South Hams District Council

SLAPTON COASTAL ZONE MANAGEMENT

MAIN STUDY

BRIEF FOR CONSULTANTS

1.0 INTRODUCTION

1.1 This Brief for Consultants report sets out the requirements of a Main Study into specific
coastal zone management issues at Slapton Sands, South Devon, and shall form the basis
for the preparation of a tender submission to South Hams District Council acting for the
Slapton Line Technical Group. The consultants shall clearly understand that this Brief
details the overall aims, objectives and scope of the study, and that their response to these
requirements should be included within the tender submission. Reference should be made
to the findings of the Scoping Study.

1.2 This study is broadly termed as Coastal Zone Management because it deals with a broader
range of sectoral issues than purely those linked with coastal defence. The socio
economic and environmental implications mean that the Study is wider in its remit than a
Shoreline Management Plan (SMP) that may require actions / funding outside of the remit
of DEFRA Flood Management Division. Consequently it does not comprise a second
generation SMP document, although the findings of this work will feed directly into
future revisions of the existing SMP for this length of coastline. Consultants will need to
be aware of the outputs of the DEFRA Future Coast Project (covering coastal
geomorphology issues for England and Wales) and the work currently underway to
produce second generation SMP Procedural Guidance (completion due April 2003).

1.3 To this end, shoreline management options relate to coastal works only. Coastal
management options include other aspects, such as transportation, environmental, and
socio-economic planning issues.

2.0 BACKGROUND

2.1 Slapton Sands, with the freshwater Ley behind it, is located in Start Bay on the South
Devon coast. The area is designated as a Site of Special Scientific Interest for its nature
conservation and geomorphological interest, as a National Nature Reserve and lies within
the South Devon Area of Outstanding Natural Beauty, and the South Devon Heritage
Coast.

2.2 During the winter of 2000/2001 a series of storms caused significant erosion at Slapton
Sands with the loss of up to 5 metres of the shingle beachhead over a length of some 1000
metres. This erosion caused undermining of a 225 metre section of the adjacent A379
highway, which was subsequently closed for a period of approximately 3 months until a
temporary reinstatement was effected. Subsequently a replacement length of road was
built approximately 20m inland from the original alignment. These works replace the
temporary reinstatement, but are not considered a long term solution, due to recognition
of the continuing nature of the coastal processes and erosion.

2.3 The shingle ridge is an integral part of the ecology, landscape and socio-economic make
up of the region. The topography of the area is such that ribbon development towards the
coast has historically occurred along three distinct routes in this area of historic,
landscape and ecological importance. These interdependent communities by necessity
largely interact along the coastal route for social and economic sustainability. The
importance of the A379 both as a link between local communities and to the tourism

Slapton Line Coastal Zone Management 1 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

industry, was demonstrated during the time that the A379 was closed during the early
months of 2001.

2.4 Paradoxically, whilst the erosion presents a continuing long-term threat of a breach in the
natural shingle ridge that protects the freshwater Slapton Ley, and the possibility of saline
inundation and associated changes to the current habitat, this process is recognised in its
own right as part of the dynamic natural progression of the shingle ridge.

2.5 Any management decisions will be based on a far wider consideration than the direct
physical loss of the road. Not only is the unique ecology of the area linked to the fate of
the shingle ridge, any attendant changes in landscape and the relationship to the beach
and the Leys would have an impact on tourism and the dependant communities in the
area. The challenges and opportunities offered by the possible changes, and associated
environmental, historic and social issues, will need to be taken into account.

2.6 A steering group comprising the Local and Statutory Authorities, landowners and directly
interested parties has been established to consider the issues and to progress a long-term
coastal management strategy for the site. The group, known as The Slapton Line
Technical Group, has recognised that a detailed study is required and South Hams District
Council has applied to DEFRA for grant aid funding under the Coast Protection Act, 1949
to undertake the study.

2.7 In parallel, the Slapton Advisory Forum has been convened and provides a means for
consultation and communication with the local community, business representatives and
service providers.

3.0 PROPOSED STUDIES

3.1 The study of coastal issues at Slapton Sands is being undertaken in two phases, as
follows:

 A Scoping Study – to identify all of the issues relating to coastal processes at

Slapton Sands, and bring together all past and current research and information,
and determine the brief and scope of work required for a comprehensive Main
Study.

