ATODIAD / ATTACHMENT 1

Allotment Provision in Carmarthenshire

Policy & Resources Scrutiny Committee 9th April 2010

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Contents

1. Introduction

2. Background

3. Legal and Policy Context

4. Allotment provision in Carmarthenshire

5. Role of Carmarthenshire County Council

6. Allotment provision in other Local Authority areas

7. Conclusions

8. Appendices

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1. Introduction

In recent months, Carmarthenshire County Council has been receiving an increasing number of enquiries about allotments from members of the community. Across the UK, allotments have been gaining a higher profile during the past few years, especially as the public look to other means of sourcing local and organic produce.

Following discussions with members with regards to the Forward Work Programme and additional discussion with the Executive Board Member for Sustainable Development & Strategy, it was proposed that a briefing paper on allotment provision be prepared for the Policy & Resources Scrutiny Committee.

2. Background

2.1 What is an Allotment?

An allotment is a piece of land which can be rented by individuals for the purpose of growing vegetables, fruit or flowers for their own personal (or family) use. Some are used for leisure purposes by people who may not have a garden. Allotments are usually located in or around towns and in most cases, are owned by local authorities. However, some allotments may also be owned by private individuals, charities, commercial landowners or religious organisations. The location of allotments as well as the plot sizes can vary depending on historical factors and the local demand for plots.

2.2 Origin of Allotments

Our modern day allotments originated from enclosure legislation passed in the 18th and 19th centuries. At this time large areas of land were enclosed by landowners significantly reducing the common land that was used by the general population to grow food and graze their animals. The word ‘allotment’ derives from the practice allotting pieces of land to individuals following the new legislation. Much of the new legislation benefited a minority of wealthy landowners although the General Enclosure Act of 1845 did seek to address this by requiring the needs of the landless and poor population be catered for in the form of ‘field gardens’. These were limited to a quarter of an acre in size. Until this time, allotments were mainly found in rural areas although with the industrial age and subsequent population growth of towns and cities, small pieces of urban land began to be used as allotments, especially as inner city properties often had no gardens.

During both the First and Second World Wars, food shortages in the UK led to an increase in demand for allotments. Following the Second World War, rationing continued until 1954 and kept demand for allotments high. However, with a greater demand for building land in the post-war years, many allotments disappeared. The second half of the twentieth century saw a continued decline in the number of allotments across the UK due to a number of different social and economic factors. One factor was that most new post-war housing included some form of private

Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 3 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 garden thus making the allotment redundant. The Thorpe Inquiry into Allotments in 1969 noted that new work and leisure patterns and an increased variety of leisure activities all contributed to the decline in demand for allotments.

2.3 Allotments today

In recent years, demand for allotments has been steadily increasing. Concerns about ‘green issues’, the quality and origin of food as well as the use of genetic modification and intense farming methods, have encouraged an interest in growing vegetables and fruit at home. Other factors thought to be contributing to the recent interest, are the current trend for smaller gardens in modern housing developments as well as changing demographic and employment trends. The increase in the 50+ population and flexible working practice may also be contributing to the increase in demand.

2.4 Benefits of Allotments

There are a number of benefits associated with allotments. These include:

• Promoting exercise and healthy lifestyles • Encouraging community interaction and participation • Providing educational opportunities • Creating green spaces • Encouraging biodiversity and habitats for wildlife • Utilising derelict pieces of land • Helping to reduce ‘food miles’ • Helping to reduce reliance on food grown with fertilizers / pesticides produced by the petro-chemical industry • Providing a destination for home produced compost

According to Food 2030, the UK Government’s new food strategy: “Growing food – at home, in a community garden or allotment – can produce a number of other benefits including better mental and physical health, bringing people together and improved skills.” 1

In their report on Allotments, the Committee on Environment, Transport & Regional Affairs concluded that whilst: “Allotments are characterised by some as an anachronism, a relic of a bygone era” they believed: “that the benefits allotment sites provide to both allotment holders and the general public mean that they have a critical role in modern, urban life. These benefits include exercise, the supply of affordable fresh vegetables, increased biodiversity, 'green space', and the potential for educational and therapeutic benefits for some sections of the community.” 2

