Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders - Interim Findings - Network Rail
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Understanding the impact of the Shoreline Management Plans
on the railway across Wales & Borders – Interim Findings
1
March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Contents
Foreword 4
Introduction 5
The Case for Change 7
Today’s immediate challenges:
Habitat in Wales 9
Shoreline Management Plans 12
Fairbourne 14
Conwy Valley Line 16
Old Colwyn Sea Wall 17
A Way Forward:
AssetCoast 18
Rail industry funding 19
Pilot research study area: Cardigan Bay and the Cambrian Coast Line 20
Summary and roadmap to final publication 23
Appendix A: Shoreline Management Plan process flowchart 24
Appendix B: Detailed SMP policies for Cardigan Bay 25
Appendix C: SMP policy maps for Wales for each epoch from Natural Resources
32
Wales
Appendix D: Glossary 33
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Foreword
The impact of climate change and more regular occurrence of In addition, many parts of these routes are located in areas
severe weather events, such as storms Ciara and Dennis in early which are classed as Natura 2000 sites, meaning any ‘plans or
2020, provides demonstrable evidence that much greater projects’ in these areas are subject to Habitat Regulations
planning activity will need to be undertaken to consider the which may suggest habitat compensation is required,
impact on our communities and on the other national particularly in areas affected by coastal squeeze.
infrastructure that serves these communities such as the
national road and rail networks. From a railway perspective, Coastal Groups and Local Authorities are starting to interpret
storms in recent years have had a devastating impact on the the Shoreline Management Plans, their wider policy and
railway network with a number of railway lines having had to regulatory context in Wales.
be closed, sometimes for many months. Key examples include Given the extent of coastal rail assets in Wales, it has been
at Dawlish, the Conwy Valley Line and along the Cambrian determined that further guidance is required to raise
Coast Line, all having had to be substantially rebuilt at awareness of these impacts on the railway and how it is 1)
locations which have seen extensive storm and/or flood funded for operations, maintenance and renewals, and 2) the
damage. This has had significant negative economic impacts longer-term strategic considerations that will require to be
to those parts of the country. These events also had a assessed to ensure alignment with regional adaptation of the
significant impact on the communities they serve, with Shoreline Management Plans and policy.
significant impacts on passengers and the movement of
freight. Increased levels of rain fall, and tidal surges has also This interim document sets out the initial research undertaken,
caused flooding which impacts the rail network significantly which has involved significant engagement with Welsh
and we can expect these phenomena to become more of the Government, Natural Resources Wales, Gwynedd County
norm as the world continues to get warmer and see levels Council (who are leading in their Shoreline Management
continue to rise. adaptation planning), climate change experts, and rail industry
asset management teams in Wales & Borders route. This seeks
Shoreline management planning is becoming ever more to highlight the challenges the rail network and industry will
important. Looking to the future, there will undoubtably be have to face to meet the wider societal challenges of climate
difficult and in some cases particularly stark choices to be made change and rising sea levels. This interim assessment identifies
as to how our communities and supporting infrastructure will some of the emerging gaps and their impacts arising out of the
need to adapt to these environmental challenges. The Shoreline Management Plans and the HRAs and options for
Shoreline Management Plans nationally seeks to address these working more collaboratively with wider stakeholders to meet
considerations by setting out a framework and timescale by these challenges. It also seeks to set out a road map for further
when the policy will be enacted to meet the challenges of work to be undertaken during 2020/21.This will look to assess
climate change and rising sea levels. in greater detail the impact of the Shoreline Management
The Network Rail Wales and Borders route has the most Plans on the Wales & Borders network to provide a longer-term
extensive amount of coastal railway in GB, with a significant line of sight to inform rail funders and policy makers of when
part of the rail network located in coastal and river valley future further significant strategic planning and decisions will
locations. Often the railway in itself provides either a primary be required.
or lesser line of defence against coastal erosion simply due to This document has been produced by the Wales Strategic
where it was constructed. Planning team who are part of the System Operator function
of Network Rail and if you would like any further information,
please contact: Sarah.Reardon@networkrail.co.uk.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Introduction
Current situation Study Purpose, Scope and Methodology
The aim of this study is to outline the key risks facing the This interim study has been produced, following discussions
railway and highlighting potential options for the railway over between Network Rail and Stakeholders, initially as a piece of
the next three epochs, up to 2105. This document will be used research, to seek to provide an initial assessment of what these
to influence strategic planning within the railway and wider complex issues mean for sustaining the national rail network in
transport network, which is laid out in the roadmap later in the coastal areas, in line with prescribed policy relating to rising sea
document. This study is influenced by climate change and levels and climate change.
extreme weather which is an ever-prominent issue making
headlines nationally and globally. At the time of writing, the The document is structured as follows:
UK, including parts of Wales, is recovering from the damage The Case for Change – outlining why this document has been
caused by storms Ciara and Dennis. Not only have these storms produced and explains the global impact of climate change
caused widespread flooding to homes and businesses, the and how this explicitly impacts on transport systems and
railway has also suffered with some lines closed for several networks.
