Chapter 2
The Changing Face of the Inland WaterwaysWhat are the inland waterways?
2.1The inland waterways are extraordinarily diverse. They include the canals - narrow, broad and ship; the rivers which have been made navigable; the Norfolk and Suffolk Broads; and the navigable drains of the Fens. They also include the naturally navigable parts of rivers such as the Thames, Severn and Trent, as well as many smaller rivers around the country. Each type of waterway has its own special characteristics and historical background.
A new role for the waterways
2.2From the Middle Ages onwards, natural rivers were made navigable to provide arteries for trade. But it was the construction of the canals between the mid 18th and the early 19th Centuries which enabled the waterways to play a leading role in serving the country's transport needs during the Industrial Revolution.
2.3The secret of the waterways' success was their ability to move goods cheaply in bulk. However, they found it difficult to compete with the railways and lost much of their traffic as the railway network grew. While leisure traffic developed on the Broads and some rivers, many canals became unviable. Some were taken over by railway companies and often allowed to decline: others, particularly in rural areas, were abandoned or simply fell into disuse. The decline accelerated after the First World War as modern road transport developed. Even so, some waterways continued to handle considerable quantities of freight, making a valuable contribution to the Second World War effort.
2.4The waterways were still thought of as primarily a freight transport system when, in 1948, about half the system was nationalised and brought under the control of the British Transport Commission, the forerunner of British Waterways. However, with the Government giving priority to modernising the railways and improving the road network, freight carrying continued to decline in the face of competition from more modern and flexible forms of transport.
2.5The decline in post-War freight carrying on the waterways was matched by efforts by dedicated enthusiasts to save the system from decay and closure, and to bring disused waterways back into use. However, their message that the waterways had great historical value and enormous potential for leisure was slow to be accepted.
2.6The waterways' future was still in doubt in the mid 1960s when the Government considered the way ahead for the nationalised system in the light of a detailed report prepared by the newly-created British Waterways under the term of the Transport Act 1962.
2.7The Government's final conclusions published in the 1967 White Paper British Waterways: Recreation and Amenity [5] reflected the decline in freight traffic and the increasing value placed on amenity and recreational use. The White Paper envisaged that the bulk of the system should be kept for pleasure cruising, and that British Waterways should be given a new remit allowing it to develop its waterways' potential for leisure. These proposals were put into effect by the Transport Act 1968.
2.8The 1968 Transport Act marked a turning point in the history of the waterways by recognising for the first time the recreational purpose of the nationalised waterways. In the 30 years since it was passed, this new role has become a reality, not just for British Waterways' canals and rivers but for the waterways as a whole.
2.9Today, the waterways provide not only a major leisure and recreational resource: they act as a catalyst for urban and rural regeneration; they form an important part of our heritage; and they make a valuable contribution to the environment. After so many years of decline, the system is now undergoing a renaissance as more derelict waterways are restored, greater resources are devoted to maintaining the historic existing system, and increased effort is put into exploiting the wide range of social, economic and environmental benefits the waterways offer.
The system today
2.10There are approximately 5,090 kms (3,160 miles) of fully navigable inland waterways in England and Wales [6] about 445 kms of which are tidal. A map is at Appendix 5. British Waterways is responsible for about 2,615 kms, about 75% of which comprises canals. The Environment Agency is responsible for about 875 kms, nearly all navigable rivers. The Broads Authority is responsible for 160 kms. Of the remaining 1,440 kms, 1335 kms are managed by a wide range of other bodies and 105 kms have no management authority.
2.11In addition there are about 890 kms of managed unnavigable waterways, about 480 kms of which are the responsibility of the three largest bodies (British Waterways - 320 km, Environment Agency - 120 km and Broads Authority - 40 km). There are a further 2,095 kms of abandoned unnavigable waterways. Many unnavigable and abandoned waterways are being restored to full navigation.
Uses and benefits
Leisure and recreation
2.12Almost all the waterways system is used for leisure. This includes boating of all kinds; angling; sport; and informal recreation. Towpaths and other waterside paths provide local and long distance walking and cycle routes, and access to the countryside.
