operate the strategic road network effectively and our responsibility to sustain and enhance the variety of plant and animal life that lives beside it.

In Strategic Roads 2010, our response to the Government's 10 Year Plan for Transport, we set a target to manage our network under Biodiversity Action Plans by 2006. A third of our network is already managed in this way. Our Biodiversity Action Plan describes how we will meet the 10 Year Plan challenge. We expect to spend around £15million over the next 10 years on delivering the Plan.

We cannot do this alone. Our staff will work with managing agents and consultants to implement the Plan. For instance, in the south-west, the Agency worked with its contractors to install otter bridges and culverts as part of 15 road schemes in the region, to protect otters that live alongside the area's roads.

Pine ConesKey to the success of the Biodiversity Action Plan will be the successful forging of partnerships with environmental and conservation organisations, neighbouring landowners, local authorities and other interested parties. We look forward to working with all these groups to promote biodiversity on our network.

Message from the Chief Executive

Executive Summary

Biodiversity is a term used to describe the variety of life on Earth. The conservation of a complex system of habitats and species is essential to maintain the ecological health of the planet. In June 1992, the UK became a signatory to the Convention on Biological Diversity, thus making a commitment to conserve and enhance our national biodiversity.

The Highways Agency is currently responsible for approximately 10,400km of roads across England, carrying volumes of traffic ranging from 5,000 vehicles per day to over 200,000 vehicles per day. Land owned by the Highways Agency between the highway fences, but not occupied by the road carriageway, is known as the soft estate. This currently represents approximately 30,000 hectares of land, supporting a wide range of habitats.

Ecological issues have been incorporated into the management of the soft estate since the late 1970s. In 2000, the Highways Agency stated in its response to the Government's 10 Year Plan for Transport that it has a target to 'manage the core HA road network in line with Biodiversity Action Plans' by 2006. In this document, the Highways Agency presents its own Biodiversity Action Plan (BAP), the HABAP.

As a first step towards developing the HABAP, the Agency established a Biodiversity Partnership of interested organisations, including the DTLR, English Nature, the Environment Agency, the Wildlife Trusts and the RSPB. The Partnership developed a set of broad objectives for the HABAP.

A truck driving on a bridge

In 1999/2000, the Agency carried out an audit of the existing biodiversity on the soft estate, and published the information in the Stage 1 Report. The report identified that about 40% of priority habitats 53% of priority species identified in the UK BAP are known, or are likely to occur, on the soft estate. The audit process also involved a review of UK, Regional and Local BAPs, which revealed that the Agency clearly has the potential to influence their targets. Habitats and species for individual action planswere selected using three criteria:

'the Agency clearly has the potential to influence UK, Regional and Local BAP targets'

Five broad habitat types (woodland, grassland, heathland, boundary features and water features) have been selected. Within each HAP, detailed actions are provided for relevant UKBAP priority habitats. Further habitats of conservation concern (but which are not classified as UKBAP Priority Habitats) are also included.

Twenty species (or groups of species) were identified for SAPs and are grouped to relate them to the habitat type with which they are most commonly associated. Each group of SAPs also contains a broad introduction to other associated species of conservation importance. Further species may be added to the list as the plan develops, and for this reason the HAPs and SAPs are published in a loose-leaf format.

'the soft estate has considerable potential for habitat enhancement and creation'

HAP and SAP targets will be challenging for the Agency to deliver. Some, for instance that for otters, will require major retrospective mitigation work to reduce the impact of the road network on the species. For other habitats and species, fairly minor changes in patterns of road verge management will have disproportionate benefits for wildlife.

The achievement of biodiversity targets is regarded by the Government as a major contribution to sustainable development in the UK. The Agency can help to fulfil these objectives in relation to its soft estate, which has considerable potential for habitat enhancement and creation.

Targets

Specific habitat and species related objectives and targets are included in the individual Action Plans in Part B. The following general objectives apply universally to the work of the Highways Agency in relation to biodiversity.

Develop cost-effective management practices aimed at the maintenance and enhancement of biodiversity in balance with other uses of the land. Continue to develop and introduce effective wildlife protection measures as part of new road schemes an improvement works. Continue to develop best practice guidance for allaspects of the Agency's work in relation to biodiversity and nature conservation.
Set targets, relevant to each area, for the conservationand enhancement of biodiversity.
 Consider the HABAP when undertaking impact assessments, and mitigate for unavoidable adverse impacts on the habitats and species for which action plans have been produced.
Work in partnership with others, where appropriate, to optimise the value and efficiency of habitat and species management. Reduce, where possible, the use of fertilisers, herbicides and other chemicals in the management of the soft estate.
Work in partnership with others, where appropriate,to optimise the value and efficiency of habitat andspecies management.In areas where the soft estate is adjacent to statutoryor non-statutory designated sites, manage the road verge in a way that buffers and protects them, and, if appropriate, encourages the expansion of valuable neighbouring habitats onto HA land. Reduce, where possible, the use of fertilisers, herbicides and other chemicals in the management of the soft estate.Continue to promote the awareness of biodiversity throughout the Agency.
In areas where the soft estate is adjacent to statutory or non-statutory designated sites, manage the road verge in a way that buffers and protects them, and, if appropriate, encourages the expansion of valuable neighbouring habitats onto HA land. Publish the results of the 5-yearly HABAP reviews.
Continue to encourage the creation of diverse habitats, particularly in relation to new road schemes and improvement works. Continue to develop and introduce effective wildlife protection measures as part of new road schemes an improvement works. Review the Agency's need for strategic nature conservation advice.
Executive Summary

Background to the HABAP

The aim of the Highways Agency Biodiversity Action Plan (HABAP)

The Highways Agency is responsible for the maintenance, improvement and operation of the trunk road and motorway network in England (excluding London, where, since July 2000, this has been the responsibility of Transport for London). It provides advice to the Secretary of State on all aspects of development and operation of the network.