days, and longer across the whole of Wales. There is a need to
start considering the longer-term impact of climate change The next three areas highlight the current challenges that
and more frequent extreme weather events in our strategic today’s railway faces:
planning activity. Habitat in Wales – reviewing the habitat in Wales, why this is
Across GB, Wales has the largest amount of coastal railway and a unique challenge, and impacts arising from the need for
the continued evidence of sea level rises means a longer-term compliance with Habitat Regulation Assessments;
view is required on what the predicted future changes to the Shoreline Management Plans (SMPs) – addressing the
Welsh coastline will mean for our railway assets, passengers outcomes of the individual SMPs which have been produced
and freight users. These coastal lines generally serve more rural across GB to address future changes in coastal processes such
communities, providing key social connectivity for the as sea level rise. This includes three specific geographical case
passengers who use them. Due to their coastal nature these studies which illustrate examples of where extreme weather,
lines also have vital roles for the local and regional tourism habitat regulations and SMPs are, and will in the future, having
industry. an impact on the railway. These are at: Fairbourne, Conwy
Additionally, Network Rail needs to be able to continue Valley Line and Old Colwyn Sea Wall;
maintaining, renewing and operating these coastal assets AssetCoast – detailing one of the ways Network Rail is looking
despite the specific environmental challenges which assets to address these issues, including one of the tools currently
face based on their localised shoreline planning and many
used to monitor coastal railway assets;
locations being in conservation areas. In the future Network
Rail needs to understand what funding will be required for How the railway is currently funded – explaining how
future asset requirements. This can only be done if shoreline Network Rail is funded and governed in terms of operating,
planning is done collaboratively, working with local authorities maintain, renewal and enhancing the rail network;
and other infrastructure and land owners.
Pilot Research area: Cardigan Bay – detailing the immediate
issues facing the railway and communities on the Cambrian
Coast Line;
Summary and roadmap to final publication – setting out how
this document will continue to evolve and develop to a final
publication in Spring 2021.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Introduction cont.
Work to date has involved invaluable collaboration with a This interim document therefore seeks to outline a roadmap to
range of industry and wider stakeholders including Natural the further work needed in this regard. This work builds on early
Resources Wales and Local Authorities. engagement and activity undertaken with a number of
organisations, particularly Gwynedd County Council who is
This interim study focuses on the more immediate forecast actively engaging with Network Rail with regard to the impact
changes in coastal processes in the Cardigan Bay area and the of Climate Change on the Cambrian Coast Line.
Cambrian Coast railway line. Gwynedd County Council have
been a key stakeholder as they have carried out more detailed Working with Welsh Government and Natural Resources Wales
action planning due to the immediacy of these changes. and other Coastal Groups we will look to share our initial work
and develop further policy and strategy collaboratively going
Further work will continue following this interim study, forward.
extending scope to the other coastal railway lines in Wales and
Borders, providing an indication of when further strategic Wellbeing of Future Generations Act
planning has to be done in what areas. The summary chapter
The Wellbeing of Future Generations Act 2015 is a legislation
details the roadmap this work intends to follow to final
which applies to all public bodies in Wales and Welsh
publication.
Government to ensure long term sustainability is key to all their
Network Rail has a Network Licence obligation to lead the thinking. The legislation is not applicable to Network Rail
planning of the future of the rail network. This study has been because the Act only applies to the 44 public bodies in Wales
produced under this framework as a continuous programme of and Welsh Government. However, we felt due to the nature of
strategic planning activity in Wales and Borders. this Strategic Planning guidance, it is entirely relevant we
include how this study complies with the Act, particularly as the
Collaboration local authorities in Wales who lead on their own Shoreline
This document highlights some of the significant challenges Management Plans, must adhere to the Act.
faced by regional and local communities and the national rail The purpose of the Act is to improve the social, economic,
network plays a prominent role in providing access to such environmental and cultural well-being of Wales. It incorporates
locations. seven well-being goals:
With climate change and other environmental factors and
regulations having an impact on Network Rail’s and other • A globally responsible Wales
stakeholders’ infrastructure, Network Rail recognises the • A prosperous Wales
importance of developing policy and strategies for dealing with • A resilient Wales
the impacts of climate change, in close collaboration with the • A healthier Wales
communities that the railway serves. • A more equal Wales
This recognises the need for a greater focus on how we consider • A Wales of cohesive communities
railway and coastal assets holistically from a strategic, • A Wales of vibrant culture and thriving Welsh
maintenance and renewal perspective, aligned with policies language
outlined in the SMPs. Network Rail believes that this document supports the
Wellbeing of Future Generations Act 2015 to help ensure long-
term sustainability goals.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
The Case for Change
Climate Change – An issue for Network Rail The Necessary Steps
“Over 60% of the Welsh population live and
work on the coast. Our coastlines and Climate change is already having a large effect on the National It was previously suggested that nations already have the
Rail Network and infrastructure. This is evident from incidents knowledge and resources to confront climate change. This will
riverbanks add great value to our well-being such as extreme weather events that have affected the Conwy remain a challenge and further political impetus will be
with their natural beauty, biodiversity and Valley Line particularly in 2019 and 2020, the railway line at required to develop the strategy to limit the use of carbon,
Dawlish in 2014 and where there have been increased created from fossil fuels, such as coal. However, there has been
recreation opportunities. Flooding of homes, an increase in awareness of the impacts of climate change and
occurrences of temporary speed restrictions due to the impact
businesses and infrastructure is an of heat on railway infrastructure. Concerningly, trends predict the devastation that it is causing. Heightened awareness is
unwelcome risk to many people living in that devastating weather events like heavy rain fall, flooding therefore encouraging governments to take action, which is
and heatwaves are set to become more extreme and frequent evident through the Paris Agreement and the Welsh and UK
Wales and can have severe detrimental in the future. These extreme weather events are coinciding Governments declaring a climate emergency. The UK
impacts on quality of life including mental with a rise in sea levels. Extreme weather events and rising sea Government has also announced the removal of diesel vehicles,
levels are having a negative effect on the railway network, including trains by 2040. Governmental action is key to
health” encourage businesses and the population to make changes
destroying infrastructure and delaying passengers. Therefore,
National Infrastructure Commission for Wales Annual this is proving costly to the railway industry, with weather that can help curb climate change.
