Guidance

River basin management plans, updated 2022: record of consultation and engagement

Updated 22 December 2022

Applies to England

1. Introduction

This document presents a summary of the steps taken nationally and locally to ensure appropriate public consultation and engagement for the review and update to the river basin management plans (RBMPs).

Significant efforts to make information easily accessible have been made and are described in section 2 Public access to information.

To gain a more detailed insight into the views of stakeholders on different aspects of river basin management, several consultations involving a variety of organisations have been undertaken. These are summarised in section 3 Consultations.

Finally, the process of producing the consultations on the updated RBMPs has benefited from the active involvement in the planning process itself by many different stakeholders. These are summarised in section 4 Involvement in the planning process.

2. Public access to information

This section provides an overview of the information available to the public and other stakeholders relating to the updated RBMPs.

More detail about publicity activities in each river basin district can be found in the response documents for ‘updated RBMPs’, ‘Challenges and choices’, and ‘Working together’. The links to these are given in section 3.

2.1 Environment Agency

You can view the updated river basin management plans on GOV.UK. The plans were approved by the Secretary of State for the Environment, Food and Rural Affairs in December 2022.

Environment Agency-led consultation documents are made publicly available through the online consultation website.

Responses are visible online where permission has been granted by the consultee.

The catchment data explorer is a web application to help explore and obtain detailed information about local catchments and individual bodies of water.

2.1.1 Workshops and facilitated sessions

Many workshops and facilitated sessions which included discussion relating to the river basin management plans were held during the development of the updated RBMPs. Due to the coronavirus (COVID-19) outbreak many events were cancelled or held online. The engagement made use of regular meetings and events including presentations at stakeholder meetings across the water sector during all 3 consultations. Some examples are:

• United Utilities face to face workshop February 2020
• Estuarine and coastal stakeholder workshop in March 2020
• National Trust webinar March 2020
• British Plastics Federation virtual workshop, March 2020
• Catchment Partnership facilitated consultation sessions for Challenges and Choices 2020
• Food and Drink Federation workshop April 2020
• Golf industry virtual workshops June 2020 and March 2022
• Angling Trust Freshwater Advisory Group virtual workshop March 2022
• Kent County council virtual workshop March 2022
• British Egg Industry Council virtual workshop April 2022
• Yorkshire Integrated Catchment Solutions Programme (academia) April 2022
• Catchment based approach conferences (CaBA) in February 2019, 2020, 2021 and 2022)
• Catchment Partnerships: facilitated virtual joint consultation sessions in every river basin district during the draft Flood risk management plan (FRMP) and draft river basin management plan (dRBMP) consultation period from December 2021-January 2022
• February 2022: Lunchtime virtual ‘teach-in session’ attended by 29 estuarine and coastal (E&C) stakeholders
• The Environment Agency has worked with the Chartered Institution of Water and Environmental Management (CIWEM) to develop and deliver of professional training, conferences, events, and publications, in particular promoting catchment governance. Details about these events can be viewed on the CIWEM events page.

2.1.2 Social media

Consultations were made public across all the river basin districts through social media such as Twitter and Facebook.

2.1.3 Newspapers and press

The consultations were publicised in the London Gazette and in local press in all river basin districts.

2.1.4 Environment Agency offices

Paper copies of the consultation documents were available in Environment Agency offices on request.

2.2 Department for Environment, Food and Rural Affairs (Defra)

The government published River basin management plan ministerial guidance and standards on GOV.UK.

Government policy on protecting and improving the water environment, including flood protection can be viewed on the improving water quality webpage.

2.3 United Kingdom Water Framework Directive Technical Advisory Group (UKTAG)

UKTAG is a partnership of the UK environment and conservation agencies which was set up by the UK-wide Water Framework Directive (WFD) policy group consisting of UK government administrations. It was created to provide coordinated advice on the science and technical aspects of the WFD.

3. Consultations

To gain a more detailed insight into the views of stakeholders on different aspects of river basin management, consultations on general and specific aspects of implementation were carried out. Some consultations were carried out by the Environment Agency, others by Defra, Natural England and UKTAG. The main consultations are summarised in the following sections.