 A Main Study - a comprehensive evaluation of the issues relating to coastal

processes at Slapton Sands for the purposes of determining an appropriate
shoreline management response to the recent erosion and from this, to establish a
robust long-term coastal zone management strategy for the area. The objective of
the Study is therefore to compile a single reference document that will form the
basis for all future decision making which affects the shingle ridge.

3.2 The Scoping Study was completed in October 2002 (Atkins) and provides the basis
for the assessment of possible options and identification of a preferred strategy by the
Main Study. The aim of the Scoping Study was to identify all of the issues relating to
shoreline management options that might be adopted at Slapton Sands, in terms of:

 Environmental concerns, including geomorphology, ecology and landscape,

 History and cultural heritage,
 Transportation, public amenity and socio-economic effects,
 Engineering feasibility of the options,
 Possible mitigation measures.

Slapton Line Coastal Zone Management 2 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

3.3 The Scoping Study defined a range of shoreline management options based on the
standard definitions derived from the DEFRA (formerly MAFF) funded Shoreline
Management Plans. Each of these shoreline management options has wider implications
for the Slapton hinterland, in terms of the potential threat to physical infrastructure and
social-economic and environmental interests. Therefore the Main Study needs to address
these wider coastal zone impacts, their mitigation and the opportunities that they might
offer for meeting existing policy objectives. The options will be considered against the
potential effects of ongoing coastal erosion should no active intervention be made to
address the coastal processes.

3.4 The shoreline management options under consideration are:-

Option Comment
This option is a walk away policy, where no active intervention is
undertaken at all either in shoreline management terms or repair of
the A379. It provides a baseline for appraisal of the other options by
No Active
the assessment of conditions as experienced during the time the
Intervention
roads closed following the 2001 breach, and consequential losses in
terms of property, infrastructure, socio-economics and the
environment.
This is an interim option only. In shoreline management terms this
involves only contingency works and monitoring of ongoing coastal
Minimum processes. As regards the A379 it involves removal of storm washed
Intervention shingle from the highway and emergency repairs to the road in the
event of limited damage, together with associated contingency
arrangements for effected interests.
In shoreline management terms this option involves limited remedial
works relating to health and safety following storm events, but does
not seek to inhibit the long term erosion of the shingle ridge. The
Limited
Coastal management element addresses what measures would need
Intervention
to be taken elsewhere to adapt to the eventual loss of continuity of
the A379, and altered environment and socio-economic conditions
that would follow.

Advance the This option has only a shoreline management element in advancing
Line to seaward the line of effective defence.

In terms of shoreline management, this option involves, where

possible, setting back the line of defence on the existing shingle
Managed
ridge. In terms of coastal management policy, this option involves
Realignment
providing an alternative route or routes to maintain a continuous line
for the A379.

Hold the This involves introducing a form of coastal defence to maintain the
Line shingle ridge that supports the A379.

Slapton Line Coastal Zone Management 3 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

4.0 AIMS AND OBJECTIVES OF THE MAIN STUDY

4.1 Understanding the geomorphology of the area is integral to the project. The Main
Study shall appreciate the concept of ‘Coastal Behaviour Systems’ as set out in the
recent DEFRA Future Coast Project (2002). As a minimum the Study shall consider
the Shoreline Behaviour Unit for this length of coast and inland up to and including
the A381 and the A3122. It shall comprise a comprehensive study of the Options
identified by the Scoping Study within this study area. Specific consideration is to be
given to the role of existing coastal defences and also the environmental and socio-
economic issues resulting from all the potential options, particularly on adjacent
coastlines and the road network inland of Slapton Ley.

4.2 The Main Study will require detailed investigation of a range of coastal management
issues, including coastal geomorphology, natural coastal processes, as well as the
transportation, environmental, economic and social impact of any future management
strategies. The Main Study in comparing options will also investigate the potential for
amelioration of the socio-economic and environmental consequences resulting from
the various options, and the opportunities for special development that each option
may present.

5.0 MAIN STUDY TASKS

5.1 The Main Study will need to be progressed in a structured manner to minimise the
risk of the studies and decision process being overtaken by events. The initial stage of
the study will focus primarily but not exclusively on shoreline management related
issues, later stages will address the wider coastal zone management considerations.