As an executive agency of the Department of Transport, Local Government and the Regions (DTLR), the Agency works within the Government's strategic objective to encourage sustainable development. The Agency is committed to minimising the impact of the trunk road network on both the natural and built environment and to play a full role in implementing the Government's Biodiversity Action Plans.

This document, the Highways Agency Biodiversity Action Plan, or HABAP, is part of a long-term strategy for the conservation of habitats and species on the motorway and trunk road verges of England.

The overarching aim of the HABAP is to help the Agency achieve its objectives for conserving and, where possible, enhancing biodiversity. This will be achieved by fulfilling the following objectives:

The HABAP prescribes the Highways Agency's role in the conservation and enhancement of biodiversity in England within the context of its other objectives and responsibilities. In order to reflect to the national scope but localised management structure of the Agency, the Action Plans in the HABAP refer to relevant national, regional and local HAPs and SAPs.

'the soft estate is a considerable resource for biodiversity'

A car driving on a road

Development and scope of the HABAP

The soft estate (the land owned by the Highways Agency between the highway fences, but not occupied by road carriageway) is now seen as a considerable resource for biodiversity, stretching as it does across the whole of England and forming a network linking an enormous variety of habitats and landscapes. The HABAP defines actions and sets targets for the beneficial management of the soft estate for biodiversity, and covers the period 2002 — 2012. The HABAP has been produced broadly in line with guidance published by the UK Local Issues Advisory Group on the development of local Biodiversity Action Plans.

'the partnership approach is essential to the biodiversity Action Plan process'

The Highways Agency Biodiversity Partnership

The partnership approach is essential to the BAP process, due to the multidisciplinary nature of the task. In particular, it emphasises that the protection of species and habitats is not simply the remit of nature conservation organisations, but should also be the responsibility of business, the private utilities, local communities and a range of other interested parties. The HABAP process involved setting up such a partnership, which includes representatives from relevant divisions of the Highways Agency, and from various conservation and countryside organisations.

Name Organisation
Tim Everitt National Air Quality Forum
John Everett The Wildlife Trusts
Gerry Friell English Heritage
Jed Griffiths Royal Town Planning Institute
Robin Wynde RSPB
David Markham English Nature
John Robbins DEFRA Biodiversity Secretariat
Joe Stevens Environment Agency
Dr HJ Harvey The National Trust
Richard Lloyd The Countryside Agency
Alan Wood Country Landowners and Business Association
Richard Thorndike, (Chairman) Highways Agency, (Corporate Directorate)
David Raby Highways Agency (Operations Directorate)
David Avery Highways Agency (Network Strategy)
Tony Sangwine Highways Agency (Safety, Standards & Research Directorate - Horticulture &Nature Conservation)
Len Wyatt Highways Agency (until May 2001)(Safety, Standards & Research Directorate - Horticulture &Nature Conservation)
Stephanie Wray Cresswell Associates, (Consultancy Support)

A beckTo facilitate the implementation of the actions identified in the HABAP, the individual species and habitat action plans also identify partners who will play a key role in certain actions. These include not only the statutory bodies, such as English Nature and the Environment Agency, but also other organisations which may have a specific involvement with the particular habitats or species.

Audit and Assessment

An assessment of all relevant existing Biodiversity Action Plans and an audit of the existing ecological records for the network were carried out. These enable selection and preparation of action plans appropriate to the Highways Agency soft estate.

The BAP Review

All available UK, regional and local BAPs were reviewed for references to roads in order to help clarify the role of the HA both locally and nationally and to inform the preparation of the individual HABAP species and habitat action plans. These included the UK Biodiversity Action Plan (comprising 45 habitat action plans and almost 400 species action plans), a number of regional/strategic level BAPs (such as the Environment Agency BAP, and the British Waterways BAP), and more than 60 local biodiversity action plans (mostly based at county or unitary authority level). English Nature's 'Sustainable Development and Regional Biodiversity Indicators' documents were reviewed for each region and the emerging Regional Planning Policies were also assessed for relevance to the HABAP.

Although not all the BAPs reviewed during this process directly mentioned roads or the Highways Agency, many included species and habitats that could occur within the Agency's soft estate (or that may be encouraged to do so through restoration/enhancement measures), or they included species and habitats that are most likely to be threatened by the construction or operation of roads. All information from the LBAPs which relates directly or indirectly to the trunk road network in England is now stored on a database (the LBAP Database), while the UKBAP information is summarised in the Stage 1 Report.

UKBAP

A total of 17 Priority Species Action Plans and seven Priority Habitat Action Plans from the UKBAP were found to refer directly to the activities of the Highways Agency, and these are listed in Table 1. In many cases, the loss of habitat to road building and/or the damage to habitats through road-related pollution, were identified in the UKBAP as particular threats. However, road verges are also identified as potential refuges for a number of these species and habitats, and could represent a valuable resource for them, particularly if managed sensitively.