Freight
2.13The inland waterways still carry some freight but only a small amount in national terms. Most freight traffic is found on the tidal inland waterways. On the non-tidal system, freight carrying survives on only a few waterways, mainly river navigations managed by British Waterways; and the Manchester Ship Canal.
Water supply and drainage
2.14The waterways provide both a source of water and a means of supply. They also play a significant land drainage role. Many canals have become an integral part of the land drainage system and some take storm-water discharges from roads.
Heritage and the natural environment
2.15The waterways system is rich in historic buildings and examples of innovative civil engineering. It is also an important environmental and ecological resource providing vital wildlife corridors and habitats for several species listed as national priorities under the UK Biodiversity Action Plan.
Regeneration
2.16The waterways provide an important catalyst for urban and rural regeneration. The improvement and restoration of waterways is improving the environment and bringing life back to deprived areas.
Innovation
2.17The waterways are increasingly being used in innovative ways. Towpaths are being used as routes for telecommunications cables, and proposals for water transfer using canals are being developed.
Management
2.18The inland waterways are managed by more than 30 navigation authorities, some public bodies, others private. Each has its own rationale, characteristics and legislative regime [7]. For many bodies, navigation is not the prime concern.
2.19The difference between the navigation authorities is illustrated by the three largest.
- British Waterways is a public corporation which runs its affairs on a commercial basis consistent with its statutory powers and obligations for navigation and the environment; and its objectives agreed by the Government. It is expected to promote the use of its waterways for leisure and recreation, tourism, regeneration, and transport while also conserving their built and natural heritage.
- the Environment Agency is primarily an environmental regulatory body which manages its waterways as an integral part of its other water management functions. It has a duty generally to promote the recreational use of waterways and an obligation to operate those for which it is responsible in an efficient and business-like manner.
- the Broads Authority manages its waterspace together with surrounding land on national park lines, combining its responsibility for navigation with conservation and recreation. It has a duty to manage the Broads for three specific and equally important purposes - to conserve and enhance the Broads' natural beauty; to promote their enjoyment by the public; and to protect navigation interests.
2.20The identity of the navigation authority responsible for a particular waterway is often a matter of historical accident. British Waterways' system consists largely of canals and river navigations which were nationalised in 1948, many as part of the railway companies which had earlier acquired them. The Environment Agency's navigations were passed to it from the former National Rivers Authority which in turn had inherited them from the former water authorities when the industry was privatised in 1989: previously most were controlled by river boards or conservancies mainly concerned with land drainage. The Broads Authority was made the navigation authority for the Norfolk and Suffolk Broads when it was created in 1988.
2.21Other waterways have stayed in the hands of, or have passed into the control of, a wide variety of bodies. These include property development companies (the Manchester Ship Canal); drainage commissioners (the Middle Level Navigation); the National Trust (the River Wey Navigations); port authorities (the tidal Thames); charitable trusts (the Upper Avon Navigation); local authorities (the Basingstoke Canal); and even original canal companies (the Chelmer & Blackwater Navigation).
2.22The position is not static. For example, British Waterways has taken or is taking over a number of waterways including the south Stratford-upon-Avon Canal, the Yorkshire Ouse, the Linton Lock Navigation, and the Tees Navigation. The Environment Agency has powers to take over the management of waterways without an active navigation authority, and to make byelaws for "unadopted" waterways. It has applied to be the navigation authority for River Wye.>
2.23 Each navigation authority deals with the day to day operation and management of its waterways according to the statutory rights of navigation and other governing legislation. The methods used and standards applied vary from authority to authority.
2.24British Waterways must observe the requirements of the Transport Act 1968 which divides its waterways into three categories, each with its own maintenance standard:
- Commercial waterways, which must be kept in a condition suitable for use by commercial freight-carrying vessels;
- Cruising waterways, which must be kept in a condition suitable for use by cruising craft, that is vessels constructed or adapted for the carriage of passengers and driven by mechanical power; and
- the Remainder, which must be dealt with in the most economical manner possible, consistent in the case of waterways which are retained with the requirements of public health and the preservation of amenity and safety.
2.25Other navigation authorities' standards are defined differently, for example by reference to the minimum depth of water to be retained throughout the system or at a particular point, rather than by the main type of user. In some cases there may be no statutory requirement to maintain standards. The Upper Avon Navigation Trust is such a case but it applies the standards of the original navigation before it became derelict.