Report related delay minutes costing between £200-300m each year, Therefore, in response to the climate emergency and the diesel
this is without the cost of repairing infrastructure. However, ban, the rail industry is taking action to become a zero-carbon
disruption to the rail network also has wider socio-economic industry. Nationally, Network Rail is demonstrating leadership
impacts, which justifies continued investment to increase within the rail industry to take action and are undertaking
weather resilience and to ensure that timely decisions are initiatives such as the traction decarbonisation network
made about the future of the railway’s infrastructure, strategy to help towards the goal of zero-carbon. Network Rail
especially when considering renewals and enhancements of is also currently working on a national vision and strategy for
infrastructure. the next 30 years. It is important that the railway industry is
All environmental threats are a challenge to the railway, but strategically thinking about the future because the solutions
one of the key threats is rising sea levels, which are predicted needed may take many years to implement to ensure the most
to continue rising to unprecedented levels. Rising sea levels appropriate and sustainable transport modes are in place to
subsequently increases the risk of flooding which has increased support communities and economies. However, another way in
by approximately 230% in the past 20 years [1]. Rising sea which the rail industry is reducing carbon emissions is through
levels and subsequent flooding is costing the UK Government its role of providing a lower-carbon transport mode compared
£540m every year; making flooding a top priority for UK to other more transport modes which emit increased emissions.
Government [2]. Rising sea levels and other extreme weather Specifically, within the Wales and Borders Route, there are
events are worsening due to climate change, which is initiatives being undertaken to improve their resilience against
subsequently caused by an increase in greenhouse gases weather and climate change events, and in most ways this
(GHGs). According to the World Meteorological Organisation, route is ahead of the rest of the country. The Wales and Borders
GHGs hit a record high in 2019 with no sign of slowing down, Route is improving resilience through route-specific objectives
let alone a decline which is needed to reverse the effects of and understanding risks by assessing their weather-related
climate change [3]. However, it is estimated that approximately vulnerabilities.
70% of sea level rises today are attributed to human activity
[1]. Therefore Governments, industries and individuals all need
to work together to curb the devastating impacts of climate
change.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
The Case for Change
cont.
A National Picture A greener railway
There are several activities ongoing from a national Following the recent introduction of greener bi-mode Intercity
perspective relating to how the industry is reacting to Express Trains (capable of operating under electric or diesel
environmental issues and the challenge of climate change, traction) by Great Western Railway which operate between
some of which will be outlined in this section. London Paddington and south Wales.
Network Rail published a national Weather Resilience and Transport for Wales has also committed to delivering a greener
Climate Change Adaptation (WRCCA) Strategy in 2017 which fleet of new trains as part of their rail services contract, with
sets out the aim to provide a future rail network that is safe and plans including the introduction of bi-mode and tri-mode
more resilient to the effects of weather, now and in the future. (capable of operating under electric, diesel or battery traction)
Planning is based on UK climate projections to 2080. trains on the busy core valley lines into Cardiff. Additionally, as
part of the West Coast franchise, Avanti has committed to
The strategy incorporates the following strategic outcomes: introducing bi-mode trains operating between London Euston
• Infrastructure able to withstand the impact of future and north Wales.
weather conditions Network Rail is also responding to the UK legal target of
• Rapid recovery from the impacts of adverse and achieving net zero carbon emissions by 2050, by commencing
extreme weather events a Traction Decarbonisation Network Study for the Department
for Transport (DfT). This will consider scenarios based on the
• Improved performance and safety during adverse and technologies which could be deployed on the unelectrified
extreme weather conditions network.
• Financial savings through reduced compensation The Rail Delivery Group (RDG) is similarly supporting the
payments and repair costs industry in promoting modal shift to rail and the vision of
achieving a carbon free railway.
• Enhanced reputation and trust in the railway’s ability to
manage weather events. For further information:
Following on from the publication of the national WRCCA [1] = SeaLevelRise.org https://sealevelrise.org/
Strategy, Wales and Borders has also published a local plan for [2] = Government Office for Science – Future of the Sea:
CP6 up to 2024. There are also plans to build upon these with Current and Future Impacts of Sea Level Rise on the UK
an update to the WRCCA strategy and a national Rail Industry https://assets.publishing.service.gov.uk/government/uploads/s
Resilience Review to follow in 2020-21. ystem/uploads/attachment_data/file/663885/Future_of_the
Nationally Network Rail is also building a high-level _sea_-_sea_level_rise.pdf
sustainability strategy which will look ahead 30 years [3] = World Meteorological Organisation
considering the response to challenges in all areas of https://public.wmo.int/en/media/press-release/greenhouse-
sustainable development, and supporting routes and regions to gas-levels-atmosphere-reach-new-record
develop their own aligned sustainability plans and
incorporating potential political, technological, social,
economic and legal drivers of change.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Habitat in Wales
An introduction to biodiversity in Wales Habitat Regulations Assessment Process
The varied geology and temperate climate in Wales supports a Although habitat regulations have been in place since 1994,
rich variety of flora and fauna including some species unique 2017 saw the introduction of the Conservation of Habitats and
to Britain and Wales. Because of this rich variety, across Wales Species Regulations. These regulations ensure any plan or
there are 20 Special Protection Areas for birds and 92 Special project which is likely to have a significant effect on a Natura
Areas of Conservation for other rare species and threatened 2000 site must be subject to an appropriate assessment, which
natural habitats. Collectively these, along with similar sites led to the introduction of Habitat Regulations Assessments
across Europe, are known as Natura 2000 sites, and they form (HRA).
a conservation network of international importance for wildlife
HRAs consider several potential impacts of the plan or project
and follow legislation designed to protect the most seriously
such as:
threatened habitats and species across Europe.
The sites in Wales are shown in Figure 2 and cover more than • Loss of habitat
700,000 hectares, covering 7% of Welsh land area, and 36% • Site disturbance
of terrestrial waters.
