Documentation:Open Case Studies/FRST522/2023/Llyn Parc Mawr: Managing a community woodland for multiple objectives within Newborough Forest in North Wales, UK

From UBC Wiki

Positionality Statement

I completed my first year of the Transatlantic Forestry Master dual degree program at Bangor University in Wales. During that year, I was able to go to Llyn Parc Mawr twice: first for a volunteer session and then for a field trip. I enjoyed both of my visits to the community woodland and was impressed by how much had been accomplished there in so little time. With this project, I was eager to learn more about Llyn Parc Mawr. I would like to be clear that this UBC Wiki page was completed as coursework and was not conducted in consultation with the members of the community woodland. I do not speak on behalf of local people. Further, I am Canadian, not Welsh, and do not speak Welsh, so I acknowledge that there are limitations to my understanding of the cultural context of this case study.

Summary of Case Study

Map of the Isle of Anglesey including an inset map highlighting the Isle of Anglesey in red, just off of the northwest coast of Wales, within a larger map of Wales.
Map of the Isle of Anglesey in Wales, UK.

Llyn Parc Mawr is a community woodland, established in 2016, located within Newborough Forest on the Isle of Anglesey, in Wales, UK. Local people have long had access to and use of the dune system in which Newborough Forest is now located. The recent creation of a community woodland within the forest is supporting a return to local stewardship which offers hope for the future at the local and global levels by delivering on multiple management objectives, including community well-being and biodiversity conservation, while working towards sustainable timber harvest. These management objectives are aligned with the wider plans for Newborough Forest and with Welsh policy goals. Community woodlands in Wales, such as Llyn Parc Mawr, therefore merit strong bundles of rights and financial supports.

Keywords

Newborough Forest; Anglesey; Wales; community forestry; community woodland

History and Description of Newborough Forest

A basic map of the Isle of Anglesey in green, with different villages located and named in black text, showing Newborough at the southern end of the island.

Newborough Forest is located at the southern end of the Isle of Anglesey in Wales, UK. The forest is found within a dune system that has long been accessed by local people but that has not always been forested.[1][2] When the village of Newborough was first founded during the reign of King Edward I (1272-1307), villagers were granted the right to harvest Marram grass and to hunt rabbits in Newborough Warren.[1] In the era of Queen Elizabeth I (1558-1603), laws were put in place to prevent the overharvesting of Marram grass after a storm displaced the sand dunes and buried part of the village of Newborough.[1] Though these laws were not strictly enforced, local people practiced sustainable harvesting with renewed appreciation for the role of Marram grass in stabilizing the dunes.[1]

A path runs down the middle of the image, between coniferous forest on either side of the path.
Path through Newborough Forest.

Centuries later, during World War II, land was commandeered within Newborough Warren for tank training and to set up a decoy airfield.[1] At the end of the war, local people were concerned that this land use had damaged the dune system and that the risk of sand dunes shifting towards the village was heightened.[1] It was decided that trees would be planted to stabilize the dune system while also contributing to building the post-war timber reserve.[1][3] Land had been acquired by the Forestry Commission in 1940 and Newborough Forest was planted between 1947 and 1965, largely with Corsican pine.[1][2] Around the time that the Forestry Commission acquired this land, they also tried to cut off local people’s access, notably by installing a locked gate across a road.[4] As documented through Llyn Parc Mawr’s social histories project, local people recall gathering for a protest where the gate was thrown into the sea.[4] Local action thereby restored access to the forest.[1]

In 1985, when an ecological survey was conducted to assess the changes that had occurred in the area since the planting of Newborough Forest, it was found that there had been a significant increase in plant diversity.[2] To this day, Newborough Forest continues to hold value for biodiversity conservation and also recreation.[3] The forest, which covers 952 hectares, is now part of the Welsh Government Woodland Estate, meaning that it is publicly owned land, and is managed by Natural Resources Wales (NRW) on behalf of the government.[5] NRW manages Newborough Forest for various social, environmental, and economic benefits, including timber production.[3]

History and Description of Llyn Parc Mawr

A map showing the area of Newborough Forest in green and below it, Newborough Warren in brown.
Map of Newborough Forest and surrounding area. The star indicates Llyn Parc Mawr's location.