Finance
2.26The waterways, particularly the canals, involve heavy liabilities and are expensive to maintain. Subject to the legislation in force, many people who use the waterways can be charged but others in the wider community who enjoy their benefits do not pay directly towards the cost of their upkeep.
2.27Income for the upkeep of the waterways comes from a variety of sources. Depending on the navigation authority involved these include craft licences, tolls, mooring charges, drainage rates, angling charges or rents, and water sales. The development of waterside land and property, where available, can bring in significant additional proceeds. Grants from Europe, Government, regeneration agencies and lottery bodies; and contributions from local authorities and other bodies towards specific projects also help. British Waterways augments its income by exploiting its non-operational estate, feeding the proceeds back into waterway upkeep, improved facilities and development projects.
2.28British Waterways and the Environment Agency both receive Government grant towards the cost of meeting their navigation obligations, currently about £59 million and £3 million per annum respectively. The Broads Authority receives grant aid from central and local government for its conservation work and recreational management but finances its navigation responsibilities entirely from tolls totalling about £1 million a year.
7]. For many bodies, navigation is not the prime concern.
2.19The difference between the navigation authorities is illustrated by the three largest.
- British Waterways is a public corporation which runs its affairs on a commercial basis consistent with its statutory powers and obligations for navigation and the environment; and its objectives agreed by the Government. It is expected to promote the use of its waterways for leisure and recreation, tourism, regeneration, and transport while also conserving their built and natural heritage.
- the Environment Agency is primarily an environmental regulatory body which manages its waterways as an integral part of its other water management functions. It has a duty generally to promote the recreational use of waterways and an obligation to operate those for which it is responsible in an efficient and business-like manner.
- the Broads Authority manages its waterspace together with surrounding land on national park lines, combining its responsibility for navigation with conservation and recreation. It has a duty to manage the Broads for three specific and equally important purposes - to conserve and enhance the Broads' natural beauty; to promote their enjoyment by the public; and to protect navigation interests.
2.20The identity of the navigation authority responsible for a particular waterway is often a matter of historical accident. British Waterways' system consists largely of canals and river navigations which were nationalised in 1948, many as part of the railway companies which had earlier acquired them. The Environment Agency's navigations were passed to it from the former National Rivers Authority which in turn had inherited them from the former water authorities when the industry was privatised in 1989: previously most were controlled by river boards or conservancies mainly concerned with land drainage. The Broads Authority was made the navigation authority for the Norfolk and Suffolk Broads when it was created in 1988.
2.21Other waterways have stayed in the hands of, or have passed into the control of, a wide variety of bodies. These include property development companies (the Manchester Ship Canal); drainage commissioners (the Middle Level Navigation); the National Trust (the River Wey Navigations); port authorities (the tidal Thames); charitable trusts (the Upper Avon Navigation); local authorities (the Basingstoke Canal); and even original canal companies (the Chelmer & Blackwater Navigation).
2.22The position is not static. For example, British Waterways has taken or is taking over a number of waterways including the south Stratford-upon-Avon Canal, the Yorkshire Ouse, the Linton Lock Navigation, and the Tees Navigation. The Environment Agency has powers to take over the management of waterways without an active navigation authority, and to make byelaws for "unadopted" waterways. It has applied to be the navigation authority for River Wye.>2.29The Department of the Environment, Transport and the Regions (DETR) oversees the activities of British Waterways in England and Wales [8], and the Environment Agency, setting grant levels according to planned expenditure and forecasts of income likely to be raised from other sources. DETR satisfies itself that the organisations perform efficiently and meet their waterway responsibilities and Government policies in the most cost-effective way. The Department does not control the other navigation authorities in the same way because they do not receive Government grant for their more limited navigation responsibilities.
5 British Waterways: Recreation and Amenity: Cmnd. 3401 HMSO September 1967
6 excluding the navigable lakes of the Lake District
7 some bodies managing waterways are not statutory navigation authorities
8 responsibility for British Waterways' activities in Scotland lies with the Scottish Executive[ Previous ] [ Contents ] [ Next ]
Published 27 June 2000
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