3.1 Environment Agency

3.1.1 Working together

The Environment Agency consulted on a national (England and Wales) document and 1 for each river basin district from 22 June 2018 to 22 December 2018.

These consultations set out proposals on how the RBMPs would be updated and stated why it is important to get involved. Views were sought on:

• how interested groups or individuals can work together better so that everyone has the chance to contribute to the RBMPs and be involved in managing the water environment
• working at a catchment scale
• how the Environment Agency can co-ordinate consultation over the RBMPs and flood risk management plans

Following these consultations which received 148 responses, the Environment Agency published the following 2 documents:

The consultation summary document was published in March 2019. This included:

• a summary of the responses received including the number of responses, who they were from and how they were submitted
• the Environment Agency’s response and actions in relation to the responses received
• a summary of how the Environment Agency consulted and engaged in each river basin district, including who and how many people and organisations were engaged
• next steps.

The consultation response document, Acting on your feedback, was published in September 2019. This included:

• key findings and Environment Agency actions, and progress with these actions
• next steps

Both documents can be viewed on the working together webpage.

3.1.2 Challenges and choices

The Environment Agency consulted on one national document called ‘Challenges and Choices’. The Challenges and Choices consultation was launched on 24 October 2019 with the aim of completing the consultation after the 6-month statutory period on 24 April 2020. However, because of the coronavirus (COVID-19) outbreak and following feedback from partners, the deadline for consultation submissions was extended by 5 months to 24 September 2020.

Alongside the Challenges and Choices document, the Environment Agency also consulted on a strategic environmental assessment scoping document.

These consultations shared the evidence and information on our water environment at national and local scales and asked for views on the significant issues and how these should be addressed. Specifically, they sought views on:

• the significant challenges that are affecting your local water environment and limiting the benefits society obtains from the water environment
• the best way to solve these issues and what should be done first

In response to the Challenges and Choices consultation which received 606 responses, the Environment Agency published a summary report, which includes:

• a summary of the responses received, detailing the number of responses, who they were from and how they were submitted
• the Environment Agency’s response and actions in relation to the responses received
• a summary of how the Environment Agency consulted and engaged nationally and in each river basin district, including who and how many people/organisations were engaged

This response document can be viewed on the challenges and choices webpage.

3.1.3 Consultation on the draft update to the RBMPs

The Environment Agency consulted on a draft update to the RBMP for each river basin district, from 22 October 2021 to 22 April 2022. The consultation proposed long-term objectives for the water environment and the measures to achieve them, where the costs were justified by the benefits. It asked for views about the objectives and measures and sought feedback on what stakeholders could help deliver. The consultation also provided an opportunity to comment on the implementation principles for the updated river basin management plans.

Two hundred and seventy responses were received of which 187 were from organisations. Following these consultations, the Environment Agency produced 2 response documents.

First, a summary response document that contains the main findings from the consultation, including the number of responses and types of organisations that responded. This document can be viewed on the draft river basin management plan webpage.

Secondly, a document showing how the Environment Agency has acted on the consultation responses. This document includes information about how responses to both the draft RBMPs and FRMPs are shaping these plans and influencing planning and delivery for the updated plans. You can view this document on the draft river basin management plan webpage.

3.1.4 Consultation on the Flood risk management plans (FRMPs)

The Environment Agency consulted on draft Flood risk management plans (FRMPs) between 22 October 2021 and 21 January 2022. The Environment Agency worked in partnership with Lead Local Flood Authorities to develop the draft FRMPs covering 10 river basin districts in England. The Severn and the Dee FRMPs were produced jointly with Natural Resources Wales, and the Solway Tweed FRMP was produced jointly with the Scottish Environmental Protection Agency.

Each of the draft FRMPs were accompanied by an environmental report, documenting the Strategic Environmental Assessment.