The Llyn Parc Mawr community woodland is a relatively new addition to the landscape of Newborough Forest. The first village meeting to discuss the creation of a community woodland was held in 2014.[1][6] Between 2014 and 2016, extensive community consultation was conducted to find out what local people would want from their community woodland.[1] The priorities expressed included an outdoor space that could be used by schools, a circular walking path around the lake, and the restoration of the bird hide on the lake.[1] The Llyn Parc Mawr Community Woodland Group (LlPMCWG) was incorporated as a private company limited by guarantee in 2016[7] and, in the same year, the group signed onto a 10-year community management agreement with NRW for a block of 60 hectares within Newborough Forest.[6][8]

However, shortly after signing onto the agreement, the LlPMCWG began the application process for a People and Places 5 Year Grant from the National Lottery Community Fund, and the Lottery expressed that they would not invest in a project based on a community management agreement for only 10 years.[1][9] The LlPMCWG successfully negotiated an extended agreement with NRW, and after signing the current 20-year community management agreement, the group was granted £250 000 by the National Lottery in 2018.[1] This grant covered the salaries of three members of staff and, along with additional funding from the Welsh Government’s Landfill Disposal Tax Community Scheme, paid for the infrastructure that the community expressed they wanted during the 2014-2016 community consultation period.[1][9]

A wooden building with gaps in it to observe birds on the lake beyond.
Bird hide on the lake at Llyn Parc Mawr, requested by the community and funded by the National Lottery grant.

In terms of site ecology, because Llyn Parc Mawr is located within Newborough Forest, the area was originally planted on sand and the accumulated soil depth within the woodland varies from merely 1 to 20 cm.[1] Further, since the area was largely planted with Corsican pine, the woodland continues to be dominated by conifers.[8] This habitat helps to support Anglesey’s red squirrel population, an endangered species of mammal in the UK.[10] NRW’s visitor information page for the Newborough National Nature Reserve and Forest states that Llyn Parc Mawr, specifically, is an especially good area to spot a red squirrel.[11] Accordingly, the multiple objectives for which Llyn Parc Mawr is currently managed include biodiversity, in addition to education, recreation, and well-being.[6]

Institutional Context of the Community Woodland

Community Forestry in Wales

In recent decades, a number of supports developed at the national scale have contributed to an increased interest in community forestry in Wales. It is worth mentioning that the traditional common tenure system in Wales historically recognised joint land (cytir) and hereditary land (tir gwelyog), at which time areas of woodlands that were held as commons were of vital importance to community livelihoods.[12] Consequently, it is perhaps more accurate to describe the current trend as a restored, or reclaimed, interest in community forestry in Wales. A key event in this move towards devolving natural resources management rights occurred in 1997, when forestry was devolved as an area of policy to England, Scotland, and Wales.[13] In 1998, the Welsh Assembly Government was officially made the landowner of the Welsh Government Woodland Estate and the government later released the first Wales Woodland Strategy in 2001.[12]

That original strategy document included among its three main objectives ‘Woodlands for People,’ and a selection of supports for community forestry created since then will be outlined here. In 2001, the £16 million Cydcoed programme was launched with the aim of supporting community woodlands.[12] The programme concluded in 2008 and Cydcoed is seen as having significantly contributed to the growth of community woodlands in Wales.[14][15] In 2009, Llais y Goedwig was formed as a representative organisation facilitating networking and knowledge sharing among community woodlands in Wales that also advocates on behalf of this network.[15][16] Llais y Goedwig’s current list of members includes the LlPMCWG.[17] The 2018 Woodlands for Wales strategy document acknowledges the recent growth in community woodlands and expresses explicit support for varied forms of community woodlands due to the benefits they deliver.[18]

Forest Management at Newborough

The management authority, certification standards, and designations applied to Newborough Forest each have a role in shaping the management of the area. Newborough Forest is part of the Welsh Government Woodland Estate and is therefore managed by NRW.[5] Decision-making in the forest is informed by a long-term management plan.[5] The last version of this document was published in 2010[3] but the upcoming Newborough Forest Resource Plan, which went out for community consultation in the fall of 2022, is imminently due to be released.[5] Because Llyn Parc Mawr is located within Newborough Forest, activities within the woodland must be aligned with this management plan,[1] including the requirements laid out in the following sections.

Certification Standards

NRW’s management of Newborough Forest, as laid out in the management plan, must be in compliance with both the UK Woodland Assurance Standard (UKWAS) and UK Forestry Standard (UKFS).[1][3] UKWAS is an independent certification standard that serves to certify, in turn, that sustainable forest management is in compliance with both the Forest Stewardship Council (FSC) certification and the Programme for the Endorsement of Forest Certification (PEFC) schemes.[3][19] UKFS is the reference standard for sustainable forest management across the UK, and is therefore a key reference for UKWAS.[20] NRW is the main body responsible for implementing UKFS in Wales.[20]

A map of the the Isle of Anglesey highlighting the various SSSIs in either green or blue; there is also an inset map locating the Isle of Anglesey just off of the northwest coast of Wales.
Map of SSSIs on Anglesey. Newborough Forest is largely within the SSSI in green at the southeast corner of the island.

