Insights on Local Government Delivery of Nature Recovery

Local authorities who are taking more action for nature recovery do not always have more resources and capacity, but use what they have more effectively, joining up activity and collaborating better. Key staff with drive and enthusiasm can make a real impact – efficacy is not directly correlated to job role and grade. These people/teams need to be adequately supported to maintain energy both internally and externally.

Partnerships are key to building capacity, collaboration and support. You can see it as a system: no single organisation needs to possess all the skills and knowledge – supporting local partnerships builds relationships, and challenges isolation and staff/project burnout.

Most local authorities we spoke to felt that they lack the evidence they need to demonstrate the importance of taking action for nature recovery: this is not necessarily about more data, but having information presented in a way that enables local authority officers to use it easily, including to communicate with others in their organisation, and to meet their wider priorities.

High-level support for positive action on nature recovery was deemed important for most (but not all) local authorities, whether driven by the council’s corporate strategy, declaration of a climate and/or nature emergency, members and/or senior management. However, nature being embedded in a corporate plan does not drive activity by itself, as these strategies are too high-level. The importance of the corporate plan as a hook to support action, alongside inclusion of nature in other strategies and plans signed off by members, was flagged by many. 

Senior managers are grappling with major social issues. We need to be realistic about where they can be nudged to, starting with showing how nature doesn’t need to be an add-on, but is integral to their priorities, and challenging the nature versus growth mindset.

Members, especially those who identify community interest in nature, are an untapped resource. The approach to Net Zero, e.g. through UK100, can model ways of engaging and building their interest. A champion can drive significant action. This audience is likely to be easier to engage than senior managers, though we need to bear in mind their capacity to engage through change and when some will no longer have a role as their local authority disappears. 

The relationship with Natural England matters – areas with good relationships feel they are better at delivering for nature. Time spent on informal conversations, e.g. pre-planning applications and in shared networks, can save time and difficulties further along the process.

From our research, two local authorities that on the surface are very similar. However, one is successfully delivering for nature, and the other is struggling. This can be explained in part when we look at how they are functioning in four key areas. All local authorities reside somewhere on this weak-to-good continuum.

A ‘local authority’ is not one thing; there are huge differences around how each local authority works and how/whether they engage in/do nature recovery.                          

Local authorities operate and respond to both their local context – what is important to the communities in their area - as well as a national context – delivering national policy and priorities at a local level. 

Following the publication of the Devolution White Paper in December 2024, huge reforms are reshaping local government through Local Government Reorganisation and devolution. This is set against the background of pre-existing huge resource challenges and new duties and ‘burdens’ relating to planning and nature, from the Environment Act and the new National Planning Policy Framework (NPPF) to new reforms initiated by the Government, including local government reorganisation and the Planning and Infrastructure Bill. 

Local authorities have a challenge of managing all this change. However, could it also be a key opportunity for a ‘reset and renewal’ of action for nature recovery and Natural England’s collaboration with local authorities. It became apparent in the research many of the frustrations and concerns over delivery for nature are shared between both parties, as are the resource challenges. Our research shows in areas where there is greater communication, collaboration and partnership working there appears to be greater action and buy in for nature recovery. 

Given the research findings that challenge a ‘one size fits all’ approach for local government the key recommendation presented to the Natural England Urban Landscape Steering Group on the 7^th of April 2025 was for a ‘placed based approach’. This aligns with Natural England’s strategic direction 2025-2030 they have committed to  ‘Strong local and regional relationships will ensure we continue to improve Nature for the benefit of all, through place-based delivery. We are committed to working together to identify and implement the best ways to make these changes.’ 

Coincidentally the ‘Corry Review’ published on the same day recommended  ‘regulators to use constrained discretion to deliver desired outcomes, considering place-based dynamics.’  

An adequate evidence base on the state of nature and how communities can benefit from nature in their area is required if local authorities are to properly understand and communicate the need to take action for nature. More than half of those surveyed felt there was not adequate evidence on the state of nature in their area, though most felt they did have some information on the benefits for communities.

It is important in this context to understand what data and evidence is. Data is information that is gathered such as the number of butterflies in a butterfly transect or the type of recreational activity undertaken at a specific site in a given time period. Evidence draws on a body of data to examine a claim or hypothesis such as ‘recreational disturbance leads to fewer breeding birds’ or ‘ X land management practice leads to a decline in plant diversity’. When developing the ‘case’ for nature recovery local authorities refer to building the evidence to prove that action needs to be taken.