The draft FRMPs outline how risk management authorities propose to work with communities to manage flood risk. These consultations asked for views on the proposals to manage flood risk as well as the format and content of the draft FRMPs. Three hundred and ninety three consultation responses were received.

Following these consultations, the Environment Agency published two response documents. The first ‘Consultation on the draft flood risk management plans - summary response document (2022)’ which includes a summary of the responses received, detailing the number of responses, who they were from and how they were submitted.

Responses from 255 stakeholders across England and Wales were received, and key findings included:

• the value of working in partnership to plan and deliver flood risk management solutions
• support for the implementation of nature-based solutions, so more biodiversity and environmental benefits can be delivered
• support for and a greater emphasis on a catchment-based approach
• need to align with other plans, for example, local nature recovery strategies

The results of the consultation can be viewed on the Draft Flood Risk Management Plans webpage.

3.1.5 Improving the classification of water stressed areas (February to March 2021)

The Environment Agency updated its assessment of areas on water stress in England in early 2021. The consultation on the determination ran for 4 weeks from 11 February to 11 March 2021 on the consultation platform Citizen Space and GOV.UK website. The consultation consisted of the following documents:

• Water stress consultation
• Appendix 2 - Longer term environmental water needs enhanced scenario
• Appendix 3 - Assessment of water stress methodology

Responses from 54 external partners were received. There was broad support for the approach and results contained in the consultation on water stressed areas. However, many suggested that all water companies should be allowed to roll out water meters. This would require legislation. The Government will make no changes to existing rules around when people can be charged for their water use through water meters. The consultation response document includes more details

The consultation results informed advice to the Secretary of State who agreed to designate seven additional water company areas as being in serious water stress. Water companies in seriously water stressed areas may implement wider water metering programmes, where it is shown within their water resources management plans that there is customer support and it is cost effective to do so. This means there will be an increase in the number of areas where this can happen.

The results have moved 3 water companies with chalk streams into the serious water stress category. All areas with principal chalk streams have now been determined to be in areas of serious water stress.

3.2 Department for Environment, Food and Rural Affairs (Defra)

3.2.1 River basin planning guidance

River basin planning guidance is from the Secretary of State for the Environment Agency for the planning period from 2021 to 2027. It sets out expectations for the main steps and principles of the river basin planning process and the documents the Environment Agency must produce. Final river basin planning guidance was published in September 2021.

The last update to the ministerial guidance was not required to be consulted on by Defra. This was on advice from Cabinet Office that the ministerial guidance is a technical update to the existing guidance therefore no consultation or write round was required. In addition, there has never been any legal requirement to consult.

Directions to the Environment Agency (and Natural Resources Wales) setting out the new and updated environmental standards being used in the third cycle of river basin management plans were first published in 2015 and have been updated. The standards reflect the latest scientific understanding of the standards needed for a healthy water environment; and peer reviewed work across Europe to harmonise standards for good status.

3.2.2 The UK Marine Strategy

The UK Marine Strategy sets out a comprehensive framework for assessing, monitoring and taking action across our seas to achieve the UK’s shared vision for clean, healthy, safe, productive and biologically diverse seas. The government is now on the second implementation cycle of the strategy, which shows the progress made towards the shared vision and what further action is necessary.

• Marine strategy part one: UK updated assessment and Good Environmental Assessment:
• Marine strategy part two: UK marine monitoring programmes
• Marine strategy part three: programme of measures

3.2 Natural England

3.3.1 Improvement Programme for England’s Natura 2000 Sites (IPENS)

Natural England has ongoing local and national engagement with stakeholders about the actions required to restore protected sites and bring them into favourable condition. This is an integral part of our partnership working with owner-occupiers, land managers and delivery partners seeking to achieve nature recovery in a place. Natural England’s Major Landowners Group provides a forum for national partners to discuss progress towards protected sites objectives at the site and strategic level. Actions are formally agreed by Natural England and the responsible delivery partner before being recorded in the threats and remedies database and made available through Designated Sites View. On European sites, sites of special scientific interest (SSSI) threats and remedies are complemented by the longer term measures identified through the IPENS programme which was developed during the second cycle of river basin management plans and finalised in 2015.