Priority Species
Mammals
Otter (Lutra lutra)
Dormouse (Muscardinus avellanarius)
Fish
Vendace (Coregonus albula)
Invertebrates
Straw belle moth (Aspitates gilvaria)
Basil thyme case-bearer moth (Coleophora tricolor)
Striped lychnis moth (Cucullia lychnitis)
Dingy mocha moth (Cyclophora pendularia)
Netted carpet moth (Eustroma reticulata)
Spangled diving beetle (Graphoderus zonatus)
A diving beetle (Agabus brunneus)
A broad-nosed weevil (Cathormioceros britannicus)
A ground beetle (Harpalus dimidiatus)
A water beetle (Helophorus laticollis)
Plants and Fungi
Sandy Stilt puffball (Battarraea phalloides)
Tower mustard (Arabis glabra)
Norfolk Flapwort (Lophozia rutheana)
English rock-bristle (Seligeria calycina)
Priority Habitats
Ancient and/or Species-rich Hedgerows
Lowland Heathland
Purple Moor Grass and Rush Pastures
Upland oakwood
Lowland dry acid grassland
Lowland calcareous grassland
Lowland raised bog

A further 98 Priority Species and 11 Priority Habitats also have some relevance to the soft estate, including several bird and bat species (that use road verges as linear flyways for foraging), numerous invertebrates, a range of scarce plants, and a number of wetland habitat types. Although no direct reference was made to roads in their Action Plans, all of these species and habitats have at least the potential to occur on or adjacent to the soft estate, and could benefit from appropriate conservation management of the road verge.

The review demonstrated that a significant proportion of UKBAP Priority Species (42%) and Priority Habitats (53%) either are known, or are likely to occur within the soft estate.

'for some areas of the country the true biodiversity value of the network is likely to be significantly underestimated'

LBAPs

There was considerable variation between LBAPs in terms of their relevance to the Highways Agency. Some BAPs barely considered roads, either as a threat to, or as a potential resource for, biodiversity, while others were actively involving the Agency in their action plans for various habitats and species. However, a number of common themes were apparent from the LBAP analyses:

 

The Network Information

Dry acid grass

The current knowledge of the biodiversity value of the Agency's land holding (referred to as 'network information') was then assessed and considered in relation to the information gained from the BAP reviews.

Network information was collected for 14 of the 20 Highways Agency areas; the remaining six areas did not have any information available at the time of the study, but the Environmental Database currently under development will result in better coverage. The detail and focus of the network information varied considerably from area to area and from contractor to contractor. In some cases, there were very detailed records of the fauna and flora present along a stretch of road, while others gave only rudimentary descriptions of habitat type. For some areas of the country the true biodiversity value of the network is likely to be significantly underestimated. Nevertheless, a rough indication of the total extent of different Priority Habitats recorded to date on the soft estate, and the prevalence of different Priority Species is presented in Tables 2 and 3.

Priority Habitats Total Number of Sitesfor each Habitat(extent, where knownas at July 2000)
Lowland heathland 28
Calcareous grassland 81
Ancient and/or speciesrich hedgerows 38
Acid grassland 20
Limestone grassland 6 (4.92 ha)
Lowland wood pasture/parkland 6 (4.66 ha)
Blanket bog/mire 1 (0.94 ha)
Wet woodland 17 (3.88 ha)
Estuaries 1
Lowland beechwood (possible) 7(4.16 ha)
Common Name Associated Roadsand HA Region(as at July 2000)
Skylark M6 (N); M26 (SE); A15 (Midlands); A30 (SW)
Brown Hare A63 (N); A64 (N)
Greater Horseshoe Bat A38 (SW)
Dormouse A30 (SW); M2 (SE); A43 (Midlands)
Water Vole M26 (SE); M62 (N); M5/M49 (SW); M18 (N)
Song Thrush M4 (SW); A30 (SW)
Nightjar A38 (SW)
Reed Bunting A303 (SW)
Linnet A30 (SW)
Great Crested Newt A14 (SE); A1 (N); A49 (Midlands); A500 (N)
Smooth Snake A3 (SE); A31 (SW)
Sand Lizard A3 (SE); A31 (SW)
Pearl Bordered Fritillary A30 (SW)
Narrow-headed Ant A38 (SW)
Red-tipped Cudweed A3 (SE)
Smooth Cat's Ear A3 (SE)
Western Ramping-Fumitory A30 (SW); A39 (SW)
Floating Water Plantain M60 (N)
White Clawed Crayfish A500 (N)

The HABAP

The next stage of the process was selection of priority habitats and species for conservation action, to produce the HABAP. The following criteria were used for selection:

The Highways Agency Habitat and Species Action Plans are presented separately in Part B of the HABAP.

The habitats and species are of particular relevance to the soft estate. Five broad habitat types (woodland, grassland, heathland, boundary features and water features) have been selected, so that the generic actions identified within the HAPs can be applied to bring benefits to as much of the soft estate as possible. Within each HAP, however, detailed actions are also provided for relevant UKBAP Priority Habitats, so that specific objectives may be set for the management of these target areas wherever they occur on the network.

Twenty species (or groups of species) have been selected for Species Action Plans at this stage of the HABAP. The SAPs have been grouped to relate them to thebroad habitat types with which they are most commonly associated: woodland features (dormouse, badger, bats, red squirrel and juniper); grassland features (red kite/kestrel/buzzard, barn owl, Adonis blue butterfly, Deptford Pink and Tower Mustard); boundary features (Western Ramping-fumitory); water features (otter, water vole, great crested newt, vendace, white-clawed crayfish, Agabus brunneus (a water beetle) and southern damsel fly); and heathland features (reptiles and narrow-headed ant). Each group of Species Plans also contains a brief introduction to other associated species of conservation importance. Further species may be added to the list in the future as the Plan develops. For this reason, the Habitat and Species Action Plans have been published in loose-leaf format, so that additional plans can be incorporated into the document as they are produced.