The Welsh Local Government Association also “recognises the unique role of allotments in bringing all sections of the community together” by providing

1 Food 2030: UK Government’s Food Strategy 2 The Future for Allotments: Environment, Transport & Regional Affairs Committee Fifth Report (June 1998) Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 4 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 “opportunities for people to grow their own produce as part of the long term promotion of sustainability and healthy living.” 3

3. Legal and Policy Context

3.1 Legal Context

Allotments have been subject of a variety of UK Government Acts during the 19th and 20th Centuries and the current legislation on allotments is the Allotments Acts of 1908 to 1950. The definition of an allotment can be found in section 22 of the Allotment Act 1922 and in section 1 of the Allotments Act 1925. Most allotments are owned or leased and provided by county/community councils although some may be managed by other bodies such as local associations/societies comprising of plot holders or even limited companies. Some allotments are privately owned, sometimes by charities, and these sites are not subject to the legislation of 1908 to 1950 which governs statutory allotments, i.e. land acquired or appropriated by a local authority for use as allotments. Fuel or field garden allotments set out under an Inclosure Act are also not under those controls as they were not acquired or appropriated by local authorities. Existing legislation (Smallholdings and Allotments Act 1908) places a duty on local authorities (with the exception of the inner London boroughs) to provide allotments should they consider the demand to be sufficient. In Wales the duty is on County Councils and Community Councils.

Section 23 of the Small Holdings and Allotments Act 1908 (as amended) provides that where a community council or meeting, or the county/county borough council, believe there is a demand for allotments, they are under a duty to provide sufficient plots to residents. Written representations that there is a demand can be made by any 6 registered parliamentary electors, council tax or rate payers and such representations must be taken into account.

Section 8 of the Allotments Act 1925 Act provides that land acquired or appropriated by a local authority for use as allotments cannot be appropriated or disposed of for any other use without the consent of The National Assembly. The Smallholdings and Allotments Act 1908 and the Allotments Acts 1922 – 1950 place an obligation on allotment authorities to meet the demands of local residents wishing to cultivate allotments. With this in mind the National Assembly takes the view that, in considering any application for consent to dispose of statutory allotment land, it must be satisfied that the Council will still be able to meet that demand should the consent sought under Section 8 of the 1925 Act be granted. In determining that issue it must:

(i) consider whether adequate provision will be made for any plot-holders who would be displaced or whether such provision is unnecessary or impractical;

(ii) not take into account the merits of the proposed alternative use of the land as Section 8 does not provide for this; and

3 Allotment demand in Wales (WLGA Press Release, 30th July 2009) Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 5 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 (iii) consider whether there would be sufficient allotments left to meet future demand if consent is granted.

It should be noted that Section 25 of the 1908 Act enables county councils to purchase or lease land or to acquire land compulsorily for allotment use. The Smallholdings and Allotments Act 1908 and the Allotments Acts 1922-1950 place an obligation on allotment authorities to meet the demands of local residents wishing to cultivate allotments. With this in mind the National Assembly takes the view that, in considering any application for consent to dispose of statutory allotment land, it must be satisfied that the Council will still be able to meet that demand should the consent sought under Section 8 of the 1925 Act be granted. In determining that issue it must:

(i) consider whether adequate provision will be made for any plot-holders who would be displaced or whether such provision is unnecessary or impractical;

(ii) not take into account the merits of the proposed alternative use of the land as Section 8 does not provide for this; and

(iii) consider whether there would be sufficient allotments left to meet future demand if consent is granted

subject to confirmation of the compulsory purchase order by the Assembly.

3.2 Policy Context

The UK Government is also seeking to promote a ‘grow your own’ agenda through the development of a ‘land bank’ which would highlight unused plots of lands for communities to cultivate and grow food. They want to encourage the use of temporary allotments or short term community gardens on pieces of land that are awaiting development. This announcement followed a recent UK Government survey of ‘public attitudes and behaviours towards the environment’ in which 33% of the respondents stated that they were now growing their own fruit and vegetables. Allotments are now considered as a means of addressing a variety of issues such as habitat destruction, improving biodiversity as well as health-related problems.