Delving into this in the interviews, the following points came out:

• There is often a lack of baseline evidence to measure progress and monitor over time. While there may be a lot of data on the natural environment held by the local environmental records centre, data sets are not comparable.
• Where data are available, it was often felt that it did not meet the local authority’s need, for example, in some places, the evidence base is not fine-grained enough to help site-based decision-making, whereas elsewhere it is not strategic enough to compare across the whole area.
• It was mostly felt that the Local Nature Recovery Strategy (LNRS) would not address this need, for example, in some places, the LNRS just used existing best available data, which isn’t good enough, whilst it does not capture the state of nature in districts.
• Some local authorities were taking action or involved in partnership projects to address this issue, but there is no coherent approach to how this is being done or funding pot to enable regularly updated baseline datasets to be maintained.

Responses from local authorities on the local evidence for nature

The lack of data has long been highlighted as a major hindrance to building a convincing evidence base necessary to secure adequate support, commitment and resources to take action for nature. How does this seemingly intractable situation get resolved at the pace necessary for nature recovery? Opportunities do arise all the time through project work to gather more data. 

Since the Environment Act there are specific opportunities for data generation and evidence gathering through mechanisms such as Biodiversity Net Gain (BNG), Nutrient Neutrality and Local Nature Recovery Strategies. New national mechanisms are being launched in 2025 through Protected Site Strategies, Nature Restoration Fund with Environmental Delivery Plans.

Encouraging as this is outside of these opportunities what can be done? How can ways be employed to use what data there is more convincingly through, aggregating and rationalising data. How can the means that could further assist local authorities with their local data and evidence base be helped such as supporting/funding local environmental records centres and partnerships. Are there new opportunities for local area support e.g. LNRS, Local Nature Partnerships, Strategic Authorities.

We came across examples of where the situation was better or there were proposals in train to address these issues, generally through individual projects to collate and update evidence bases, but they were the exception rather than the norm.

Local authorities have a variety of legislative and policy requirements to act for nature. Many of these do not have funding attached to them, or that funding is short-term and insecure that said funding from Defra for biodiversity net gain and Local Nature Recovery Strategies has been very welcomed. As well as the range of statutory duties local authorities have beyond nature, just to deliver these, let alone act above and beyond, it is essential to have the desire within the organisation, and a culture which understands how national requirements translate into local policy and priorities. 

Each local authority sits somewhere on the continuum of action for nature recovery. Even when authorities have the desire and resource to employ dedicated staff for example, these roles are often viewed as specialists who take on the responsibility for the authority for the ’green role’ rather than the organisation understanding that nature needs to be embedded across their functions and activities. 

How can the desire to act for nature be nurtured and grown in local authorities? The  Local Authority Nature Recovery Toolkit | Local Government Association goes some way to support the growth of this ‘desire’. It was designed to help local authorities take full advantage of the opportunities for turning their statutory ‘must do’ requirements for nature and the environment into opportunities for the whole council to support delivery of their strategic and corporate priorities including on health, air quality, climate change and adaptation. In essence getting wider buy-in for nature recovery across the local authority.

Between November 2023 and March 2024, seven workshops were held to develop the Toolkit with authorities. Three ‘Nature Recovery Toolkit Roadshow’ sessions were run with 50 local authorities attending. 

Roles in LPAs championing nature are still dominated by specialists, but the feeling of 65% of local authorities in our research sample was that staff beyond these roles do have some understanding of the importance of action for nature recovery.

Local authority councillors are elected members of their local council. Councillors serve and represent the community in many ways. They can play a crucial role in supporting local authorities’ action for nature recovery. 

274 members signed up to PAS’s  two on-line events for members in April 2025: Addressing the Nature Emergency for Local Planning Authority Councillors | Local Government Association

When asked why members are important in the response to the nature emergency, as the word cloud below shows ‘local knowledge’ came up top. Members are an invaluable asset in delivering a ‘placed based’ approach. 

The key hooks for members to engage in nature recovery were identified by officers in the research. Prior work as part of the PAS Nature Recovery project How can Nature Help showed similar incentives and has been incorporated into the Nature Recovery Toolkit. 

The most effective hooks clearly link into the wider local authority remit and priorities for place, i.e. demonstrate the wider benefits nature has to public health, the local economy and placemaking. These hooks also help challenge the narrative of nature being seen as a separate function or nature versus growth. 

Climate and net zero is a key hook for members and senior officers alike – over 300 local authorities have declared a climate emergency, and nearly two thirds of councils in England are aiming to be carbon neutral 20 years before the national target. 