Flowers

Implementation, Monitoring and Reporting

This document, the Highways Agency Biodiversity Action Plan, or HABAP, represents part of a long-term strategy for the conservation of habitats and species of conservation importance on the motorway and trunk road verges of England. The next step will be implementation, which will be the responsibility of Agency staff, agents and consultants, across the network working in partnership, where practical, with neighbouring landowners, conservation organisations and other interested parties.

The HABAP will be reviewed at least every five years in order to monitor progress towards the targets set in each of the individual species and habitat action plans. Although the emphasis initially will be on these habitats and species, the HABAP is intended to be an iterative process rather than simply a one-off report. As knowledge of the ecological resource of the soft estate develops, the focus may need to shift in order to accommodate new habitats and species. Similarly, all actions relating to a species may be completed and the species could then be removed to a 'monitoring only' list. Where possible, the review of the HABAP willbe integrated into the review of the UKBAPs.

The Highways Agency measures progress against its objectives by the use of Key Performance Indicators (KPIs). The KPI for biodiversity from 2003-2007 will be the achievement of targets set in the Highway Agency's SAPs and HAPs. Progress against this KPIwill be reported in the Highway Agency's Annual Report. A more detailed report on progress against the individual SAP and HAP targets will be reported in a separate document in 2007. At that stage the entire HABAP will be reviewed in terms of its content, structure, species and habitats included, and the appropriateness of the targets set. It is envisaged that this review would also take advantage of the partnership approach.

Background to the HABAP

Background to Biodiversity

What is Biodiversity

The term 'biodiversity' encompasses all of the variety of life on Earth, and relates in particular to the importance of preserving a complex system of habitats and species inorder to maintain the ecological health of the planet. It places an emphasis not only onthe conservation of rare and threatened habitats and species in the most valuable areas,but also on the enhancement of features of importance to wildlife in the wider countryside.

In June 1992, over 150 heads of state or government (including the UK) agreed the Convention on Biological Diversity at the UN Conference on Environment and Development at Rio de Janeiro, committing them to take action to conserve and enhance biodiversity within their national boundaries.

The Highways Agency has the responsibility for ensuring that biodiversity is conserved and enhanced on its soft estate.

Tamer bridge

Biodiversity policy in the UK

The UKBAP

In response to the Rio Convention, the UK Government set up a Biodiversity Steering Group to audit the country's resource of threatened species and habitats, and in early 1994 'Biodiversity: the UK Action Plan' was published. Almost two years later, in December 1995, 'Biodiversity: the UK Biodiversity Steering Group report' provided targeted and costed action plans for 116 species and for 14 habitats. This was subsequently supplemented by the 'UK Biodiversity Group Tranche 2 Action Plans, Volumes I - VI', which provided action plans for a further 31 habitats and almost 300 species. All habitats and species for which a UKBAP action plan has been produced are referred to as 'Priority Habitats' and 'Priority Species', respectively. All other species listed in the UK Biodiversity Group reports are referred to as 'Species of Conservation Concern'.

'biodiversity action plans are increasingly being considered an important element of the planning process'

MotorwayLocal and regional BAPs

The conservation of Priority Species and Habitats, as well as biodiversity of more local importance, is currently being translated into action by the production of Local Biodiversity Action Plans (LBAPs). These documents are produced largely by local authorities in partnership with other interested parties (including English Nature, the Wildlife Trusts and the Environment Agency), and are increasingly being considered an important element of the planning process.

'natural assets for the benefit of people now and in the future'

Biodiversity and Sustainable Development policy

In the Government's sustainability strategy for the UK, 'A Better Quality of Life', emphasis is placed on 'building concern for wildlife into wider policies', and this will include 'examining policies and programmes [including management of the soft estate] in light of [the Government's] biodiversity commitments'. To help this process, the place of biodiversity in planning guidance is also being strengthened.

Since publication of the Integrated Transport White Paper (ITWP) in 1998, the strategic aim of the Highways Agency, as an executive agency of DTLR, has been 'to achieve sustainable development in support of the Government's integrated transport and land use policies'. Environmental sustainability is an important element of this, and can be defined as 'the maintenance and, where possible, enhancement of the total stock of natural assets for the benefit of people now and in the future'. Any improvement in the value of the HA's soft estate for biodiversity, both through changes in routine management practices and through more targeted conservation action or mitigation of effects on habitats not owned by the HA, will serve to contribute to the Government's objective to achieve sustainable development.

Background to Biodiversity

England's Motorway and Trunk Road Network

The Network

The Highways Agency is currently responsible for approximately 9,400 km of roads across England, carrying volumes of traffic ranging from 5,000 vehicles per day to over 200,000 vehicles per day. However, one outcome of the ITWP is that roughly 40% of the network (known as the 'non-core' network) is to be de-trunked, that is, passed back to local highways authority control. The HABAP therefore refers only to the remaining network, known as the 'core' network.

The Soft Estate

The soft estate is defined as the land within the highway boundaries that is not part of the carriageway. The Agency's soft estate extends across England, and currently represents approximately 30,000 hectares of land. It comprises a wide variety of habitats, and whilst much consists of narrow strips of grassland,scrub or woodland close to the carriageway, there are also more extensive areas of land within large interchanges or land acquired as a result of severance.