3.4 United Kingdom Water Framework Directive Technical Advisory Group (UKTAG) on WFD

In 2019, UKTAG undertook a consultation on Proposed Biological and Environmental Standards for River Basin Planning. This consultation gathered comments on:

• river flow standards
• invasive non-native species
• lake nitrogen standards
• emamectin benzoate environmental quality standard (EQS)

UKTAG issued a consultation response document in October 2019 confirming the UKTAG recommendations, including any changes or actions to be taken following the consultation. UKTAG also provided responses to the feedback received.

Following the 2019 consultation on standards UKTAG consulted again in January 2020 on proposals for a further new standard regarding lake fish assessment. The proposals were stated to be seen as sufficiently developed to support the third cycle of river basin management plans.

4. Involving others in the planning process

The Environment Agency has used the results of the consultations to make sure that the plans set out the best ways to protect and improve the water environment. The consultations help to build understanding about the value of integrated river basin management, gather input from others to help improve the plans, and help build support from others to drive action.

Throughout the river basin planning process, the Environment Agency discussed the proposals with people in many national, and local meetings, workshops, facilitated sessions and other events. Many of the engagement activities during the Challenges and Choices consultation and virtually all the engagement during the draft river basin management plan consultation took place online due to the coronavirus (COVID-19) outbreak.   A large amount of information was received through formal responses and from informal engagement. A diverse range of groups, organisations and individuals were engaged. These include water, energy and industrial companies, charities, local government, non-governmental organisations such as the Catchment Based Approach (CaBA) catchment partnerships, wildlife groups, academia, trade and professional bodies and the public.

A summary of engagement can be found in the Working Together to deliver river basin management response document, the Challenges and Choices response document, and the Updated RBMPs summary response document.

Working with others is an ongoing process. We are building collaborative, long-term relationships through continual dialogue with those who have an interest in, or responsibility for, river basin management planning with the aim of co-design and co-delivery where possible.

Many different groups work towards improving and protecting the water environment. These can either be based around specific issues or on a geographic area such as a catchment partnership.

4.1 Water Leaders Group

Representatives of major sectors and national organisations across the water system make up the Water Leaders Group. The group takes an active role in developing and implementing the river basin management plans at a national level by:

• contributing to the implementation of national measures
• enabling and encouraging action by others
• acting as the Environment Agency’s sector reference group, helping shape water system-wide initiatives in river basin management plans and wider strategic activities

The Water Leaders Group uses informal time-limited reference subgroups for example in developing cross-cutting measures. This has included subgroups on engagement; large scale restoration; payment for ecosystems services and innovative finance.

The terms of reference for the Water Leaders Group are reviewed and updated to reflect its increasingly system-wide remit. Membership spans some 40 organisations. New members are encouraged, to maximise representation of key players with a stake in the water environment.

4.2 Catchment partnerships and the catchment based

Following a pilot phase Defra published a formal Catchment Based Approach (CaBA) policy framework in May 2013. CaBA was launched in June and now over 100 catchment partnerships have been established across England  (including 5 cross border catchments with Scotland and Wales).

Catchment partnerships are groups of organisations with an interest in improving the environment in their local area and are led by a catchment host organisation. They inform the river basin management planning process and help implement measures by:

• providing local evidence
• targeting and coordinating action
• identifying and accessing funding for improvements in the catchment
• incorporating river basin management planning into the wider environmental management of the catchment

All partnerships have also produced a catchment management plan which can be accessed on the Catchment Based Approach webpages.

The partnerships work on a wide range of issues from catchment to coast, focusing on, but not restricted to, the water environment and river basin management. The Environment Agency has around 60 dedicated catchment coordinators across England to support the catchment partnerships.

A CaBA national support group is in place, with a remit to work collaboratively to support catchment partnerships and to champion CaBA. The group comprises national non-governmental organisations, Defra, the Environment Agency, Natural England, the Forestry Commission and Water UK.