5.2 Applying the results of the DEFRA Future Coast research (2002), it is recommended
initially to assess the impact of shoreline management options on the wider evolution
of the coast. This study should include consideration of the potential for broad scale
application of the forthcoming revised DEFRA priority scoring methodology to
categorise the options based on the potential for future defence funding.

5.3 Secondly, to assist the selection of the shoreline management policy (in parallel with
the above work), a breach prediction model should be developed to provide a broad
risk assessment of conditions likely to cause potentially damaging erosion. This work
shall inform decisions about the most appropriate shoreline management policy, and
if necessary, alternative coastal management policies required to facilitate any road
network alterations.

5.4 The recommended iterations of the Main Study are outlined below:

Iteration 1 (Determining the shoreline management approach)

 Complete data sets sufficiently to determine socio economic and environmental

impacts and opportunities of the No Active Intervention, Minimum Intervention
and Limited Intervention Options.

 Produce a Breach Prediction Model.

 Undertake an assessment of the shoreline impact on coastal evolution of

remaining DEFRA shoreline management options.

Slapton Line Coastal Zone Management 4 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

 Complete coastal data sets sufficiently to determine whether the “Hold the Line”
Option is likely to be a viable, fundable option given the impacts of No Active
Intervention, Minimum and Limited Intervention.

 Determine if further coastal studies should be pursued based on viability of the

“Hold the Line” Option.

Iteration 2 (Refining the range of shoreline management options and develop

alternative coastal management options)

 If “Hold the Line” viable, complete further coastal studies.

 Refine the Breach Prediction Model to assist in setting the Coastal Zone
Management Policy.

 Complete data sets to determine the impacts and viability of coastal management
options.

Iteration 3 (Compare and select shoreline management option and coastal

management option)

 Produce Recommended Management Strategy with scheme justification .

5.5 The Consultant shall, as minimum, undertake the following specific tasks for the
satisfactory completion of the Main Study, but shall specifically be required to
identify any additional tasks pertinent to meeting the objectives of the Main Study.

Task A: Coastal Processes

5.6 The Consultant shall carry out an appropriate assessment of the coastal processes and
morphodynamics operating at Slapton Sands to a level dictated by the iterative stages
detailed above for each of the Options defined by the Scoping Study.

5.7 It is clear that although there have been many studies carried out on Slapton Sands,
the focus on useable real time data within the area is lacking. As such, understanding
the processes operating on Slapton Sands that govern the rate of barrier rollback, the
location of future overtopping or overwashing, the proximity of a breach “zone” and
whether this could ever be mitigated against (whether the breaching would be
permanent or episodic) cannot be accurately identified.

5.8 Hence the primary objective of further study into the coastal processes at Slapton
Study is to determine the breach potential along the shingle ridge and the viability of
the Options from a coastal protection perspective. The Consultant is to give priority to
those factors that will significantly influence assessment of the Options. Best use
should be made of information collected previously and care should be taken to
minimise the effort required to assemble new information.

Sub Task A1 Field Data Collection

Slapton Line Coastal Zone Management 5 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

5.9 The Consultant shall propose prioritised collection of field data and identify the
resources, cost and timescale necessary to collect that information which may include:

 Initiation of a coherent beach profile monitoring programme for the frontage.

 Improved tidal and wave height information along Slapton beach (circa 6-8m
depth) for model calibration.

 Real time meteorological data for storm breach model calibration.

 Grain size and grading measurements and foreshore bathymetry for breach
model calibration.

 Estimation of sediment volumes currently on Slapton beach.

 Establishment of detailed flood risk areas (through a specific topographic

survey) should a breach occur.

Sub Task A2 Analytical Studies

5.10 The Consultant shall use the available information and field data collected within this
study to:

 Further the understanding of the processes operating within the wider Shoreline
Behaviour Unit, including the evolution and role of Skerries Bank in altering
wave climate on the shoreline and enable a quantitative assessment of inshore
and offshore wave climates.

 Improve the knowledge on the littoral sediment transport regime in Start Bay (on
to offshore and longshore transport).

 Prepare a Conceptual Process Model to appraise coastal process information

operating within Start Bay that uses both existing and new data. The focus shall
be on improving our understanding of overwashing along the shingle ridge and
crest development over time.

 Based on the Conceptual Process Model, set up a Breach Prediction Model that
considers issues such as storm surge implications, barrier response to wave
overtopping, wave run-up variations (that exceed barrier crest elevation, and
instantaneous variations in foreshore profile response which may arise from
wave activity) to determine the implications of a breach along Slapton Sands.

