The Department for Environment, Food and Rural Affairs (Defra)
has worked fast and in difficult circumstances to launch new
tree-planting schemes, but did not give enough consideration to
whether its planting target is realistic, and looks set to fall
short of what it set out to achieve in 2021-22. It will need to
overcome significant challenges if it is to increase
tree-planting to the levels required for government's Net Zero
strategy.
Nature-based solutions, including woodland creation and
management, form part of the government's Net Zero strategy.
Defra aims to achieve at least 7,500 hectares of annual
tree-planting by March 2025 to be on the trajectory required by
the Net Zero strategy. To achieve this target, Defra has
established the Nature for Climate Fund Tree Programme (the
Programme).
When setting the 7,500 hectare per year target, Defra did not
sufficiently consider whether it is realistic. Defra told the NAO
that it determined it was realistic based on available evidence,
including historic planting rates and the availability of land,
but it did not undertake a detailed assessment of this evidence.
At no point in the last 50 years has the annual rate of
tree-planting in England reached 7,500 hectares and it has only
risen above 6,000 hectares in three of the last 50 years. As well
as achieving its headline targets, Defra also has a wide range of
environmental, social and economic objectives, which add to the
complexity of increasing tree-planting rates quickly.
Defra and the Forestry Commission have worked fast and in
difficult circumstances to launch the Programme's schemes in time
for the 2021-22 planting season, despite staff shortages and
challenging working conditions due to the COVID-19 pandemic. But
it has launched the Programme with some of its key components
still in development. This includes establishing a robust
framework for monitoring and evaluating the Programme, limiting
the lessons Defra can draw from the Programme's early stages.
Defra did not consider the potential benefits of taking more time
to develop its schemes before launch.
Defra forecasts that fewer trees will be planted through the
Programme in 2021-22 than the amount needed to be on a trajectory
towards its 2025 target. In January 2022, Defra estimated that
between 1,400 and 1,900 hectares of new trees would be planted in
2021-22 as part of the Programme. To be on a trajectory towards
7,500 hectares per year in 2024-25, its ambition was to plant
2,577 hectares in 2021-22.
Some of the challenges that Defra and its partners will need to
manage if they are to achieve the Programme's tree-planting
target include:
- Private landowners being discouraged from planting trees due
to uncertainty about future government funding.
- The need to secure stronger support from other government
departments so that they plant more trees on the land they
manage.
- Risks to the availability of seeds and saplings due to tree
nurseries either closing or reducing production levels.
- A shortfall in the staff needed to deliver the Programme,
including sufficient experts such as qualified foresters.
Defra expects tree-planting rates to continue to grow after 2025,
but there are few details about the government's longer-term
approach to tree-planting. This means Defra lacks a clear picture
of what the Programme needs to achieve in areas such as
increasing the supply of seeds and saplings and increasing the
capacity of the forestry sector, that will be key to long-term
expansion of tree-planting.
After 2024-25, government will mainly fund tree-planting through
the Environmental Land Management scheme (ELM). However,
uncertainty over the design of ELM means Defra has been unable to
develop detailed plans for this transition. Once within ELM,
tree-planting will be competing for funding with a wide range of
other government environmental priorities, and farmers will be
able to choose between tree-planting and other environmental
activities that may be more attractive to them or better suited
to their business.
The NAO recommends that Defra and the Forestry Commission should
urgently establish what is required for the transition of
tree-planting into ELM. They should also ensure that the
monitoring and evaluation framework they are developing for the
Programme will be able to robustly measure progress against all
its targets.
, the head of the NAO, said:
"Defra has done well to launch new schemes to support landowners
to plant trees. Yet despite its efforts, it is not expecting to
achieve the amount of new tree-planting in 2021-22 that it set
out to, and should have done more to make sure its targets were
realistic.
"There are significant challenges Defra will need to address if
it is to achieve its ambitious targets and support government's
wider Net Zero agenda. These include sustaining the interest of
landowners, ensuring there are sufficient skills on the ground
and securing the active support of other parts of government."