The estate also includes areas of other habitats, such as heathland, rock faces and wetlands. Highways land has to accommodate many, sometimes conflicting, uses, including those relating to engineering requirements, road safety, signage, traffic management, drainage, and the provision of mitigation for other environmental impacts, as well as measures relating specifically to biodiversity and nature conservation.

Increasingly, the soft estate is being acknowledged as holding areas of considerable value for biodiversity; this can be due to the presence of remnants of original habitats, the often low ecological value of adjacent land, its value as a wildlife corridor, and, in some cases, as a result of the applied management. Road verges can be of particular value if they comprise intrinsically valuable habitat which also abuts larger (sometimes protected or designated) areas of the same habitat type (such as SSSIs or County Wildlife Sites).

Conversely, roads (and their operation) can have significant negative effects on biodiversity. Among the potential negative effects on biodiversity are habitat loss, habitat fragmentation, barriers to species movements, road mortality of individual animals, changes to hydrology/drainage, pollution (of air, water and land resources), noise disturbance, and artificial lighting.

"improvement of the network can involve different types of work at anumber of geographical scales"

LorryMaintenance, Operation and Improvement of the Network

The Agency directs the maintenance, operation and improvement of the network through a number of contractual arrangements.

Maintenance and operation of the network is currently carried out through management agreements with contractors in each of 20 areas. These contractors, known as Managing Agents (MAs), in turn use contractors, known as Term Maintenance Contractors (TMCs) to undertake work on the network. The MAs and TMCs are responsible for the day-to-day management and carrying out operations such as maintenance, inspections and improvements, including those of an environmental nature.

Currently a new type of contract is being put in place that combines the MA and TMC functions in a Managing Agent Contractor (MAC) contract. This will reduce the number of areas to 14 by July 2003.

The work of MAs and TMCs will in the future be guided by Route Management Strategies (RMSs) and Environmental Management Plans (EMPs) which will enable a more holistic and route-based approach to environmental issues, including biodiversity.

Improvement of the network can involve different types of work at a number of geographical scales. The work involved can for instance be related to safety, renewal of surfaces, improving communications systems, new drainage systems, new junctions, road widening and new roads to replace existing ones.

These improvement works are carried out by contractors, working to consultants employed by the Agency, on contracts created specifically for that work.

A further type of contract is Design, Build, Finance and Operate (DBFO), which is currently in place along six lengths of the network. In these contracts a company or consortium is responsible for designing, building, and subsequently operating and maintaining the road for a 30 year period.

All of these contracts require compliance with relevant UK environmental protection and assessment legislation and policy, DMRB and TRMM guidance, and the use of appropriate environmental best practice. The HABAP will become part of the guidance for these contracts.

shrubs

England's Motorway and Trunk Road Network

Biodiversity and the Work of the Highways Agency

Biodiversity and roads policy

In 1998, the Government published a white paper on the future of transport, 'A New Deal for Transport: better for everyone', with the aim of developing an integrated transport policy whilst promoting sustainable development.

Under the 'New Deal for Trunk Roads in England' the Agency is committed to the Government's objectives to 'minimise the impact of the trunk road network on both the natural and the built environment', and 'to play a full role in implementing the Government's Biodiversity Action Plans'.

In 1999, the Agency published its Environmental Strategic Plan: 'Towards a balance with nature', a follow-up to its 1996 report 'Living with roads'. One of the key actions identified in the Plan is 'the development of a biodiversity action plan for the management of the soft estate, founded on the Government's actions to protect species and habitats'.

The Highways Agency Business Plan for 2000-2001 described how progress against the Agency's environmental objectives was to be monitored against key performance indicators. The biodiversity KPI for 2001-2002 was that 50% of the network (by length) should be under active biodiversity management by 31 March 2002, and for 2002 — 2003 that 60% should be under active biodiversity management by 31 March 2003.

In 2000, the Highways Agency published 'Strategic Roads 2010 — The Highways Agency 10 Year National Roads Strategy', a response to the Government's 10 Year Plan for Transport, in which it set targets to 'manage the core HA road network in line with Biodiversity Action Plans', and to manage the network 'in line with comprehensive Environment Management Plans'. Target dates for these activities are set in the 2001 — 2002 Business Plan of 2006 and 2011 respectively. This emphasises the commitment within the Agency to manage road verges for biodiversity across the entire network.

In addition, the Countryside and Rights of Way Act 2000 places a duty on government departments to have regard to the purpose of conserving biodiversity.

Existing Guidance

Guidance for the management of motorway and trunk road verges is currently provided in the Design Manual for Roads and Bridges (DMRB) and the Trunk Road Maintenance Manual (TRMM), both produced by the Highways Agency.

The main emphasis of the DMRB is on road improvement and maintenance, but it also provides guidance for environmental maintenance and enhancement procedures. These include sections on habitat creation, pollution control, and translocation, as well as descriptions of ecological management techniques for features such as grassland, scrub, woodland and hedgerows (DMRB, Volume 10). Advice Notes have been published as part of Volume 10 which provide specific guidance on the potential effects of roads on particular species, and give details of the measures that can be introduced to mitigate such impacts. To date, such advice has been produced for badgers, bats, otters, amphibians and dormice. Advice for other species is due to be published shortly.