 Assess the Options from a coastal protection perspective following current

DEFRA FCDPAG guidance and based on the findings of the Breach Prediction
Model to determine the Recommended Management Action.

 Provide a cost estimation of the coastal protection methods that could be utilised.

Task B: Slapton Impact Assessment

Slapton Line Coastal Zone Management 6 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

5.11 The approach to analysis of the inland implications of the various Options should
follow Environmental Impact Assessment Guidelines as laid out in DETR Circular
02/99 Environmental Impact Assessment and SI 1999 No293. The findings of all the
assessments should be combined using DETR GNATA July 1988 and DETR
Guidance on the Methodology for Multi-Modal Studies March 2000. Reference
should also be made to Quality of Life Capital, at [Link],
March 2001. It should be recognised that no single aspect can dominate deliberations
and compromises are likely.

5.12 The Consultant shall propose prioritised surveys, and identify the resources, cost and
timescale necessary to collect that information. Best use should be made of
information collected previously and care should be taken to minimise the effort
required to assemble new information.

Sub Task B1
Geomorphology

5.13 The Consultant shall carry out a detailed assessment of the impact of the various
options on this Geological Review Site in conjunction with the studies under sub task
A and identify any new opportunities. Reference should be made to the Management
Brief for Slapton SSSI, which is reproduced in the Scoping Study volume II.

Sub Task B2
Transportation Impacts
5.13 The Consultant shall carry out a detailed assessment of the transport implications of
the Options defined by the Scoping Study. The assessment shall broadly follow the
approach and techniques outlined in the Department of Transport’s Guidance on
Multi Modal Studies with the Consultant giving priority to those factors that will
show a significant variation between the Options.

5.14 The Consultant shall establish the levels of service offered by the current transport
networks and the current demands for travel by those living in the area and its
hinterland. This shall principally be by reference to existing data held in this respects
augmented by the results of an origin/destination and purpose of journey survey. The
information gained shall be compared to the level of service offered by the different
inland road networks suggested by the options. Consultation about standards shall be
carried out with the main providers of emergency services, public and school
transport, and private operators.

5.15 The Consultant shall assess the Options utilising the GOMMS appraisal framework,
tools and procedures, including a cost benefit appraisal of the Options, to derive an
Appraisal Summary Table for each Option. This framework will take account firstly
of the capital and maintenance costs of the different road network configurations
associated with each option. It shall also take account of the alteration to current
movement patterns, both in terms of disruption and journey savings. The implications
for possible visitor and tourist reassignment to other destinations outside the study
area shall also be noted. It is anticipated that simple spreadsheet models for transport
and cost appraisal will be set up and utilised. The Consultant is to identify whether
more detailed modelling techniques are to be used or are recommended.

Slapton Line Coastal Zone Management 7 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

5.16 The consultant shall consider the contribution to mitigating the adverse transportation
impacts of different configurations of the local road network that might be made by
traffic management and public transport, whether conventional or innovative.

Sub Task B3: Socio – Economic and Public Amenity

5.17. The consultant should assess the impacts of each Option and its mitigation with
regard to the extent to which they are compatible with achieving the aims and
strategies of the area’s designations and relevant policies. Significance will be
measured with regard to the criteria and objectives of the Objective 2 and Rural
Priority Area designations.

5.18. The impacts should be assessed in terms of the economic and social health of the
study area including Dartmouth and Kingsbridge. Reference to indicators of
accessibility to emergency, education and health services should be made. Assessment
of economic impacts should take account of any property at risk, as well as businesses
that depend on the quality of the local environment or present levels of accessibility.
It is suggested that the possible impacts on visitor patterns are assessed using the
contingent valuation method as described in the Scoping Study. An alternative
method can be proposed.

5.19. The degree of economic impact on businesses is not expected to be significant in

national terms, and indeed such information is not usually included in the
conventional DEFRA methodology for economic assessment of coastal management
options. Nevertheless the economic effects could be significant in local terms,
particularly in view of the above designations. Therefore the impact on the local
economy and communities, and the potential effectiveness of measures to address
this, together with any new opportunities that may be presented by the predicted
physical conditions, should be fed into the assessment of the Options.