In March 2009, the Local Government Association (for England) published a second and revised edition of ‘Growing in the Community: A good practice guide for the management of allotments’. This guide aims to provide local councils with guidance for managing allotments and contains updates on the development of policy and other emerging agendas linked to green and sustainability issues. The guide provides councils with a recommended set of guidance for the good management of allotments. This will help to support allotment managers in the face of an upturn in the popularity and uptake of allotment gardens.

In Wales, a Legislative Competence Order (LCO) on Culture and other Fields was presented to the Welsh Assembly on 16th June 2009. This LCO gives the National Assembly the power to legislate in matters relating to culture, which includes policy in respect of allotments.

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4. Allotment provision in Carmarthenshire

Carmarthenshire County Council owns very few of the plots in the county. Most of the allotments are owned and managed by either Town & Community Councils or allotment societies.

4.1 Current provision in Carmarthenshire

Allotment sites in Carmarthenshire are located in:

• Bigyn Park Terrace, Bigyn, Llanelli • Coronation Road / Regalia Terrace, Llanelli • Five Fields, Carmarthen • Cae Maliphant, Kidwelly • Llandeilo • Lower Trostre Road • Parc Hinds, Carmarthen • Sunninghill Terrace, Llanelli

See Appendix 1 on page 13 for more detail on the current known provision.

4.2 Requests for allotment sites in Carmarthenshire

At the time of writing, a number of requests have been received from the community and the local authority is working with relevant organisations to identify suitable land. Requests have been received from:

• Ferryside – A County Council-owned site has been identified, which is already leased to the Community Council for recreation purposes. The Community Council has been asked to consider using part of this land for allotments in response to the local demand.

• Llandysul – A number of allotments were removed when the by-pass was constructed and there is a requirement to replace them on an alternative site. Discussions about local and future management are ongoing.

• Brynaman – A County Council-owned site at the local school has been identified and discussions are continuing between a local allotment society, the governors and the County Council.

• Llandovery – County Council-owned land has been identified and discussions with a local allotment association are ongoing.

• Pontyberem / Bancffosfelen – A County Council-owned site in Pontyberem has been identified and a draft lease is being prepared for a local allotment society

Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 7 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 • Ammanford – Planning permission was recently awarded to convert land at the rear of the former Alan Payne Factory (off Pantyffynnon Road) in Ammanford, to a play area and a 44 plot allotment site.

• St. David’s Park, Carmarthen – A site within the walled gardens of Building 1 has been identified and is available for a Green Team group of staff who may wish to manage the land.

Interest has also been expressed in allotment provision in the following areas:

• Burry Port • Llandybie • Newcastle Emlyn • Llanfihangel-ar-Arth • Pembrey*

* The Education & Children’s Services Department have had preliminary discussions regarding allotments at Pembrey Community Education Centre. Whilst the land is managed by the Local Authority, the site is owned by the community. It’s estimated that 30-40 plots could be provided at this site.

4.3 Environmental Works Project (EWP)

The Environmental Works Project is part of the Carmarthenshire Homes Programme which aims to improve council housing across the county. The project’s aim is to improve the external environment around council housing and is community driven. At present, there are 6 pilot projects under development of which 2 are community garden related. Housing Services have established a Project Register which records the ideas and proposals put forward by tenants, residents, officers and community groups. A number of initial enquiries have included proposals to establish community gardens for both growing produce and for general leisure activities.

4.4 Llanelli Green Network

As a member of the Llanelli Green Network, Carmarthenshire County Council recently commissioned Corscadden Associates to undertake a feasibility study for 4 potential allotment sites in Llanelli. Sites have been identified although further work is being undertaken to establish the suitability of the land.

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5. Role of Carmarthenshire County Council

At present, there is no central point of contact within the local authority for members of the public should they wish to enquire about allotments. The requests for land already received have been received through a variety of sources such as the contact centre and individual county councillors.