The TRMM describes the routine landscape maintenance required for keeping the highway safe whilst also considering ecological implications of maintenance work. It also describes how existing management plans and ecological databases should be consulted before any maintenance work is carried out, and explains the relevance of biodiversity and nature conservation issues to routine maintenance. Guidance produced by other organisations such as English Nature, Environment Agency and RSPB may be used by HA staff but these vary in their applicability to road verges.

'half of the network should be under active biodiversity management by 31 March 2002'

Current HA initiatives

The Highways Agency has been working to minimise the negative effects of roads on biodiversity, not least through the nature conservation advice given in the DMRB. However, there are significant constraints on how biodiversity initiatives can be taken forward on the network. It would clearly be counter-productive, for example, to carry out management that would encourage certain BAP species onto road verges, if these species are likely to suffer high rates of mortality as a direct result of the close proximity of the carriageway. Similarly, motorway and trunk road drainage systems are designed to minimise the effects of polluted run-off on the local aquatic environment, and are therefore of limited nature conservation value.

Much of the basic improvement in road verge biodiversity will take place through the Agency's verge management systems. Managers will be encouraged to employ modified TRMM management techniques and also to work with partner organisations where practical to enhance species diversity.

Most of the biodiversity work currently being carried out by the Highways Agency is site-based conservation work, often aimed at encouraging the developmentof diverse and/or valuable habitats, and the continued existence of particular species.

Some of these projects are related to new road building or improvement schemes, while others are specific road verge conservation projects or research contracts. However, these projects tend to be relatively local in their scope.

A comprehensive computer-based Environmental Database is now in development, with the aim of standardising the collation and presentation of landscape and ecological information across the entire network.

Ecological surveys of the network for this database are due to be completed in autumn 2001. Allowing for the inclusion of biodiversity information on route plans should greatly improve the ability of the Agency to implement the HABAP, which will contribute to achieving UKBAP targets and compliance with UK and EU environmental legislation.

'The Highways Agency has been working to minimise the negative effects of road on biodiversity'

Moors

 The Environmental Database will also assist the strategic development of the network, and will provide reliable environmental data to deal with requests for information from interested parties, such as the DEFRA, environmental bodies and the general public.

Several research and development projects on the theme of biodiversity are currently programmed. These include:

 

Interaction of the HABAP with other HA plans

The HABAP will be central in the delivery of biodiversity objectives by the Agency (see flow chart, right).

Stone wall

The HABAP will also interact with other local and regional BAPs and the UKBAP. In particular, the HABAP will provide a focus for the actions ascribed to the Highways Agency in the UKBAP. This includes the requirement to 'attempt to limit the accidental killing or injury of otters by the provision of road underpasses' and other actions relating to the diving beetle Agabus brunneus, the Adonis blue butterfly, and ancient/species-rich hedgerows. Actions for two further species were attributed to the Highways Agency: Round-leaved Feather-moss; and the Sandy Stilt Puffball. The former has been found not to occur on the network, and the occurrence of the latter will be investigated with a view to inclusion as a SAP in the next review of the HABAP.

Many of the local BAPs reviewed ascribed actions to the Highways Agency; most related simply to the 'sensitive management of road verges'. This will be achieved by implementation of the 5 HAPs. Where a Local BAPhas requested more specific action by the Highways Agency for a particular habitat or species, this action is included, whenever possible, in the relevant HASAP or HAP.

Biodiversity and the Work of the Highways Agency

Delivery of the HABAP

"encourages the expansion of valuable neighbouring habitats into agency land"

Implementation

The HABAP will be implemented through three mechanisms:

A lakeSpecific habitat and species related objectives and targets are included in the individual Action Plans presented in Part B. The following generic objectives apply universally to the work of the Highways Agency in relation to biodiversity. Fulfilment of these will play an essential role in the implementation of the HABAP, and will help with the achievement of the targets set in the habitat and species action plans.

Delivery of the HABAP

Glossary

Active biodiversity management

Managing the network to support the protection of both habitats and species as a key component of the Agency's commitment to minimise its impact on the natural environment.

Advice Note

Specific management and mitigation guidance provided in the Design Manual for Roads and Bridges relating to particular ecological issues, usually individual species likely to be affected by road construction or improvement (e.g. otters, bats, badgers).

Biodiversity

The variety of life on earth. Most often articulated in terms of the abundance and variety of species and habitats.

Calcareous grassland

Species-rich grassland occurring on shallow lime-rich soils on chalk or limestone rock. Often supports a relatively wide variety of rare or threatened plants and invertebrates.

Coppicing

The traditional form of management of much of the broadleaved woodland in the UK, by cutting down trees and shrubs near ground level, allowing the tree to re-grow from the stump, and re-cutting at intervals of one or more decades to provide long straight poles.

The core network

The most important national road routes, comprising approximately 60% of the existing trunk roads, which have been selected to remain the responsibility of the Highways Agency. Responsibility for the remaining 40% of non-core trunk roads will be transferred to local authorities.

County Wildlife Sites

Sites considered being of local importance (County or District level) for nature conservation. They have no legal designation.

Design Manual for Roads and Bridges (DMRB)

A comprehensive handbook published (and regularly updated and augmented) by the Highways Agency, providing best practice guidance for the construction, operation and management of roads and bridges. Contains advice relating to the protection and enhancement of species and habitats.

Environmental Database

A standardised, nationally-consistent database of the Highways Agency's ecological and environmental assets, designed both for operational and strategic purposes. The functions of the database are: to record and utilise environmental data for cost-effective and environmentally-sound network management; to enable the Agencyto make strategic, statistical analysis of its environmental resource; and to facilitate monitoring of environmental performance.