The national support group has developed several tools to support local catchment groups with their work. This includes a vast range of, guidance, support tools, and an evidence base, available to all partnerships through a website.  Knowledge exchange is encouraged to share best practice on catchment management and the team continue to develop the expertise of partnerships across a range of issues such as data and evidence, catchment plans, monitoring and evaluation, and delivery through training options.

The national support group, through a working group, is striving to improve data and evidence sharing. For example, the Catchment Data Explorer and the Defra data services platform. Visual platforms and models ensure data can be interrogated by stakeholders such as farmers and business to inform decisions and effective integrated system-based approach planning.

More information on the Catchment Based Approach and the national support group can be found on the Catchment Based Approach webpages.

4.3 Regional Flood and Coastal Committees

Regional Flood and Coastal Committees (RFCCs) were established by the Environment Agency under the Flood and Water Management Act 2010. They promote partnership working to understand flood and coastal erosion risks and to ensure coherent plans for identifying, communicating and managing flood and coastal erosion risks across catchment and coastlines. Information about this can be found on the RFCC webpage.

RFCCs meet on a quarterly basis and bring together members appointed by Lead Local Flood Authorities and independent members. The Environment Agency engaged with RFCCs throughout the development of draft Flood risk management plans and draft River basin management plans. In addition, the RFCC Conservation Members group (a subgroup of the RFCCs) was the particular focus of engagement during the RBMP consultations. The group held facilitated virtual sessions to collate members’ responses for both the Challenges and Choices and dRBMP consultations.

4.4 Water resource management planning

Water companies produce a water resource management plan every 5 years to show how they will manage their water supplies and protect the environment over the next 25 years. This is a statutory requirement, and the water companies last consulted their customers, statutory consultees and interested parties in spring 2018.  Nearly all companies published final plans in 2019, after taking account of comments raised in the consultation. In the autumn and winter of 2022 to 2023, water companies will again consult on their next water resources management plans, which aim to be finalised in 2023 to 2024.

4.5 Customer challenge groups

The role of customer challenge groups is to ensure that water companies consult with their customers and that the results of these consultations are accounted for in company business plans. They also assess how successful water companies are in achieving outcomes for customers and the environment. Each water company has its own customer challenge group, which is made up of members of the public, customer representatives including the Consumer Council for Water, local authorities, organisations representing customers with specific needs (for example Age UK or Citizens Advice) and regulators such as Natural England and the Environment Agency. As part of the water company’s business planning process each customer challenge group discussed river basin planning and the outcomes their water companies should be seeking for the water environment and future environmental programmes. This included work required to meet WFD obligations.

5. Appendix – Water Leaders Group

5.1 Water Leaders Group members

River basin district liaison panels were disbanded after cycle 2 river basin management plans were published. The Water Leaders Group has a wider scope than the former National Liaison Panel and has representatives from across the water sector.

• Environment Agency (Chair)
• Angling Trust
• Associated British Ports
• Association of Drainage Authorities
• Business in the Community
• Canal and River Trust
• Catchment Based Approach
• Chartered Institute of Water and Environmental Management (CIWEM)
• Coal Authority
• Coastal Partnerships Network
• Committee for Climate Change
• Consumer Council for Water
• Rural industry
• Country Land and Business Association
• Defra
• Energy UK
• Forestry Commission
• Highways England
• International Navigation Association (PIANC)
• Local Government Association (LGA) Association of Directors of Environment, Economy, Planning and Transport (ADEPT)
• Marine Management Organisation
• Mineral Products Association
• National Farmers Union (NFU)
• National Trust
• Natural England
• Northumbria Water Limited
• Ofwat
• Regional Flood and Coastal Committees
• Rivers Trust
• Royal Yachting Association
• Royal Society for the Protection of Birds (RSPB)
• Salmon and Trout Conservation UK
• Severn Trent Water
• Shellfish Association of Great Britain
• United Utilities
• Water UK
• Waterwise
• Wildfowl & Wetland Trust (WWT)
• Wildlife Trusts