• Water change and quality
There is a commitment for Network Rail Wales Route included
in the Strategic Business Plan (SBP) for the period up to 2024, There are several steps to a HRA which any proposer needs to
to ‘minimise our impact on the environment’ and there are work through before progressing. A simplified overview of this
several activities and principles in place to help support this process is shown in Figure 1.
objective through vegetation management, innovation and
The final step in the HRA process, if a project progresses that
habitat protection. Some of these activities are included in the
far, is to identify whether any compensatory measures
summary biodiversity report produced by Network Rail (NR)
required. This is relevant where it is deemed the plan or project
which can be found here:
will have an adverse effect on the site, no alternatives solutions
https://www.networkrailmediacentre.co.uk/resources/wales- exist, and the project or plan needs to proceed due to
route-section-6-summary-report-p2 ‘Imperative Reasons of Overriding Public Interest’ (IROPI).
Natural Resources Wales (NRW), who are accountable to Welsh
Ministers, are one of the consultees for HRAs in Wales. NRW is
the largest Welsh Government sponsored body whose purpose
is to ensure that the environment and natural resources of
Figure 1: Simplified view of the HRA process Wales are sustainably maintained, enhanced and used. They
act as regulator for designated sites, land manager for 7% of
the land area in Wales and an environmental operator
managing over 500km of flood defences.
Network Rail hold a Memorandum of Understanding with NRW
which sets out an understanding of common objectives
between the two parties, responsibilities and general principles.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Habitat in Wales cont.
National Habitat Creation Programme What this means to Network Rail
The Shoreline Management Plans (SMPs), which are described The Network Rail Wales and Borders route has the most
in greater detail later in this document, were also subject to the extensive amount of coastal railway in GB, and most of the
HRA process. This concluded that adverse effects could not be coastal railway also features in areas which are classed as
ruled out due to the anticipated effects of coastal squeeze Natura 2000 sites, meaning any ‘plans or projects’ in these
(coastal habitat such as salt marsh being squeezed between an areas are subject to HRAs.
artificial or natural sea defence and rising sea levels),
This has resulted in a number of considerations both within NR
depending on the policy defined in that area.
and with NRW about firstly which projects fall into this process,
This resulted in the Welsh Government establishing the if it is deemed that compensation is required, whether NR has
National Habitat Creation Programme (NHCP) to help provide any compensatory land available, whether this land is
a strategic response to those coastal squeeze issues related to sufficient or suitable, and other issues such as ownership and
Flood and Coastal Erosion Risk Management (FCERM) schemes maintenance of this land. The alternative option if the
and is managed by NRW. The purpose of the NHCP is to protect available compensatory land is neither sufficient nor
the coast of Wales while managing the effects of our changing appropriate for use, then monetary compensation can be
shoreline on designated coastal habitats. It aims to provide offered in order to purchase suitable land.
like-for-like habitat compensation through managing existing
This is not possible at present as NR’s funding settlement for
land in such a way that new habitats, such as salt marsh, can
CP6 (the period up until 2024) from the Department for
be created, which would then deliver habitat offset
Transport (DfT) has been set and funding is only included for
requirements detailed in the SMPs.
operation, maintenance and renewal of the railway. Any other
As part of this programme NRW have been identifying land funding requirements are subject to separate governance
which appears most suitable for this purpose and contacting processes.
landowners including NR for discussions.
It is also worth recognising that the funding issue is somewhat
unique in Wales, due to the process by which NRW treats and
interprets compensation requirements, compared to the
interpretation and treatment by the English bodies such as the
Environment Agency (EA), Natural England and the Marine
Management Organisation.
This applies to projects in the English parts of the Wales and
Figure 2: Location of Natura 2000 sites in Wales, from NRW Borders route, which are also in Natura 2000 sites, such as
areas of the Severn Estuary.
The differences between interpretation in England and Wales
will be explored in more detail in the final publication of this
document.
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March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Habitat in Wales:
Ferryside
Ferryside
As mentioned above, works at Ferryside were planned for 2017,
A key example of where Network Rail renewal plans are being however due to these issues, the works have still not taken
impacted is at Ferryside. This case study shows where the place and is not currently scheduled until further examinations
interrelated issues of coastal squeeze, requirements driven by of the asset are undertaken in 2021. The risk of pushing back
habitat regulations, other permissions required (such as marine schemes in this way means there is higher likelihood that assets
licences) and coordination of multiple organisations, has been could fail, therefore increasing risks to the operational railway
a challenge. and its users, and becoming more costly to repair. Additionally,
the longer assets are left, the more they deteriorate, which
Ferryside is located on the South Wales Mainline between could increase the scope of the original works planned.
Llanelli and Carmarthen and is within an area where the SMP
stipulates to hold the line for all three epochs; 2025, 2055, Due to the experience at Ferryside, Network Rail asset
2105. managers have decided to push these works into Control Period
6 (CP6 – 2019-2024), but this has meant that there must be a
Within this area there is a sea wall which needs to be repointed substitution of other works that were already planned in CP6.
and new rock armour is required to protect railway assets. Asset managers have also made the decision to rescheduled
These minor renewal works as of March 2020 still have not coastal works that require HRA’s in CP6 towards the end of the
taken place, even though they were scheduled for 2017, in a control period, as at present there is no clear solution for
previous control period. This is due to the location being in a addressing habitat compensation. However, this adds further
Special Area of Conservation and Protection, and the scheme risk that CP6 works may need to be pushed into Control Period
requiring an HRA, as detailed above. In this case the HRA which 7 (CP7 – 2024-2029).
was completed by Natural Resources Wales (NRW) deemed
that this project would require habitat compensation of 1.8 For further information
hectares of suitable land such as salt marsh, or a monetary
UK Government guidance on HRAs:
equivalent. Monetary values differ depending on location, but
https://www.gov.uk/guidance/appropriate-assessment
in this example, the monetary compensation requested for the
works planned at Ferryside is approximately £100,000, which
Welsh Assembly research on HRAs:
would effectively mean the cost of the maintenance work
https://www.assembly.wales/Research%20Documents/17-
would be approximately twice that contained in our business
038/17-038-Web-English.pdf
plan.