Land within county council ownership is being considered for allotment use, where it is not suitable for more valuable uses. The authority is looking for opportunities where it can help the public with their requests by supporting community initiatives through making suitable land available or offering advice. This is presently on an ad hoc basis.

6. Allotment provision and management in other Local Authority areas

Allotment provision and management across the UK as a whole, appears to vary considerably. Some local authorities have developed their own allotment policies / strategies and oversee implementation on a local level. However, as noted by the Environment, Transport & Regional Affairs Committee’s Fifth Report on the ‘Future for Allotments’ (June 1998): “Other memoranda showed local authorities in a less positive light. Many submissions from plot-holders complained of the poor quality and quantity of information.” 4

6.1 Other Local Authorities in Wales

Bridgend County Borough – There are currently 13 allotments within the Borough which are managed by either the County Allotments Association or Bridgend Town Council. An application for a plot must be made to the relevant managing authority, whose details are available via the Bridgend County Borough Council website.

Cardiff – At present, there are 26 allotment sites across the city with over 2000 tenanted plots. Each allotment has an association or committee although applications for a plot must be made through the Council’s Allotments Officer. Most of the sites have waiting lists and it’s possible that an applicant may have to wait for up to 12 months before a plot becomes available. Cardiff Council has developed an Allotment Strategy.

Caerphilly County Borough – The Council administers 80 allotment sites across the Borough with over 2000 plots. Applications for a plot can be made via the individual allotment secretaries or via the Council’s Leisure Services. Contact details are available via the Council’s website.

Flintshire County Council – There are 11 allotment sites within Flintshire. These are administered by a variety of community councils and local organisations. All applications for plots are made to the administrative organisations.

4 The Future for Allotments: Environment, Transport & Regional Affairs Committee Fifth Report (June 1998) Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 9 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 Monmouthshire County Council – At present, the County Council manage three allotment sites across the county with a total of 120 plots across the sites. In addition, there are 8 other allotment sites (with approximately 198 plots) that are managed by Town and Community Councils. A Policy on Allotment Provision is currently operated for Chepstow allotments although the County Council is currently reviewing the policy and working towards introducing a county-wide policy in the future. The County Council provide start-up information for new plot tenants, which is available from the council’s website.

Neath Port Talbot County Borough Council – The Council have a number of allotment sites available for residents of the Borough. Applications for plots are made via the Environmental Services.

Newport City Council – There are 26 allotment sites within the City available to Newport residents. The management of sites is undertaken by the individual allotment site secretaries. Contact details are available via the Newport City Council website.

Rhondda Cynon Taf – There are approximately 60 allotment sites in the Rhondda Cynon Taf area. All enquiries are to be made to the Council’s Allotments Officer.

City & County of Swansea – Swansea Council provides and promotes allotments. The Council owns 14 allotment sites, of which 8 have a devolved management set- up. There are other sites across Swansea which are managed by independent committees. The Council has also developed an Allotment Strategy.

Torfaen County Borough – Torfaen has 39 allotment sites at present and provide grant aid for two allotment societies who are responsible for managing the sites on behalf of the authority. This includes the letting of plots and waiting lists. The Borough Council are currently developing an Allotment Strategy to support their work.

Vale of Glamorgan Council – There are currently 9 sites and all enquiries are made via the Council. All county residents can apply for a plot.

Wrexham County Borough Council – The Council is responsible for four allotment sites. Waiting lists and other relevant information can be accessed via the Council’s website. The Borough Council has produced an Allotment Strategy which sets out how the Borough Council manages the allotments in conjunction with the Wrexham Allotment and Leisure Gardeners Association.

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7. Conclusions

• Allotments are increasing in popularity across the UK. Concerns regarding food origin and quality coupled with the current financial pressures are some of the main causes for the increasing demand.

• The number of requests received by Carmarthenshire County Council is increasing and the Council is responding by assisting in identifying suitable plots of land, where possible.

• The County Council has no identified central point of contact or policy for expanding allotment provision.

• Due to the increase in enquiries and demand, Carmarthenshire County Council may benefit from a specific allotment strategy or policy as well a designated officer for dealing with public requests.