Environment Management Plans

Route-based plans currently being produced by Managing Agents which will deal with the management of all environmental elements on the soft estate.

Epiphytic flora

Plant species which live on other plants without extracting nutrients or otherwise compromising the host.

Handover Report

A landscape document produced in conjunction with new road schemes detailing the planting proposals (including the species to be used) for the road verge.

Hibernaculum

A refuge used by a hibernating animal, generally relating to amphibians, reptiles and bats.

Integrated Transport White Paper

A government policy document aimed at developing a modern integrated transport infrastructure which facilitates easy and efficient travel whilst safeguarding the environment, tackling congestion and reducing pollution.

Key Performance Indicators

These are features relating to road maintenance, operation and management (e.g. numbers of road accidents, noise levels, air quality, biodiversity) for which targets have been set by the Agency (or by the Secretary of State) to ensure that the achievement of aims can be monitored.

Landscape and Ecological Strategy

A document prepared for a particular stretch of road which provides details (usually in the form of annotated route maps) of the landscape provisions and ecological resources of the soft estate. Includes information on wildflower planting, local nature conservation designations, and, in some cases, the presence of protected species or mitigation measures for protected species.

LBAP Database

A database produced as part of the commission for the Stage 1 Report which presents summarised information (in particular, those issues relating to roads and the work of the Highways Agency) from each of the Local Biodiversity Action Plans reviewed during the study.

Lead partner

An organisation that has been given the responsibility under the UKBAP for coordinating work and reporting on progress with the published UK species or habitat action plan. The Lead Partner organisation will usually have identified an individual who can provide information, advice or ideas on the conservation of the species or habitat in question.

Managing Agents

These contractors are responsible for the day-to-day management, maintenance and operation of all trunk roads in each of 20 Highways Agency Areas, including works of an environmental nature.

Mitigation

Activity carried out to negate or compensate for the forecasted impacts of a development, including new roads and road improvement schemes. Ecological mitigation can include measures to minimise the likelihood of protected species road casualties, the recreation of ecologically valuable habitat on the road verge, and the introduction of pollution control to protect aquatic habitats.

Network

The trunk road and motorway network for which the Agency is responsible.

Network Information

Ecological survey data gathered by Managing Agents relating to the road verges in the area for which they have responsibility. At the time of the Stage 1 Report, surveys had not completed for some of the Highways Agency areas, so the information collated for the report was incomplete. The type of data recorded varied from area to area, including plant species lists, records of protected species, locations of local nature conservation site designations, and the presence of mitigation measures (such as deer signs, and badger fencing).

Non-core network

Approximately 40% of existing trunk roads (the non-core network) are to become the responsibility of local authorities, with the remaining 60%

(the core network) to be managed by the Highways Agency.

Pollarding

A traditional form of management of broadleaved woodland in the UK, similar to coppicing, with trees cut above the reach of herbivorous mammals. This technique was largely used in wood pastures and parklands.

Priority Habitat

A habitat for which a costed Action Plan has been prepared in either Tranche 1 or Tranche 2 of the UKBAP (formerly referred to as 'key habitats').

Priority Species

A species for which a costed Action Plan has been prepared in either Tranche 1 or Tranche 2 of the UKBAP. Priority Species are those that were initially listed on the short and middle lists of the UKBAP (Tranche 1). All remaining species from the long list are now referred to as Species of Conservation Concern.

Ramsar site

A wetlands area of international importance designated by signatories to the 1971 'Convention on Wetlands of International Importance especially as Waterfowl Habitat' (Ramsar Convention).

Rank grassland

Unmanaged grassland dominated by coarse grasses. Of limited benefit for biodiversity, but can support large populations of field voles, an important prey item for kestrels, barn owls and other birds of prey which hunt on road verges.

Road improvement works

These can comprise road widening schemes, bridge repairs, improvements to signage, installation of cables/pipes or any other works relating to improving the functioning of a road.

Road verge

The strip of land/habitat between the carriageway and the highway boundary fence.

Route Management Strategy

An open process for planning future investment in the maintenance, operation and improvement of individual routes, integrating local and regional land and transport interests into the decision-making process.

Saproxylic

Saproxylic species are those that depend on wood, usually but not always dead and decaying wood, for some part of their life-cycle.

Site of Nature Conservation Importance (SINC)

A non-statutory site, designated at Local Authority level for its nature conservation interest (see also County Wildlife sites).

Site of Special Scientific Interest (SSSI)

An area of land notified under the Wildlife & Countryside Act 1981 as being of special natural conversation interest. The SSSI designation applies throughout Great Britain. Sites are notified by English Nature in England.

The Soft Estate

The entire road verge resource of the Highways Agency, covering all trunk roads and motorways in England.

Special Area of Conservation (SAC)

A site of European importance for wildlife designated by the UK Government under the EC Habitats Directive, where the necessary management is applied for the maintenance or restoration of the habitats and/or species for which the site has been designated.

Special Protection Area (SPA)

A site of international importance for birds designated by the UK Government under the EC Birds Directive, where appropriate steps are taken to protect the bird species for which the site has been designated. Together, SACs and SPAs form a network of European sites known as Natura 2000.

Stage 1 Report

The report on the audit and consultation stage of the HABAP, incorporating a review of existing ecological information for the soft estate, and an analysis of the potential relevance of Local BAPs to the future biodiversity work of the Highways Agency.

Sustainable Development

Development that meets the needs of the present without compromising the ability of future generations to meet their own needs.