Site Designations

Newborough Forest is located within two Special Areas of Conservation (SAC), which is a European designation aimed at biodiversity conservation.[3] Most of the forest is also located within the Ynys Llanddwyn-Newborough Warren Site of Special Scientific Interest (SSSI) as well as the Anglesey Area of Outstanding Natural Beauty (AONB), designations that grant landscapes additional legal protections.[3][21] Within Wales, NRW is responsible for overseeing the designation and management of SSSIs and AONBs.[21] The draft document outlining priorities for the upcoming Newborough Forest Resource Plan mentions goals to restore and maintain features of interest defined by SAC or SSSI designations, including red squirrel habitat.[22] The AONB designation seems to largely inform considerations for minimizing the visual impact of forest management operations such as timber harvest.[3][22]

Management Objectives

While Newborough Forest was historically managed to stabilize the dunes and to produce timber, conservation and recreation have become increasingly important management goals in the area.[3] It appears that the upcoming Newborough Forest Resource Plan will continue to pursue these goals while maintaining the commercial viability of the forest’s timber, with multiple objectives referring to the importance of the forest as habitat and as an attraction for visitors and local people alike.[22] Perhaps the most important part of the vision for Newborough Forest, when considering supports for community woodlands, is the acknowledgment of local interest in the management of the forest and that local people should be involved in decision-making.[3] NRW aims to continue its partnership with LlPMCWG and to consider signing management agreements with the group for an expanded area of woodland.[22]

Tenure Arrangement at Llyn Parc Mawr

The current tenure arrangement for the Llyn Parc Mawr community woodland entails a limited devolution of rights to the LlPMCWG. The arrangement is based on a community management agreement between NRW and the LlPMCWG for an area that is part of the Welsh Government Woodland Estate.[1] The duration is time-limited at 20 years[1] and it does not seem that the renewal process is clearly defined. The withdrawal/use rights of the LlPMCWG do not currently include the right to harvest timber as NRW has retained the right to harvest timber within Llyn Parc Mawr.[1] That being said, the main timber crop from Llyn Parc Mawr is still Corsican pine, which is not very profitable, so NRW largely uses the income from timber sales to help cover harvest costs.[1] The withdrawal/use rights for non-timber forest products (NTFPs) are less clearly defined, but the LlPMCWG has been allowed to produce birch syrup.[1]

An information board naming Natural Resources Wales and Llyn Parc Mawr; in the background, two people are eating at a picnic table.
Information board at the entrance to Llyn Parc Mawr.

While the LlPMCWG has management rights for the community woodland, NRW maintains management of some areas within the woodland. First, NRW is responsible for the maintenance of the car park at the entrance to Llyn Parc Mawr.[1] Second, NRW is responsible for the statutory footpaths within the community woodland.[1] NRW must ensure that footpaths of this type are kept clear and this responsibility includes the land within three meters of either side of these footpaths.[1] Consequently, if a tree falls over on a statutory path and its base was located within three meters of the path, NRW is responsible for clearing it.[1] However, if the base was located further than three meters from the path, the LlPMCWG is responsible.[1] There are also footpaths categorised as permissive paths within the community woodland, for which the LlPMCWG is responsible.[1] Right to Roam applies throughout Llyn Parc Mawr, guaranteeing access rights to the public.[1]

Governance of Llyn Parc Mawr

While the governance of Llyn Parc Mawr is embedded within the higher levels described above, this section focuses on the internal governance of the community woodland. The LlPMCWG, like many other community woodland groups across Wales, is incorporated as a company limited by guarantee.[7][12] This structure limits the liability of individuals with regards to the group’s assets and is often required by funding programmes.[12] As a company limited by guarantee, the LlPMCWG is legally required to host annual general meetings.[1] Each year, at this meeting, a certain percentage of the group’s board of directors must step down and elections are held to replace these individuals; anyone from the community can apply to run in the election.[1] The board of directors is responsible for leading decision-making within Llyn Parc Mawr and it is currently made up of eight non-remunerated directors.[1]

To include community input in decision-making, the LlPMCWG engages in continuous community consultation, largely through feedback boxes.[1] Additionally, membership at Llyn Parc Mawr is open to anyone.[1] It costs £5 to become a member for three years, and members include tourists and students, among others, though most members are local people.[1] Membership numbers are useful to quantifying community buy-in when the LlPMCWG applies for funding.[1] Benefits for the community woodland members include members-only events and discounts for on-site programming.[23] Members are also invited to support negotiations with NRW, among other roles.[23] Lastly, community members are also able to get directly involved in the management of Llyn Parc Mawr through regular volunteer sessions hosted on-site.[23]

