Developing the Devon LNRS

Local nature recovery strategies (LNRSs) are a statutory requirement under the Environment Act 2021. Their development has been funded by Defra. They will cover the whole of England to low water mark.

LNRSs must be developed in line with legislative requirements and taking account of Defra guidance notes. The first guidance note was published in March 2023. As LNRSs are a new concept, interpretation of the guidance evolved nationally during 2023 and 2024. The critical requirement for all LNRSs is to align with the legislation. See Links to legislation and guidance at the bottom of the page.

The development of each LNRS is led by a Responsible Authority appointed by the Secretary of State.

Responsible Authorities are required to work closely with Supporting Authorities (all other local authorities, National Parks and Natural England) who must be consulted before the public consultation and again before the final publication. Responsible Authorities are also required to work in collaboration with all relevant partners, including farmers and communities. Finally, Responsible Authorities must engage with neighbouring Responsible Authorities so that LNRSs work together across county and other boundaries to create a nature recovery network that covers the whole of England.

There is no expectation that LNRSs should include targets. However, they should set priorities and actions that will help to achieve national targets.

By law, each LNRS must include a statement of biodiversity priorities and a local habitat map.

The written statement of biodiversity priorities must include:

• a description of the strategy area and its biodiversity
• a description of the opportunities for recovering or enhancing biodiversity in
  the strategy area
• the priorities for recovering or enhancing biodiversity (taking into account the
  contribution that this can also make to other environmental benefits)
• proposals as to potential measures (actions) relating to those priorities

Priorities are defined as the end results that the strategy is seeking to achieve. Measures are defined as the specific practical actions to achieve those priorities. Both priorities and measures must be expressed clearly, simply and in an accessible way.

The local habitat map must identify:

• Designated sites and statutory irreplaceable habitats (referred to in the legislation as ‘areas of particular importance for biodiversity’)
• Areas where actions identified in the LNRS are most needed (referred to in legislation and guidance as ‘mapped measures’).
• Responsible Authorities are also required to provide Defra with a map of the mapped measures without the designated sites and statutory irreplaceable habitats. This third map is known as ‘areas that could become of particular importance’ and does not have to be published as part of the LNRS.

Review of LNRSs

Once published, the statutory LNRS cannot be changed until the Secretary of State announces a review.

2.1 Habitats

• Devon County Council procured experts to identify the habitats that need to be a focus for the LNRS, including UK Priority Habitats. The experts were asked to produce profiles for each habitat and to liaise with other partners. The profiles included:
  • A description of the habitat, including any information on extent and condition.
  • Key pressures and opportunities
  • One overall priority (what we want to achieve)
  • Actions required to achieve the priority.
  • A list of key delivery partners and links to useful information.
• The list of habitats was shared and discussed with the Devon LNP and Supporting Authorities. It was also shared at the March 2025 LNP Conference. See the Collaboration section below for more information.
• See the draft Habitats pages.

2.2 Species

Defra guidance states that all LNRSs should include:

1. A ‘long list’ of species that are:
   • On the GB IUCN list of Threatened species (assigned to Vulnerable (VU), Endangered (EN) or Critically Endangered (CR) categories) – or likely to be on the list if an assessment had been done.
2. Considered to be of local conservation significance because:
   • The county is a stronghold for the species.
   • They are indicators of a healthy natural environment or contribute to wider goals e.g. beavers as ecosystem engineers
   • They are a focus of existing projects, including re-introductions.
   • We are also asked to consider Near Threatened species.
   • Note: Species where action is only needed outside England or species only recorded as vagrants or occasional visitors are excluded from the long list.
3. A ‘short list’ of species that need bespoke actions or attention due to their rarity or as Devon is a national or global stronghold. Any species that are on the ‘short list’ also need to be on the ‘long list’.

Devon County Council procured experts to follow the Defra species prioritisation guidance (see Links to legislation and guidance below) and produce a ‘long’ and ‘short’ list for their species group and discuss these with key stakeholders, including Devon species groups such as Devon Birds, Devon Mammals and the Devon Moth Group. Experts produced species profiles following the same format as for habitats (see Habitats above).