Briefing note from NRW on National Habitat Creation
Network Rail has very limited suitable or surplus land which
Programme (NHCP):
would meet the requirements of NRW to offer as
compensation. Additionally, any land transfers or disposal are http://severnestuarycoastalgroup.org.uk/files/2016/03/NRW-
subject to regulatory control and ORR approval. There is also NHCP-Background-Brief.pdf
no suitable funding allocation to provide monetary
compensation. This has therefore resulted in the determination
of the Marine Licence, required for the works to progress, being
effectively paused until the compensation question has been
addressed.
10March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Shoreline
Management Plans
Shoreline Management Plans
A flow chart summarising how the SMPs are broken down is
Shoreline Management Plans (SMPs) have been produced for shown in Appendix A.
“A shoreline management plan is a large- the coastlines of England, Scotland and Wales; developed by
In view of the timescales set in various epochs, it is key to
the relevant Coastal Groups, with members mainly from the
scale assessment of the risks associated with local authorities and the Environment Agency and/or Natural
recognise that in the longer-term epochs there is likely to be a
coastal processes and helps to reduce these requirement for significant decisions affecting choices around
Resources Wales (NRW) following guidance from the
the most appropriate and sustainable choices at those
risks to people and the developed historic Department for Environment, Food and Rural Affairs (Defra).
locations.
All of the SMPs across England and Wales are detailed on the
and natural environment” following page in Figure 3. It is important to note that where a SMP policy has
Shoreline management plan guidance Volume 1, Defra, 2006 determined a policy which requires intervention, such as
The SMPs identify the most sustainable approach to managing
investment in existing or enhanced defences when ‘hold the
the flood and coastal erosion risks to the coastline and support
line’ has been determined, or movement of the defences in a
efforts to prepare for future sea level rises and increased
‘managed realignment’ situation, this does not mean that
likelihood of flooding caused by severe weather events over a
SMP Policy Definition funding has been secured for this investment.
100-year period. They are non-statutory policy documents for
No active A decision not to invest in providing or
coastal defence management planning and are designed to Future Asset Management
intervention maintaining coastal defences
take account of other existing planning initiatives and
(NAI) It is key that Network Rail are involved in coordinating and
legislative requirements and are intended to inform wider
Hold the line Maintain or upgrade the standard of strategic planning. aligning both strategic planning and asset management
(HTL) protection offered by existing against future changes in rising sea levels and the impact of
defences. SMPs are not designed to set policy for anything other than coastal changes on the railway. Especially because Network
Managed Allowing the shoreline to move coastal defence management, but they are being utilised as Rail is not a Coastal Protection Authority but sometimes act
realignment backwards or forwards, to realign the the guidance which local authorities and other stakeholders are as the first line of defence, even though the rail infrastructure
(MR) natural coastline configuration. using for their future plans for communities, infrastructure and was not built for this purpose. However, this leaves Network
Advance the line Building new defences on the seaward land on the coast. A Coastal Group has been set up for each Rail facing some difficult decisions as to the level of
(A) side of the original defences. SMP which is led by the leading local authority for that SMP, maintenance that needs to be taken to railway assets where
and includes all key partners, infrastructure and land owners additional resilience might be required because the asset is
Table 1: SMP Policy definitions. including NRW and Network Rail. effectively a primary or lesser line of defence.
Initial SMPs (SMP1) were produced in the early 2000’s, then Other more strategic challenges will also be faced in the
more recently a refresh was carried out (SMP2) which enabled future where the shoreline management policy suggests a
the SMPs to take on lessons learnt and more detailed strategic relocation of rail assets and/or other transport modes to serve
SMP epoch Periods thinking and coastline monitoring. the communities impacted.
Epoch 1 Up to 2025 Each SMP is divided into a number of geographical ‘policy
Epoch 2 2026 – 2055 units’ and forecast how these stretches of coastline are likely to
Epoch 3 2056 – 2105 be affected over three epochs – short term (0-20 years),
medium term (20-50 years) and long term (50-100 years). Each
Table 2: SMP epochs. policy unit was then assigned one of four policies to be
implemented during each epoch.
Tables 1 and 2 on the left illustrate both the SMP policy
definitions and epochs in more detail.
11March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Shoreline
Management
Plans cont.
For further information
The SMPs relevant to the coastal railway
assets of Wales & Borders, including links to
each are:
• SMP 19 Anchor Head to Lavernock
Point (Severn Estuary). Lead:
Monmouthshire Council.
• SMP 20 Lavernock Point to St
Ann’s Head (South Wales). Lead:
Carmarthenshire Council.
• SMP 21 St Ann’s Head to Great
Ormes Head (West of Wales).
Lead: Pembrokeshire Council.
• SMP 22 Great Ormes Head to
Scotland (North West England
and North Wales). Lead: Blackpool
Borough Council.
Figure 3: Shoreline Management Plan locations and lead local authorities, from the Environment Agency
(Please note this map pre-dates NRW being established)
12March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Fairbourne
Fairbourne
History
Fairbourne is a village located on the coastline of Cardigan Bay Figure 4 shows the one in 10-year flood level according to
in south west Gwynedd. It sits on an area of low-lying salt predictions, rising as high as 4.7m above sea level in 2100, with
marsh to the south of the estuary of the river Mawddach with regular high tide predicted to be 3.5m above sea level.
the Cardigan Bay coastline to the west and Snowdonia
It was therefore deemed when the West of Wales Shoreline
mountains to the east.