Centralised toolkits and resources can go some way but to make the case locally it must be tailored to the area – this takes time, resources, and capacity within local authorities to build the case all of which are often in short supply as our research shows.

The key ‘hooks’ for engaging members on nature recovery identified in the research.

What does good look like according to local authorities?

Research findings showing the conditions within a local authority that enable member support for nature recovery.

Local authority senior management, as referred to here, is the senior leadership team. The structure will differ across different local authorities, but tends to be made up of Corporate Directors and the Chief Executive. Senior management may also include Heads of Service and Assistant Directors, who sit at the next level down in the structure.

What does good look like according to local authorities?

Research findings showing the conditions within a local authority that enable senior support for nature recovery.

Corporate Plan and Senior Officer buy-in   

The Corporate Plan: ‘Most important thing is that it’s there to make sure it has a budget allocated to it. It has broad areas that set the context for action - this corporate steer is vital. Gives confidence to put in a proposal/business case.’ This doesn't happen everywhere - in some LPAs, it's just words and ‘it doesn't deal with conflicts.’ The point being that the Corporate Plan is high-level, broad statements – useful to hook policy and actions onto, but not a guarantee specific commitment will follow. So, on balance, it is better to have something than nothing in the plan.

Key hooks for engaging senior management with nature recovery identified by interviewees.

Climate & nature emergency responses

There is an opportunity to link nature more overtly to climate action and net zero that has greater leverage, e.g. over 300 councils have declared a climate emergency, whereas according to the Woodland Trust, only 92 have declared a nature emergency.

Can Natural England help support senior-level buy-in? Despite high levels of public awareness, understanding and support for (nature) conservation, this concern is arguably not translated adequately into corporate priorities and action by enough local authorities. As nature has so often been siloed, it’s all too easy for local authority senior management to adopt the ‘other people and organisations are taking care of this,’ be it eNGOs (environmental non-governmental organisations) or Natural England. 

For Natural England a ‘placed based approach’ could be viewed as a blend of helping to build the capacity of the local ‘system’ that local authorities are a part of through Local Nature Recovery Strategies and Local Nature Partnerships that will be tailored to suit local circumstances for nature, whilst also proving themselves ‘useful’ by providing excellent direct services to local authorities.

In January 2024, the Local Government Association (LGA) conducted a Sustainability Survey 2024 of all councils to identify the key issues they are facing in delivering sustainability in their local area, as well as the progress being made. A total of 96 responses were received from individual local authorities, resulting in a final response rate of 30 per cent.

In terms of wildlife protection and biodiversity project areas, 34 per cent of respondents said they had previously delivered these in the last 10 years. Sixty-four per cent of respondents said they were delivering it currently. Forty-two per cent of respondents said they planned to deliver it in the next two years, with a further 25 per cent planning to deliver it in the longer term. Four per cent were unsure. 

Lack of capacity and capability was highlighted as one of the main barriers to action by nearly all the local authorities we spoke to, and even where action for nature recovery was taking place, there was a feeling that more could be done, especially in meeting the NERC Biodiversity Duty. The issues with capacity and capability are very much linked to others outlined in our findings, in particular, the culture and priorities of the local authority. However, it is important to recognise that the officers who do hold these posts are usually highly motivated, informed and eager to make a real impact in their areas for nature.

There is a significant variety between local authorities on whether they have staff working directly for nature, for example, a third have staff who are members of the Association of Local Government Ecologists. Some authorities have other roles relating to nature, such as Biodiversity Officers and Natural Capital Coordinators; many just have roles relating to the wider environment or climate change. Some will have blended roles such as planning policy and green infrastructure.

In addition, those with their own estates will usually have ‘traditional’ countryside and parks and open spaces roles. If there are multiple roles in one authority, e.g. an Ecologist and Countryside Manager, they often sit within different departments. These roles also sit at different levels of seniority. Typically, they are seen as ‘specialists’ and therefore middle tier and are reliant for strategic influence on a champion officer higher up in the authority.

search findings showing the conditions within a local authority that enable the best use of capability and capacity

Local authorities will link a role where possible to a statutory function such as Nutrient Neutrality, Biodiversity Net Gain (BNG) or Local Nature Recovery Strategies (LNRS) - where there has been funding from MHCLG or Defra (albeit it is short-term). In many cases, especially most smaller districts and unitary authorities (including metropolitan boroughs), there will be no specialist roles focusing on the natural environment. In these places, the nature recovery agenda will be either allocated to an officer or officers with an interest, for example, in planning policy, or left to whoever happens to pick it up at the time. 