Sustainability

Maintaining the environments natural qualities and characteristics and its capacity to fulfil its full range of functions, including the maintenance of biodiversity.

Term Maintenance Contractor

Contractors to the Managing Agent who undertake the day-to-day maintenance and management work on the trunk road network, including habitat management.

Transport for London

The organisation responsible for the maintenance and operation of the trunk road and motorway network in Greater London (this formerly comprised four Highways Agency Areas).

Trunk Road Maintenance Manual

A Highways Agency handbook providing detailed guidance to contractors undertaking the maintenance and management work on the trunk road network. It includes requirements relating to the maintenance of all landscape and ecological elements within the Highways Agency's responsibility, including areas of grassland and scrub, hedges, planted areas and wetlands.

Unitary Authorities

New local government areas created following the Local Government Boundary Reorganisation. In addition to the Counties, many unitary authorities have also produced their own local biodiversity action plans.

Wildlife corridor

A linear habitat feature, which links two or more habitats within a landscape, and along which wildlife can move.

The Wildlife Trusts

Non-governmental, charitable organisations concerned with local nature conservation issues (generally covering an individual county or group of counties).

Glossary

List of abbreviations

CWS County Wildlife Site
DTLR Department of Transport, Local Government and the Regions
DMRB Design Manual for Roads and Bridges
EA Environment Agency
EMP Environment Management Plan
EN English Nature
EU European Union
HA Highways Agency
HABAP Highways Agency Biodiversity Action Plan
HAP Habitat Action Plan
ITWP Integrated Transport White Paper
KPI Key Performance Indicators
LA Local Authority
LBAP Local Biodiversity Action Plan
LBRC Local Biological Records Centre
MA Managing Agent
NATA New Approach to Appraisal
NFBG National Federation of Badger Groups
NGO Non-governmental organisation
RBAP Regional Biodiversity Action Plan
RMS Route Management Strategy
RSPB Royal Society for the Protection of Birds
SAC Special Area for Conservation
SAP Species Action Plan
SNCI Site of Nature Conservation Importance
SSSI Site of Special Scientific Interest
SPA Special Protection Area
TMC Term Maintenance Contractor
TRMM Trunk Road Maintenance Manual
UKBAP United Kingdom Biodiversity Action Plan
WT Wildlife Trust

 

List of abbreviations

Bibliography/useful references

Byron, H (2000)

Biodiversity and Environmental Impact Assessment: A good practice guide for Road Schemes. The RSPB, WWF-UK, English Nature and the Wildlife Trusts, Sandy

Cresswell Associates (2000)

Highways Agency Biodiversity Action Plan: Stage 1 Report on Network and Biodiversity Action Plan Information

DETR (1992 onwards)

Design Manual for Roads and Bridges — The Good Roads Guide The Stationery Office, London

DETR (1998)

A New Deal for Transport: Better for everyone (The Government's White Paper on the future of transport) The Stationery Office, London

DETR (1998)

A New Deal for Trunk Roads in England The Stationery Office, London

DETR (1999)

A better quality of life: A strategy for Sustainable Development for the UK The Stationery Office, London

English Nature (1994)

Species Conservation Handbook English Nature, Peterborough

English Nature (1998)

Tranche 2 Action Plans Volume I: Vertebrates and Vascular Plants UK Biodiversity Steering Group

English Nature (1998)

Tranche 2 Action Plans Volume II: Terrestrial and Freshwater Habitats UK Biodiversity Steering Group

English Nature (1998)

Tranche 2 Action Plans Volume III: Plants and Fungi UK Biodiversity Steering Group

English Nature (1998)

Tranche 2 Action Plans Volume IV: Invertebrates UK Biodiversity Steering Group

English Nature (1998)

Tranche 2 Action Plans Volume V: Maritime species and habitats UK Biodiversity Steering Group

English Nature (1998)

Tranche 2 Action Plans Volume VI: Terrestrial and freshwater species and habitats UK Biodiversity Steering Group.

English Nature (1999)

Sustainable Development and Regional Biodiversity Indicators English Nature, Peterborough

English Nature (1999)

Veteran Trees: a guide to good management English Nature, Peterborough

Highways Agency (1999)

Towards a balance with nature: The Highways Agency Environmental Strategic Plan Highways Agency, St. Christopher House, London

Highways Agency (1996)

Living with roads Highways Agency, St. Christopher House, London

Highways Agency (1999)

Trunk Road Maintenance Manual Highways Agency, St. Christopher House, London

Highways Agency (2000)

Strategic Roads 2010 — The Highways Agency 10 Year National Roads Strategy Highways Agency, St. Christopher House, London

HMSO (1995)

The UK Steering Group Report Volume 1: Meeting the Rio Challenge Biodiversity Steering Group, London

HMSO (1995)

The UK Steering Group Report Volume 2: Action Plans Biodiversity Steering Group, London.

JNCC (1998)

Herpetofauna Workers Manual Tony Gent and Steve Gibson (Eds) JNCC, London.

RPS Clouston (1999)

Advice on development of an environmental database: final report Unpublished report, RPS Clouston, Huddersfield

Strachan R (1998)

Water vole Conservation Handbook Environment Agency, English Nature and Wildlife Conservation Research Unit

UK Local Issues Advisory Group (1997)

Guidance for local biodiversity action plans: Guidance Notes 1 — 4 UK Local Issues Advisory Group, Local Government Management Board, London.

Bibliography/useful references

Biodiversity Action Plan

The Action Plans

Biodiversity Action Plan