Management Plan 2 was published in 2014, alongside
The village developed following the arrival of the Cambrian predictions and evidence from local monitoring, that in the
Coast railway line in 1855 and a sea wall was built at the time. future it will not be possible to maintain an acceptable
Today the village is protected from the sea by a natural shingle standard of protection, nor would it be sustainable or safe for
bank which was reinforced with a crest wall in 1977 and residents to remain in Fairbourne from 2054. This means that
reinstated in 2019 at a cost of £1.2m following storm damage flooding caused by climate change would impact the village
5 years earlier. The village is protected from the estuary by a sooner than other coastal communities across GB.
tidal embankment that was last strengthened in 2013.
This has resulted in the local authority coming together with
The ground levels in Fairbourne are only around 2.5m above key public bodies and partners, including Network Rail, to
Figure 4: Future predicted sea level rise, taken sea level and the average existing spring high tide level produce a framework on addressing the complex issues the
from ‘Fairbourne: A Framework for the future’ experienced several times in a year is 2.61m, meaning the community now faces in the future. This has involved the
village is highly dependent on the coastal and river flood production of a Coastal Adaptation Masterplan which provides
defences. However, predictions that sea levels will rise by a roadmap for the changes needed, highlighting the steps and
approx. 1m during spring tides and extreme weather events decisions that will be required in the period to 2054.
means it will become harder and costlier to protect the village,
with increased risk to life should the defences fail.
Figure 6: Images of Fairbourne taken during low tide and during Storm Ciara – February 2020
Figure 5: A selection of recent headlines relating to Fairbourne
13March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Fairbourne cont.
What does this mean for the railway? This means that due to the nature of railway scheme
Epoch Epoch Epoch Comments development, planning for options will need to have ideally
1- 2- 3- The Cambrian Coast line has a station at Fairbourne which is commenced by the start of Control Period 10 (CP10: 2039-43).
2025 2055 2105 situated on an embankment behind the village. The station has Before this it is important to understand these longer-term
just over 40,000 passenger journeys per year and is the seventh intentions in planning asset renewals in the area as renewals
Ro Wen coast HTL MR NAI This would involve busiest on the Cambrian Coast Line between Dovey Junction can typically have a lifespan of at least 40 years, reiterating the
relocation of and Pwllheli. There is no question that a large proportion of importance of aligning plans.
property owners and these passenger journeys are made by tourists staying in or
Ro Wen Spit MR MR NAI businesses from near the village and day visitors, and the consideration would The importance of these considerations has been recognised
Fairbourne. need to be made if the village was relocated whether a station by Gwynedd County Council in their SMP planning by having a
Fairbourne HTL MR NAI would still be required if the community and market it serves is specific action to initiate a Cambrian Coast transport review
Embankment with Network Rail and Welsh Government, recognising that
no longer there. Other considerations would need to include
whether transport provision would be required in the relocated long term planning of the coastal line will be key in ensuring a
Friog HTL HTL HTL This refers to the settlement, and also what form of defence the railway would collaborative aligned approach to planning for the future.
railway line behind
take once the ‘No Active Intervention’ approach is taken for
Fairbourne. For further information
the village.
Fairbourne Moving Forward Site:
Morfa HTL HTL HTL This would secure a The policy in Table 3 which refers to the railway line is that for
Mawddach cut off defence to Friog where the policies across the three epochs remain ‘Hold http://fairbourne.info/
the back of the area the Line’, this is reflected in the SMP policy development by
to the rear of Fegla Gwynedd, recognising the important role of the railway but Fairbourne: A Framework for the Future public consultation:
Islands.
also the positioning of the railway as a potential future defence http://fairbourne.info/wp-
if the existing sea defences fail once the Managed content/uploads/2019/10/Fairbourne-
Fegla HTL MR MR Local consideration Realignment approach and relocation commences in epoch 2
would be given to AFrameworkfortheFuture.pdf
(2055). It is worth noting this could result in the railway
defence of
properties on the becoming potentially a primary or lesser coastal defence, a
Fegla Islands and to purpose it does not currently fulfil in that location.
Arthog.
It is also important to note that where any intervention is
required to the railway infrastructure in and around Fairbourne,
Key: HTL – Hold the line; A – Advance the line; NAI – No funding above and beyond planned operations, maintenance
active intervention; MR – Managed realignment and renewals has not been secured and will need to be sought
depending on what the recommended outcome will be. This
Table 3: SMP2 policy recommendations from Friog Cliffs to would include the cost of relocating the station or enhancing
Arthog. Taken from the West of Wales SMP. defences, if appropriate.
14March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Conwy Valley Line
The Conwy Valley Line is a relevant example of where the During the reinstatement in 2019, engineers campaigned to
Wales and Borders Route has experienced the effects of make the new infrastructure more resilient. The additional
extreme whether events and rising sea levels. culverts and embankments were built to modern standards to
be resilient throughout their entire design life of approximately
The Conwy Valley Line runs between Llandudno Junction and 30 years, to cope with current and future weather events.
Blaenau Ffestiniog, which is not located on the coast line, yet is Engineers requested funding for further resilience work to other
still feeling the effects of extreme weather and rising sea levels. parts of the line, but funding was not available at the time.