Over the decades, following funding and government policy, there has been a cycle of expansion and contraction in local government and no less so for nature and environment-based roles. Although there has been a recent expansion phase impacting these roles, due to nutrient neutrality, BNG and LNRS, some authorities are still rebounding from the last ‘contraction.’ This means some authorities don’t have in-house expertise to take advantage of funding and project opportunities – or even to be aware that such opportunities even exist. As planning is a statutory function with nature and place making, planning authorities will at least have even if they don’t have specific roles and expertise.

‘No one party/organisation must have the answers/be the expert - it is a systems approach with the potential for each party to recognise the unique skills, contacts, expertise, understanding to the table - you know, probably my number one recommendation would be to support partnerships.’

Partnerships were flagged by the majority of local authorities as being a key mechanism to help them deliver for nature recovery, alongside being a way to positively engage with Natural England. In particular, Local Nature Partnerships (LNPs) were identified by a substantial number of the local authorities we surveyed as being key to enabling them to deliver for nature recovery and in aiding with strategic join-up. LNPs performed a range of functions.

In some places, LNPs are working less well and inconsistently. Like much in the nature/environment sector, the national inconsistency is largely due to capability and capacity issues often linked to funding challenges, even for core staff. Despite the clear mutual value of partnership working, some LNPs do not have local authorities as core members. In other places, e.g. London, there is no LNP, but partnerships have been formed in diverse ways to perform similar functions. It was also highlighted that LNPs are great at the strategic level, but do not have the capacity to help with day-to-day resourcing issues. Various other partnerships were highlighted as important, and the functionality of these varied from place to place. This affirms the ‘place-based approach’ Key partners include:

• Other Defra bodies - Environment Agency: especially on flooding and nature-based solutions & 'the good thing is that they fund maintenance too.' Forestry Commission
• The Wildlife Trusts
• Local green spaces groups, e.g. ‘Friends of Ropner Park’ and forums
• Local specialist interest groups, e.g. local bird/bat/badger/bee, etc.
• Catchment Partnerships
• Other eNGOs, e.g. RSPB, National Trust,
• Universities
• Water Companies
• FWAG Farming and Wildlife Advisory Group
• Combined Authorities: ‘support a lot of nature work and also part-fund posts.’
• National Park Authorities (they are also planning authorities) & National Landscapes
• Coastal and marine organisations (MMO, IFCAs, eNGOs etc) where appropriate.

Natural England’s relationship with local authorities is key to enabling them to act effectively for nature recovery. More than half of local authorities felt they had a good or excellent relationship with the local authorities. We also interviewed key Natural England staff working with the planning function of local authorities.

The range of quality of relationship across the weak to good continuum is, for a variety of reasons, both on the part of Natural England and the local authority. With 12 area teams interacting with 317 local authorities, this is to be expected. Half of the Natural England area teams have 25 to 38 councils in their areas; all cover large geographical areas. Natural England also has national programmes and support for local authorities to draw on.

There is reportedly a range of experiences local authorities have with their area teams, from direct relationships between individuals to no contact at all. Some area teams help to connect national programmes with the local area; however, in at least one example, a national initiative driven by Natural England has just landed in an area without any prior engagement with the local authority ecologist.

Natural England has potentially multiple ways they engage with local authorities, mostly through their corresponding area team, but there are also national programmes of functions too.

Potentially, there could be multiple Natural England representatives with different agendas approaching a local authority, which invariable will be the same person within the authority. 

Our research shows this can sometimes come across as a lack of consistency from Natural England and, in the worst cases, conflicting advice. 

However, in places where partnerships such as the LNPs that have both the local authority and Natural England area team representative in this inconsistent approach doesn’t appear. Instead, the Natural England representative acts as a conduit between the area team and national team specialists, giving both the local authority and Natural England opportunities for joined-up collaborative working.

A senior officer from Natural England’s National Urban Landscapes Steering Group commented, ‘As an organisation, we need to approach local authorities with humility.’ Just as the local authority members identified, they have the local knowledge and understanding. Natural England can bring invaluable information and expertise, and together, this gives a great foundation for nature recovery that will be appropriate and ‘owned’ by the place.

Again, this points to a ‘place-based approach’ to nature recovery as we have explored in these findings.