• A new policy could set out how the local authority would work with town and community councils to expand provision of allotment sites across the county.

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8. Appendices

8.1 Appendix 1 - Allotments in Carmarthenshire

8.2 Appendix 2 – Government Strategies / Policies / Research

8.3 Appendix 3 – Interest Groups / Societies

8.4 Appendix 4 – Legislation (Office of Public Sector Information)

8.5 Appendix 5 – Welsh Local Authorities

8.6 Appendix 6 – English Local Authorities

8.7 Appendix 7 – News Articles / Press Releases

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8.1 Appendix 1 – Allotments in Carmarthenshire

Allotment Site Site Owner Site Management Plots Waiting List

Bigyn Park Terrace, Bigyn, St. Paul’s Church Unknown 21 Unknown Llanelli

Coronation Road / Regalia Carmarthenshire County Llanelli Town Council 17 Yes – 40 across Llanelli Town sites Terrace, Llanelli Council

Five Fields, Carmarthen Carmarthenshire County Carmarthen Town Council 90 Yes – not specified Council

Cae Maliphant, Kidwelly Kidwelly Town Council Kidwelly Allotment 20 Yes – 1 at present Association

Llandeilo Cymdeithas y Dalar Cymdeithas y Dalar 61 Yes – not specified

Lower Trostre Road Llanelli Town Council Llanelli Town Council 5 Yes – 40 across Llanelli Town sites

Parc Hinds, Carmarthen Carmarthenshire County Carmarthen Town Council 40 Yes – not specified Council

Sunninghill Terrace, Llanelli Carmarthenshire County Llanelli Town Council 24 Yes – 40 across Llanelli Town sites Council

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8.2 Appendix 2 – Government Strategies / Policies / Research

Allotments Research Note, Scottish Parliament, 23rd November 2003 (RN 00/102) – www.scottish.parliament.uk/business/research/pdf_res_notes/rn00-102.pdf

Assessment of Potential Allotment Sites in Llanelli: Feasibility Report (September 2009) – Corscadden Associates

Food 2030: UK Government’s Food Strategy – www.defra.gov.uk/foodfarm/food/strategy/index.htm

Foodvision: Allotments – www.foodvision.gov.uk/pages/allotments

Growing in the Community: A good practice guide for the management of allotments (summary) by the Local Government Association – www.lga.gov.uk/lga/aio/336363

Growing in the Community: The Longer View by Dr. Richard Wiltshire, King’ College London – www.sags.org.uk/docs/ReportsPresentations/richardwiltshire.pdf

Implications and Opportunities for Allotments arising from the Mayor of London's Strategies: A report for the Greater London Allotments Forum (GLAF) by Jonathan Harding, Internship Student, Kings College London – www.londonallotments.net/research/jh001.html

Local Authority Allotments in Scotland: State of the Market Survey, December 2008 (Briefing 08/58) by the Association for Public Service Excellence – www.apse.org.uk/briefings/08/08- 58%20LA%20allotments%20in%20Scotland%20market%20survey.pdf

The Future for Allotments: Environment, Transport & Regional Affairs Committee Fifth Report (June 1998) – www.parliament.the-stationery- office.co.uk/pa/cm199798/cmselect/cmenvtra/560/56002.htm

2009 Survey of public attitudes and behaviours towards the environment (Statistical Release, 23rd September 2009, Ref: 217/09) – www.defra.gov.uk/news/2009/090923a.htm

8.3 Appendix 3 – Interest Groups / Societies

Allotment History – www.allotmentlife.net/info2.cfm?info_id=82189

Allotments Regeneration Initiative – www.farmgarden.org.uk/ari

Cymdeithas y Dalar Allotments – www.transitiontownllandeilo.org.uk/cymdeithas.htm

Cambridge Allotments Network – www.allotments.net

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Federation of City Farms & Community Gardens – www.farmgarden.org.uk