The Conwy Valley Line is prone to flooding and has seen flood
events in 2004, 2005, 2008, 2015, 2017, 2019 and 2020. However, the Conwy Valley Line was impacted again by Storms
Previous information and predictions indicate that frequency Ciara and Dennis in February 2020. While the impact of these
and extent of flooding will worsen with the impact of climate storms was not as significant as Storm Gareth in 2019, they did
change. nevertheless cause significant damage to parts of the line
which were not made more resilient in 2019 following Storm
The Conwy Valley Line has a history of washouts, including in Gareth. This resulted in the line having to close for remedial
the 1980s which led to permanent speed restrictions that were works with subsequent impact on passengers and the
still in place until recently when some speeds were reinstated communities the railway serves. Network Rail are working on a
Figure 7: Washout in 2019 after Storm Gareth during the 2019 repairs following storm Gareth as detailed design, based on the successful works of 2019 which can be
below. However, in more recent times, the Conwy Valley Line implemented on parts of the line which were impacted by
has experienced more washouts, and in shorter successions. At Storms Ciara and Dennis; funding is currently being sought for
the beginning of 2017, the Conwy Valley Line was washed out this activity.
following Storm Doris. Extensive works were required to
reinstate and repair the line which meant that the line was
closed to passengers for a couple of months. These works cost
approximately £6m, which reinstated the line to its original
state, with no investment for resilience.
Two years later in 2019, the Conwy Valley Line experienced
extreme weather again following Storm Gareth. This storm
created high tides and a low-pressure system, which led to a
record amount of rainfall. The damage was extensive with six
miles of track, two stations and eight level crossings requiring
significant repair; this meant that the line was closed again, for
four months. These significant reactive works cost
approximately £12m, double the cost of the repairs undertaken
in 2017.
An important aspect of the 2019 repairs to the Conwy Valley
Line was sustainability and the use of local suppliers and
materials. 9,500 tonnes of rock armour and 3,000 tonnes of
ballast were used from nearby quarries. Also, all vegetation and
Figure 8: Reinstatement works in 2019 after Storm Gareth
tree stumps were donated to a local recycling centre to create
biomass, 91% of washout materials were recycled and
approximately 5,000 tonnes of topsoil were reused on these
sites. This is an innovative solution to reduce the railways
contribution to further climate change, which is a large
contributor in the increase of extreme weather events. 15March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Old Colwyn Sea Wall
The Old Colwyn sea wall is a coastal defence, most of which is CCBC contacted NR again towards the end of 2019, following
owned and maintained by Conwy County Borough Council information that the sea wall is deteriorating and becoming
(CCBC) and part by Network Rail. CCBC are concerned with the more vulnerable due to increased frequency and severity of
condition of this structure and categorised it as high risk, due coastal storms. CCBC have been carrying out reactive
to the sea wall protecting critical infrastructure for the maintenance on their part of the sea wall but have noted that
sustainability of North Wales. Increasing severity and collaboration is needed to protect the structure. Network Rail
frequency of storm events, combined with the lowering of will continue to look at ways in which we can work with the local
beach levels, has left the wall susceptible to scour, damage and authority to undertake renewal work that will also include
leading to washout of materials and voiding. However, assessment of how we can improve in the structure.
Network Rail is not concerned about the condition of the
structure, which is monitored regularly, and maintenance and
reactive work is carried out as required; like in March 2019.
CCBC applied for funding from Welsh Government to progress
with a scheme for a rock revetment structure to protect the
frontage during storm events; however, grant funding has not
been able to be secured. The scheme was not granted funding
as it did not meet the required criteria of grant funding, the
main driver being the number of properties it protects from
flooding and coastal erosion. Welsh Government indicated that
if other stakeholders, like Network Rail, are willing to contribute,
Welsh Government will fund up to 75% of grant funding
through their Coastal Risk Management Programme.
However, Network Rail only has responsibility for the
maintenance and inspection for part of the frontage. Work was
undertaken by Network Rail in 2014 to the cost of £800,000 to
replenish rock armour along with other works, including works
to the public steps. Subsequent inspection in 2016 found that
the asset was still in a fair condition with little deterioration
from the inspection and works undertaken in 2014. There was
Figure 9: Damage to Old Colwyn promenade
only a slight worsening in isolated areas, which is expected to
be addressed within CP6 with £1.2m of investment, and in
total, £21m being investment on all coastal assets. Inspectors
also indicate that it will take between 17 and 25 years before
the structure deteriorates to a poor condition. However,
because Network Rail is only funded to operate, maintain and
renew its own infrastructure works, which are identified at the
start of each control period, it is difficult for NR to allocate
already committed funds to external third-party schemes. NR
informed CCBC of this in 2018.
16March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
AssetCoast
A key example of where the Wales and Borders Route is
improving their response to extreme weather and impacts on
assets is through the use of the AssetCoast, an award-winning
asset management tool which has been produced by Network
Rail Wales and Borders Route and JBA Consulting to manage
coastal assets. It was created due to the route having the
largest number of coastal assets in Network Rail, covering a
length of 34 miles and following the acknowledgement that NR
needed to improve their knowledge and management of
coastal assets.
AssetCoast assesses the physical condition of the assets,
seeking to provide a long-term plan for coastal assets, helping
monitor their condition, build risk profiles, plan minor and
major intervention works, record works that have been carried
out and update inspection regimes. This allows asset managers
to flag and prioritise assets rather than using the usual cyclical
inspections, which has reduced the number of annual detailed
inspections and improves worker safety. Information can be
viewed by Network Rail and external structural engineers and
contractors including; condition score which aligns with Natural
Resources Wales’ scoring, location, access to structures, current
and historic defects and which shoreline management policy
the asset is under. It also assesses the wider risks posed by
coastal processes by providing an alert and warning system for
assets five days in advance and identifies the assets most at
risk from storm events.
AssetCoast represents a step change within Network Rail to
manage coastal assets, to ensure a truly holistic approach with
asset information that is always up-to-date. It has proven
beneficial to provide a collaborative, proactive management of
Network Rail’s coastal assets, to help reduce the risk of future
devastating damage to our railway. However, this is currently
only used for coastal assets, the aim is to create a platform
which includes all railway assets. Asset Managers are further
understanding how to wider share AssetCoast’s information,
collaborating with other public bodies like Natural Resources
Wales, Local Authorities and the Welsh Coastal Monitoring
Centre to align activities and funding to reduce disruptions to
the public.