This is not to say that Natural England’s strategic approach to planning & planning case work, as laid out in the letter to local authorities in August 2024, Improving our service to Local Planning Authorities for nature, people, and climate, cannot work alongside a place-based approach. As always, it’s not an either-or choice. How this blended approach could work for each area and for the new Strategic Authorities can be explored and developed in the next stage of the PAS Nature Recovery Project.

In many ways, Natural England as an organisation has parallels with local government. Both are in a period of significant challenge and change, rather like nature itself. As the government body for nature, there are inherent challenges in dealing with the impact of human activities at scale over many generations in a highly populated island with multiple demands on land use.

This environmental impact from development is complex and not easily resolved. The current approach evolved over decades, is of environmental protection – think ‘nature conservation.’ These focus on neutrality or not getting worse, leaving limited resources for enhancement, nature recovery or nature-based solutions. Achieving this ‘at-scale’ is a further challenge, though new legislated mechanisms such as Protected Site Strategies and the Nature Restoration Fund open up new opportunities for larger-scale recovery.

As local authorities know, when resources allow for the creation of new green spaces as part of development, then the issues with ongoing management follow and have still not been resolved and are often viewed as a liability.

If nature is to be restored, it is vital that this is a shared journey. There is a sense that the system has to evolve and adapt. With this awareness, Natural England is making efforts to examine its role and approach, including a recent stakeholder workshop.

The feedback from our research reflected much of the awareness Natural England currently has about its planning casework. There were key areas on the ‘weak/not functioning’ end of the continuum that were identified, which could help inform the efforts to evolve and adapt. These include:

• more consistency in both messaging and approach received from Natural England and the wider government.
• continuity of Natural England expertise and skills to ensure advice is based on how things can actually be delivered, not always generic standing advice.
• ensure information is shared to LPAs from both regional and national teams, e.g. strategic approaches to mitigation, site history, etc.

On the good to thriving end of the continuum, however, local authorities highlighted a relationship with Natural England where they were engaged and proactive with trusted stable organisational relationships offering continuity, collaboration and reciprocity, enabling local authorities to have the confidence to go further. 

NATURAL ENGLAND'S WORKING RELATIONSHIP WITH LOCAL AUTHORITIES - What does good look like according to local authorities

Now more than ever, we need to join up and work together for nature. Over recent years, we have seen how eNGOs have galvanised their efforts and messaging. How can local government more effectively join together and, perhaps just as importantly, join up with other networks in a system that values nature and supports and resources the people and systems to work for its recovery? Could this be a ‘place-based approach’ and what could that look like now as we face a joint climate and nature emergency?

Local authorities, as part of the system, along with their local partner organisations, their networks and ability to reach out to communities know and understand their areas intimately – they are the local ‘experts’, but they need policy, regulatory and technical support as well as capability, capacity, and resources. Biodiversity Net Gain, Nutrient Neutrality and especially Local Nature Recovery Strategies are steps to developing a place-based approach; however, to maintain momentum, consistent support is needed. Local government reorganisation and devolution could well be the opportunity to join-up, support and resource the people and systems to work for a more effective nature recovery.

Main insights covered in the Executive Summary 

• Not just more resources more effectively, joining-up activity and collaborating better.
• Partnerships are key to building capacity, collaboration, and support.
• High-level support for positive action on nature recovery was deemed important.
• Be realistic about where they (local authorities) can be nudged to.
• Members, especially those who identify community interest in nature, are an untapped resource.
• The relationship with Natural England matters.
• Lots of good practice and examples of local authorities taking significant action.

Table of recommendations based on the research findings and insights. To form the basis of the project work plan.

From August to November 2022, we held conversations with 20 early adopter local authorities to understand their thinking about the new system for delivering nature recovery, including purpose, process, opportunities, challenges and support required.

These conversations were synthesised and summarised into an initial emerging insights snapshot report. This report was shared at two roundtable events on 11th and 17th November, and constructive criticism was encouraged. 

The findings from the report are available to download as a PDF here.

The Report is also available to download:

Nature Recovery Emerging Insights Snapshot - In conversation with early adopter local authorities | Local Government Association PAS Research from 2022

UK100 launches new Powers in Place: Nature report | UK100; 

Climate change resources | Local Government Association; 

Wilder By Design

Number of local authority employees, full time (headcount) in England LGA 

https://www.ids.ac.uk/projects/social-accountability-for-place-based-nature-recovery/

National Parks England

NPPF Webinars Jan to Mar 2025 | Local Government Association

Environmental Improvement Plan rapid review - GOV.UK

LGA Sustainability Survey 2024 

Public awareness, understanding and support for conservation - GOV.UK