Sub Task B4 – Landscape Assessment

5.20 A landscape character assessment of the coast and potentially affected parts of the
dissected plateau landscape inland will be required. Features and key characteristics
of landform, land use, vegetation and human and aesthetic factors need to be
identified and evaluated at an appropriate level and the effects over time quantified.

5.21 The consultant should propose use of a stated and professionally recognised
methodology to assess the landscape and visual impacts of coastal protection
measures, possible road improvements, or replacement routes for the A379.
Mitigation must be considered and the effects over time quantified at a basic level for
all options and in detail for the preferred/recommended option. Suggested guidance
documents include:

 DMRB Vol.11 landscape environmental assessment advice dated 1993/4

 Landscape Character Assessment – The Countryside Agency 2002.
 The Landscape Institute Guidelines for Landscape and Visual Impact
Assessment, Second Edition, 2002.

Sub Task B5 – Ecology

Slapton Line Coastal Zone Management 8 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

5.22 The consultant should assume that the necessary botanical surveys of the shingle
ridge have been completed but that there will be a need to survey other areas likely to
be affected. The study should include an assessment of the botanical communities
present using the National Vegetation Classification (NVC) methodology and
mapping of rare plant species.

 A hedgerow survey of the various transportation routes involved in the Options

should be carried out.

 Surveys of protected species such as Otter, Water Vole and dormouse may also
be required.
 A botanical monitoring programme of the shingle ridge should be set up; this
should include aerial photography, NVC and random mini quadrants.

Sub Task B6 – Archaeology

5.23 The Consultant shall confirm identified archaeological remains to be taken into
account in designing coastal defences or selecting possible road improvements, or
replacement inland routes for the A379 by reference to the Sites and Monuments
Register, and aerial photographs in the first instance.
5.24 The principal means of mitigation will be avoidance, and this should be proposed
wherever possible.

5.25 Subsequently in the comparison of the Options, the Consultant shall advise on the
significance of possible impacts on the identified remains and their settings, based on
an assessment of the SAM Register entries backed up by walk over surveys where
necessary. Reference shall be made to the National and Local Policy Framework in
the assessment. For identified remains which cannot be avoided, the Consultant shall
advise on the possible need for field investigations and recording for the
Recommended Option.

Task C: Progress Reporting and Meetings

5.26. A concise progress report to the Slapton Line Technical Group is required at least
every two months. The Consultant shall submit interim conclusions of the main Study
on completion of each of the proposed iterations for comments by the Slapton
Technical Group. The Consultant shall attend a consultation meeting with the Group,
and shall revise, extend and modify each iterative report as appropriate prior to
completing the Final Report of the Main Study.

5.27. In addition, a programme of reporting to the Slapton Advisory Forum shall be

proposed, corresponding with completion of each iteration of the Study. The purpose
of the reporting shall be to inform the Forum about the findings of the Study to date,
and to explain future work in the light of those findings. This will involve attendance
and presentation to the Forum.

Task D: Main Study Report

Slapton Line Coastal Zone Management 9 Main Study Brief for Consultants
[Link].015a Rev 02
South Hams District Council

5.28. The Consultant shall submit interim conclusions of the Main Study on completion of
each of the proposed iterations for comment by The Slapton Line Technical Group.
The Consultant shall attend a consultation meeting with the Group and shall revise,
extend and modify each iterative report as appropriate prior to completing the Final
Report on the Main Study.

5.29. The Final Report shall comprise:

 Findings of the Main Study.

 An overall assessment of the Options and the Recommended Management Action
and its justification.
 A non technical Executive Summary of the Main Study.
 Reference to all relevant documentary material.
 Attachments of relevant key documents.

6.0 TENDER FOR SCOPING STUDY

6.1 The Consultant’s tender submission should include statements on the following:

 Methodology for undertaking the Main Study.

 A detailed resource schedule (CVs, hrs, rates) for the Tasks and Sub Tasks.
 A proposed programme for carrying out the Main Study including progress and
review meetings. The programme should state which Tasks and Sub-Tasks are on
the critical path, and which are out of phase with the proposed iterations.
 A programme of surveys and data collection for Tasks A and B.
 Approaches to reporting to the Slapton Line Technical Group and Slapton
Advisory Forum.
 Proposed specialist sub-consultants.
 A cost and payment schedule for the Tasks and Sub Tasks.

Slapton Line Coastal Zone Management 10 Main Study Brief for Consultants
[Link].015a Rev 02