Figure 10: An extract from AssetCoast identifying key assets
17March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Rail industry funding
Network Rail is funded by the Department for Transport (DfT) The RNEP process follows the Government Green Book Five
to operate, maintain and renew the railway in five-year cycles; Case Model, with the cases and questions they seek to answer
control periods. This settlement does not including funding for detailed below:
enhancing infrastructure which is described below.
• Strategic: does the scheme have the right strategic fit?
For renewal of assets, funding provision enables Network Rail
to renew assets on a like for like basis to modern equivalent • Economic: does the scheme maximise public value to
standards. Assets are identified and prioritised prior to the society?
control period and put into a five-year work bank, alongside • Commercial: is the scheme commercially viable?
any reactive works. However, asset management teams,
especially the geotechnical team, have aspirations to build a • Financial: is the scheme affordable?
work bank which considers resilience of assets, focusing of
vulnerable areas such as the Severn Estuary and the Cambrian • Management: can the scheme be successfully delivered?
Coast Line. Alternatively, funding can also be secured through other
Enhancement of the network to deliver improvements such as avenues, such as third parties (local and regional authorities),
increased network capacity, improved journey times and Welsh Government and passenger and freight train operating
improved resilience would generally require additional specific companies.
funding over and above that included in the five-year spending However, the challenge at locations such as the Conwy Valley
settlement for OMR (Ops, Maintenance and Renewal), as Line will be to make the case to enhance the network to provide
explained above. Therefore, this means that enhancement greater resilience that will reduce future renewal and
funding requires the case for investment to be made, following reinstatement costs following further extreme weather events
governments appraisal criteria such as WelTAG (Welsh in the longer term.
Government) and WebTAG (UK Government) to fund any
incremental enhancements. The main mechanism for Additional information:
enhancement funding is through the DfT’s Rail Network
RNEP Guidance –
Enhancement Pipeline (RNEP) process. There are five stages
https://www.gov.uk/government/publications/rail-network-
within the RNEP process to achieve enhancement funding;
enhancements-pipeline
demonstrated in Figure 11 below with decisions to proceed
following each step to be undertaken before a scheme is The Green Book –
accepted and delivered. https://assets.publishing.service.gov.uk/government/uploads/s
ystem/uploads/attachment_data/file/685903/The_Green_Bo
ok.pdf
Figure 11: The Rail Network Enhancement Pipeline Process
18March 2020 Network Rail: Understanding the impact of the Shoreline Management Plans on the railway across Wales & Borders
Pilot research and study
area:
Cardigan Bay and the Shoreline Planning in Cardigan Bay
In commencing this study, initial discussions were held
The Cambrian Railway line
The railway provides a key transport link in the Cardigan Bay
Cambrian Coast Line between Network Rail (NR) and Gwynedd County Council
regarding their progress in responding to the Shoreline
alongside the highway and bus network.
The Cambrian Line runs from Shrewsbury to Dovey Junction,
Management Plans (SMPs) in their area. The local authority is
via Machynlleth then splits with the south branch running via
keen to progress plans in collaboration with key organisations
Borth to Aberystwyth; and the north branch – the Cambrian
such as NR and were happy to support in the production of this
Coast Line, follows the Cardigan Bay coast via Barmouth and
interim report.
Porthmadog to Pwllheli. It is primarily a single line railway with
Gwynedd County Council have already progressed planning in passing loops.
their area, not least due to the potential impact the changing
Services on the Cambrian operate on a two-hourly frequency
shoreline and SMP policies are likely to have on their coastal
continuing beyond Shrewsbury to Birmingham International,
communities across the three epochs.
with hourly services between Aberystwyth and Shrewsbury at
The SMP which relates to Gwynedd County Council is a certain times of the day. Transport for Wales have plans to
particular section of the West of Wales Shoreline Management operate a consistent hourly service between Aberystwyth and
Plan: Coastal Area D. This is illustrated in Figure 13 on the Shrewsbury throughout the day from the end of 2022 and
following page. there are also plans to run additional weekend services on the
Cambrian Coast Line in the summer to serve the vital tourism
Each SMP is broken down into a number of ‘Coastal Areas’ and and leisure market in the region.
is then broken down further for ease of planning. This process
is explained in Appendix A. Railway investment planned in the area includes:
Coastal Area D of the West of Wales SMP covers the coastline • a new station north of Aberystwyth at Bow Street, opening
of Cardigan Bay, stretching from Sarn Gynfelyn, north of in 2020, funded jointly by the Department for Transport
Aberystwyth, to Trwyn Cilan, south of Abersoch. The area (DfT) and Welsh Government (WG);
covers the major estuaries of the Dyfi, Dysynni and the • Machynlleth station to benefit from investment in
Mawddach, as well as the southern shoreline of the Llyn upgraded facilities and tourism link after being identified
Peninsula. There are settlements across the area, including key in Transport for Wales’ station flagship programme;
developments such as Machynlleth and Dolgellau at the head • a new fleet of trains from the end of 2022 which will be
of the Dovey, and others situated at the mouths of the serviced and maintained at the depot at Machynlleth; and
estuaries including Aberdyfi, Tywyn, Barmouth, Porthmadog • the upgrade of the Grade II listed Victorian timber viaduct
and Harlech. at Barmouth over the River Mawddach is taking place in
The area has an economy based on tourism with many visitors Control Period 6 (CP6).
attracted to both the beaches and mountains, particularly with
the adjacent Snowdonia National Park. Also nearby are the
Figure 12: The Cambrian Coast railway universities of both Aberystwyth and Bangor resulting in a
number of students either visiting or living in the Cardigan Bay
area.
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