London Allotments Network – www.londonallotments.net

National Society of Allotment & Leisure Gardeners – www.nsalg.org.uk

National Allotment Gardens Trust – www.nagtrust.org

Scottish Allotments and Gardens Society – www.sags.org.uk

Swansea Community Farm – www.swanseacommunityfarm.org.uk

Taff’s Well and Nantgarw Community Allotment Project – www.taffswellcommunityallotments.com

8.4 Appendix 4 – Legislation (Office of Public Sector Information)

Allotments Act 1950 – www.opsi.gov.uk/RevisedStatutes/Acts/ukpga/1950/cukpga_19500031_en_1

Allotments Act (Northern Ireland) 1932 – www.opsi.gov.uk/RevisedStatutes/Acts/apni/1932/capni_19320017_en_1

Allotments: E-Petition Response, 21st June 2007 – www.number10.gov.uk/Page12015

More Allotments: E-Petition Response, 24th September 2008 – www.number10.gov.uk/Page16920

More Allotments: E-Petition Response, 24th July 2009 – www.number10.gov.uk/Page20100

8.5 Appendix 5 – Welsh Local Authorities

Bridgend County Borough Council – www.bridgend.gov.uk

Cardiff Council – www.cardiff.gov.uk

Caerphilly County Borough Council – www.caerphilly.gov.uk

Flintshire County Council – www.flintshire.gov.uk

Monmouthshire County Council – www.monmouthshire.gov.uk

Neath Port Talbot County Borough Council – www.npt.gov.uk

Newport City Council – www.newport.gov.uk

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Rhondda Cynon Taf – www.rhondda-cynon-taf.gov.uk

City & County of Swansea – www.swansea.gov.uk

Torfaen County Borough Council – www.torfaen.gov.uk

Vale of Glamorgan Council – www.valeofglamorgan.gov.uk

Wrexham County Borough Council – www.wrexham.gov.uk

8.6 Appendix 6 – English Local Authorities

Boston Borough Council – www.boston.gov.uk

Bristol City Council – www.bristol.gov.uk

City of Edinburgh Council – www.edinburgh.gov.uk/allotments

Exeter City Council – www.exeter.gov.uk

London Borough of Kingston upon Thames – www.kingston.gov.uk/allotments

Merton Borough Council – www.merton.gov.uk

Metropolitan Borough of Wirral - www.wirral.gov.uk

Newcastle City Council - www.newcastle.gov.uk

North Hertfordshire District Council – www.north-herts.gov.uk

Taunton Deane Borough Council – www.tauntondeane.gov.uk

8.7 Appendix 7 – News Articles / Press Releases

A lot meant by an allotment (Wales Online, 9th September 2009) – http://www.walesonline.co.uk/news/wales-news/2009/09/07/a-lot-meant-by-an- allotment-91466-24622358/

Allotment demand in Wales (WLGA Press Release, 30th July 2009) – www.wlga.gov.uk/english/press-releases/allotment-demand-in-wales

Can you dig it? (Sean Coughlan, BBC News Magazine, 11th August 2006) – http://news.bbc.co.uk/1/hi/magazine/4776325.stm

Grow your own food revolution plans to seed unused land (The Guardian Online, 4th January 2010) – www.guardian.co.uk/uk/2010/jan/04/grow-your-own-unused- land-2030

Rheoli Pobl a Pherfformiad \ Craffu ac Ymgynghoriaeth 16 People Management & Performance \ Scrutiny & Consultancy ATODIAD / ATTACHMENT 1 Law threat on allotment provision (BBC News Online, 26th May 2008) – http://news.bbc.co.uk/1/hi/wales/south_east/7420230.stm

Local Authority Allotment Provision (APSE Briefing 08/20, March 2008) – www.apse.org.uk/briefings/08/08- 20%20Local%20Authority%20Allotment%20Provision.pdf

More allotments for County (Carmarthenshire County Council Press Release, 11th August 2009) – www.carmarthenshire.gov.uk/English/news/Pages/Moreallotmentsforcounty.aspx

Summit over allotment shortages (BBC News Online, 30th July 2009) – http://news.bbc.co.uk/1/hi/wales/8175476.stm

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