Management of Llyn Parc Mawr

Management Aims

Current Aims

The management objectives at Llyn Parc Mawr are aligned, as they are required to be, with the larger management objectives for Newborough Forest and also with community interests. The stated purpose of the LlPMCWG is “to establish Llyn Parc Mawr as a sustainable woodland area to benefit wildlife and contribute to the well-being of the community.”[6] This vision is directly aligned with the management of Newborough Forest for conservation and recreation while engaging in timber production.[3] These management objectives also reflect the values that local people associate with woodlands: in a 2001 study conducted in the area around Bangor in North Wales, the local forested areas that participants identified as being most significant to them were areas with regular amenity value, such as Newborough Forest, that delivered well-being benefits through accessible recreation.[24] Among other themes, local people also valued woodlands as habitat for wildlife.[24]

Future Plans

In a section on the LlPMCWG’s website describing their plans for the future, they state that the multiple management objectives include: “recreation, health and well-being, biodiversity, [and] small scale timber production to be used in the local economy and as a community education resource.”[8] Much of their forest management plan is aimed at increasing the species diversity and structural diversity within the woodland, to support wildlife habitat and to grow more valuable timber species as the LlPMCWG works towards their goal of claiming withdrawal rights for timber within the woodland.[6] In the future, the LlPMCWG also hopes to expand the community woodland to include an area where the ditches that drain the site are located, in order to better manage any blockages and maintain water flow.[1]

Successes and Challenges

The primary silvicultural successes that have been attained thus far within Llyn Parc Mawr include bringing areas that had been left unmanaged for years back into management and also the removal of invasive species.[1] Invasive species are a particular challenge throughout Newborough Forest because the thatching that was used to stabilize the dunes when the forest was being planted was made up of materials including garden waste, and some of these non-native species became invasive,[1][2] so clearing invasives in the area is a significant task. Llyn Parc Mawr has also seen social successes, including programs to get schoolchildren into the woods as well as groups who might not typically seek out the well-being benefits that can be accessed in a woodland.[1] For example, the community woodland has hosted group activities for veterans.[1] Overall, the LlPMCWG has seen success in their goal to help people connect with the natural world.[1]

A red squirrel perched on the edge of a squirrel feeder attached to the trunk of a tree.
Red squirrel photographed on Anglesey.

Among the challenges for silviculture at Llyn Parc Mawr, flooding poses a significant threat.[1] Flooding at any time is a concern, since the bottom of the woodland is only two meters above sea level and sea water infiltrates easily through the sand, but flooding in the winter is increasingly challenging as well.[1] Drought in the summer also poses an increasing risk; there was even a small forest fire a few years ago.[1] On the ecological side, managing the woodland with consideration for diseases is a challenge; this includes diseases threatening tree species, such as ash dieback, but there is also fear that the squirrel pox virus, which causes high rates of mortality among red squirrels, may be introduced to the red squirrel population on Anglesey.[1][10] In a joint threat to trees and red squirrels, the health of Corsican pine and other pine species, which provide seeds that are important food sources for squirrels, are currently threatened by red band needle blight.[10] The LlPMCWG is therefore challenged with the task of replacing Corsican pine with a selection of species that can withstand the unique ecological conditions of the dune system, provide higher value timber, and serve as a food source and habitat for red squirrels.

Lastly, the LlPMCWG has had to deal with some social challenges, including people parking camper vans in the car park and leaving garbage behind, as well as fly-tipping in general.[1] There were also some incidents of anti-social behaviour, one of which resulted in the vandalism of the Caban, a structure that was a significant early investment for the community woodland and that is relied upon to run programming.[1] As with many recreational areas, these social challenges were exacerbated by the Covid-19 pandemic.[1] The main barrier to the LlPMCWG overcoming challenges is a lack of continuity of financial support.[1]

Assessment of Governance at Llyn Parc Mawr

It is not possible to make a complete assessment of the internal governance of Llyn Parc Mawr because most of the information on this woodland comes from those with decision-making power, such as from the LlPMCWG and NRW websites. For this project, local people were not consulted on their perception of the governance of their community woodland. That being said, current management is in line with local people’s previously reported interests in recreation and conservation in woodlands in the region.[24] It is also unclear how transparent the board’s decision-making process is or whether more local people would be interested in being more involved. This community woodland is not currently central to most local people’s livelihoods, which means that they may not have the interest or availability to be as involved in its governance as they would in other community forestry cases.