These draft lists and profiles were shared and discussed with partners. See the Collaboration section below for more information. This work resulted in two draft lists:

• Long list: Devon Species of Conservation Concern (DSoCC) 
• Short list: Devon Special Species

Devon Special Groups have been identified where there is a group of rare species for which Devon is a stronghold. These groups are largely for insects and lichens e.g. wet woodland flies and maritime lichens. However there is also a group for estuarine birds and seacliff nesting birds. Some of the groups have a Devon Special Species within them e.g. Bog Hoverfly is part of the valley mire fly group. These groups are listed in the Overview of Devon Special Species, link below.

See the Devon Species of Conservation Concern spreadsheet (long list and short listed species) and the Overview of Devon Special Species (short list). See the Species pages.

IMPORTANT: All information provided by experts has been edited and any errors or omissions are the responsibility of the editing team and not the expert.

2.3 Wider themes

All LNRSs are required to look at how restoring nature can have wider benefits relating to issues such as water quality, carbon, flooding and health and wellbeing. Natural England initially advised that the Devon LNRS did not need a section on air quality. Invasive non-native species are also included in this section of the LNRS.

• Water quality and flood control: This work was led by a consultant in close liaison with the Environment Agency and South West Water. Two workshops were held to discuss these themes. See the stakeholder engagement table (below) and the Water quality and flood risk page.
• Air quality. This page was added after the consultation and developed by the Natural England air quality lead for Devon. See the Air quality page.
• Carbon sequestration: Again, this work was led by a consultant in close liaison with Devon County Council’s Climate Team. See the stakeholder engagement table (below) and the Carbon sequestation page.
• Connecting people and nature. This work was led by the leads for the Devon LNP’s relevant groups: Naturally Healthy, Wild About Devon (community action) and the Network for Environmental Educators in Devon. It was discussed at their forums and the LNP 2025 Conference workshop. See the stakeholder engagement table (below) and the Connecting people and nature page.
• Invasive non-native species: This work was led by the LNP’s Devon Invasive Species Initiative (DISI). DISI members developed a list of priority invasive non-native species and a short list of those most in need of action (as they are here) or vigilence (to prevent them becoming established in the county). See the stakeholder engagement table (below) and the Invasive non-native species page.

3.1 Local Habitat Map

All LNRSs are required to produce a ‘local habitat map’ showing:

1. Designated sites and statutory irreplaceable habitats (referred to in the legislation as ‘areas of particular importance for biodiversity’)
2. Mapped measures. Areas where actions identified in the LNRS are most needed. These should build on existing habitats and designated sites.
3. 50% maximum area: Natural England requested that that the combined area of mapped measures and designated sites and statutory irreplaceable habitats should not cover much more than 50% of Devon.

Devon’s approach to the ‘mapped measures’: High Opportunity Areas

In the Devon LNRS ‘mapped measures’ are referred to as High Opportunity Areas. In line with the Devon LNRS Priorities, the approach to mapping follows the Lawton principles of Better habitats (wildlife-rich), Bigger habitats, More habitats and Connected habitats.

Mapping has built on previous work undertaken by the Devon Nature Recovery Network (led by DWT, DCC and DBRC). This group discussed various models such as least cost pathway and agreed that the Marxan mapping model should be explored further. The Devon LNRS team joined-up with Cornwall Council who had commissioned Exeter University to use Marxan for the Cornwall LNRS. Exeter University trained DBRC to run the model.

However, after many months of exploring Marxan it was agreed that, while it is an exciting model, it wasn’t working for the Devon LNRS. An overview of Marxan and how it could be used in Devon will be written up.

Instead, the mapping process has been led by the habitat experts, partners such as EA and FC, the soils lead for the EA and with digitising expertise from DBRC. The most appropriate approach has been taken for each habitat.

A Mapping paper sets out how each layer has been mapped with health warnings relating to the accuracy of specific layers. An overview of the approach taken is given below.