It is clear that NRW is the key decision-making body overseeing Newborough Forest and therefore Llyn Parc Mawr. NRW was first created in 2013, as a merger of the Environment Agency Wales, Countryside Council for Wales, and Forestry Commission Wales, a change made with the aim of integrating environmental management in Wales.[25] At the time, there were concerns that this shift towards internal decision-making – where NRW would be required to balance economic, social, and environmental interests – would result in a loss of transparency and accountability with regards to enforcing environmental protections.[25] The multiple obligations of NRW continue to be a relevant point of discussion: while NRW’s management of Newborough Forest is informed by certification standards and site designations, NRW is also the body responsible for implementing UKFS in Wales and for the oversight of SSSIs and AONBs.[20][21] Consequently, while NRW’s management of Newborough Forest is embedded within national and international (e.g. FSC) institutions, NRW also holds power across multiple levels of governance that shape the management of Llyn Parc Mawr in the context of Newborough Forest.

Funding bodies have had a direct role in some decisions made at Llyn Parc Mawr. Most significantly, it is because the National Lottery would not fund a 10-year project that the duration of the tenure was extended to 20 years.[1] Interestingly, a previous study found that it is difficult to distinguish between the influence of grants and advice on woodland management in North Wales because they tend to be offered together.[26] The influence of funding bodies over decision-making at Llyn Parc Mawr can thus far be seen as positive, but in light of the financial limitations of the LlPMCWG, there remains the risk that catering to the interests of funding bodies may interfere with the community’s influence over decision-making.

Recommendations

Going forward, rights and supports granted to this community woodland should be expanded in order to contribute to their long-term success. It is generally understood that, across community forestry projects, a stronger bundle of rights leads to the more extensive delivery of social, economic, and conservation benefits.[27] The bundle of rights should therefore be further devolved to LlPMCWG, first and foremost by expanding their withdrawal/use rights to include their requested right to harvest and sell timber products. The management rights of the LlPMCWG should be expanded to include the area where the drainage ditches are located, in order to facilitate the reduction of the risk of floods in the woodland. Beyond that, in the future, Scotland’s example may inspire diversified options for devolved forest management in the context of the UK. The Scottish model of community forestry through community ownership offers a leading example for devolved land rights,[13] and over time, lessons may emerge on the benefits of this model that are relevant to a Welsh context.

In terms of change needed at a national scale, the financial barriers experienced by the LlPMCWG as well as the associated influence of funding bodies in decision-making indicate that Wales should establish a national fund dedicated to the support of community forestry. Though an independent evaluation found that the success of the previous national funding programme, Cydcoed, was limited by tensions resulting from its administrative structure, the authors concluded that it was overall successful in attaining its aims.[14] Building from the precedent set by Cydcoed, there are lessons that can be taken in developing a new fund for Welsh community woodlands.

Such a fund, in addition to a strong bundle of rights, would support projects like Llyn Parc Mawr in achieving their multiple objectives, including biodiversity conservation, community well-being, and economic gains through timber harvest. Across the globe, community forests exemplify the value of local land stewardship in contributing to such objectives; notably, community forest enterprises in Mexico have been shown to be global leaders in managing forests for biodiversity conservation and climate change mitigation while contributing to sustainable local livelihoods though timber harvest.[28] The continued success of the LlPMCWG should be supported in order for the community woodland to continue to deliver multiple benefits on the local scale, in alignment with the vision of Woodland for Wales, but also on the global scale, most notably in contributing to global efforts to conserve biodiversity.

Acknowledgments

Theme: Community Forestry
Country: Wales

This conservation resource was created by Margot Maclaren.
It is shared under a CC-BY 4.0.

I would like to thank Dr. Tim Peters for his significant contributions to this project. Dr. Peters is a lecturer in Woodland Management at Bangor University and he is also the Woodland Environment Officer at Llyn Parc Mawr. The interview I conducted with him was central to building this case study, as was his verification of the draft of this page.

Acronyms

AONB: Area of Outstanding Natural Beauty

FSC: Forest Stewardship Council

LlPMCWG: Llyn Parc Mawr Community Woodland Group

NRW: Natural Resources Wales

NTFP: Non-Timber Forest Product

PEFC: Programme for the Endorsement of Forest Certification

SAC: Special Area of Conservation

SSSI: Site of Special Scientific Interest

UK: United Kingdom

UKFS: United Kingdom Forestry Standard

UKWAS: United Kingdom Woodland Assurance Scheme

References

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