1. Better habitats (wildlife-rich)
   • Existing habitats have been mapped using the best available data that can be shown on a public viewer. Examples include Natural England’s Priority Habitat Inventory, Forestry Commission’s Natural Forest Inventory and Exeter University SWEEP data for Dartmoor. Where appropriate data sets have been merged.
   • The Mapping paper sets out the data used for existing habitats and how to submit updates to the owner of the data, for example, how to contact Natural England to update the National Priority Habitat Inventory layers.
2. Bigger, more and joined-up habitats
   • Opportunities for expanding, creating and joining-up habitats have been mapped in a variety of ways depending on the physical conditions needed by the habitat (soils, slope etc). It has involved a mix of soilscapes, slopes, landscape character, simple expansion areas, existing mapping (such as Shoreline Management Plan restoration areas) and adapting existing mapping (such as Forestry Commission’s England Woodland Creation Offer mapping). See the Mapping paper for details.

3.2 Species Opportunity Areas

• These have generally been mapped for Devon Special Species such as butterflies, birds and bats that need actions targeted across specific landscapes. The mapping has been done in liaison with a wide range of species experts, Devon recording groups and organisations (such as RSPB, Butterfly Conservation, Devon Fly Group, Devon Moth Group).
• Some areas are also mapped for less mobile species, particularly where actions need to be targeted to habitats that are not already mapped as High Opportunity Areas, such as the south Devon arable plant zone. Where useful species information already exists this has also been added e.g. Devon Dragonfly Sites of Local and National Importance.
• These areas are often large and are mapped to help guide action, particularly to the High Opportunity Areas within them.

3.3 Wider benefits

Water: EA and SWW advised that they want habitat restoration targeted to Natural Flood Management high priority catchments and Drinking water safeguard zones. They did not want more detailed mapping included.

Access to nature: Simple 500m zones have been mapped around all community centres and non-private schools to show where wildlife-rich green spaces could be most beneficial to communities. This approach was discussed and agreed with the LNP’s connecting people and nature forums.

3.4 Opportunity for nature everywhere

This layer covers the whole of Devon and ensures that there is a clear message that wherever you are in the county there is something that you can do to help restore nature.

3.5 Other useful layers

Lots of other layers that could be useful when considering land management actions including Soilscapes, Agricultural Land Classification, Protected Landscape boundaries, Historic Environment records and SSSI condition assessments.

The LNRS has been developed through extensive collaboration with a wide range of partners and a six-week public consultation in the autumn of 2025.

The public consultation was promoted via social media, in-person public drop-in sessions, webinars, and presentations at events like the Devon Association of Local Councils Conference and Devon Resilience Forum, as well as through numerous professional groups such as those hosted by the Devon Local Nature Partnership. Comments were gathered primarily through online questionnaires.

The LNRS is currently being edited to take on board comments. A process will be set up to allow further comments to be shared over the next few years. Changes can be made to non-statutory elements of the LNRS but any changes to the statutory sections cannot be made until the first review (year of review to be confirmed by Defra). Clarity on these sections and the process will be given before the LNRS is published.

For collaboration to date see the Stakeholder Engagement Summary table. 

• The LNRS will be updated following public consultation through October.
• We are addressing accessibility issues. Our Accessibility Statement is here.
• The LNRS will be finalised in December 2025 and sent to the Supporting Authorities for final sign off (they are legally required to have 28 days) before final publication.
• The LNRS will replace the Devon Biodiversity Action Plan (archived), the Strategic Nature Areas and the current lists of Devon Species of Conservation Concern and Devon Special Species.
• Defra is providing funding to help promote and monitor delivery of the LNRS.
• Once published, the statutory LNRS cannot be changed until the Secretary of State announces a review. Defra has not yet shared details as to how Responsible Authorities should monitor or review the LNRSs.

The Environment (Local Nature Recovery Strategies) (Procedure) Regulations 2023

Statutory Guidance.pdf

Species Recovery within Local Nature Recovery Strategies v.1 August 2023.pdf

Data Standards Advice for LNRS Responsible Authorities (1).pdf

Identifying and agreeing priorities and potential measures within LNRS.pdf

Mapping potential measures in Local Nature Recovery Strategies advice.pdf

Regs and guidance summary.pdf