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Select Committee on Environment, Transport and Regional Affairs Minutes of Evidence


Memorandum by the National Society of Allotment and Leisure Gardeners Ltd (AL 22)

THE FUTURE FOR ALLOTMENTS

1. HISTORY

  The word "allotment" originates in land being allotted to an individual under an enclosure award. The first recorded enclosure was about 1654-1658, but the period from 1760 to 1818 saw 3,500 Enclosure Acts of Parliament. In the first half of the 19th century some attempt was made to provide allotments in the Enclosure Acts, but it was not until the General Enclosure Act of 1845 that a determined effort was seriously undertaken.

That Act required that the Commissioners should make provision for the landless poor in the form of "field gardens" limited to a quarter of an acre.

  By 1850 it had become widely recognised that allotments were parcels of land to be cultivated by a labourer, in his spare time, and for the provision of food for himself and his dependants. At this stage allotments were virtually confined to rural areas.

  The urban allotment development was beginning to emerge, as evidenced by the "guinea gardens" brought into use on the outskirts of Birmingham as early as the second half of the eighteenth century. These however gradually disappeared as the outward spread of the city led to them being closed for building purposes.

  Between 1850 and 1900 other parcels of land were developed in Birmingham and received the name of allotments. The value to health for people in sedentary occupations, living in houses often with no gardens of their own, was also coming to be recognised in the urban environment.

  The first statutes establishing allotments were aimed mainly at provision from charitable sources, and it was not until the Act of 1908, which consolidated all previous legislation, that for the first time local councils had a statutory duty to provide. This Act was to become the basis of allotment law.

  The pressure for urban allotment provision increased as a result of the spread of closely packed housing development almost entirely without gardens, but intensified with the outbreak of war in 1914. During the period 1914-1918, the number of allotments rose from some 600,000 to 1.5 million.

  At the end of the War, the national demand for allotments diminished and many thousands of acres, temporarily requisitioned, were returned to their original use. However, the demand for allotments from returning ex-servicemen continued unabated particularly due to the economic conditions and the Land Settlement facilities Act of 1919 was aimed at helping them. This Act finally deleted reference to "labouring poor", and made it clear that all members of the community were eligible to take up allotment gardening.

  Two separate and countervailing pressures were now being exerted. On the one hand, allotment holders were becoming increasingly worried by their lack of any secure tenancy agreement, and on the other, the owners of requisitioned land were pressing for its return. The Government therefore issued the Allotments Act 1922 which introduced an "allotment garden" limited in size to .25 acre and protected tenants by laying down periods of notice.

  The next stage was the Allotments Act of 1925, which required local authorities to recognise the need for allotments in any town planning development, but its main provision was to establish the "Statutory" allotment by enacting that any piece of ground purchased by a local authority for allotment purposes could not be converted to other purposes without Ministerial permission. This was to become, and has continued to be a corner-stone of current allotment legislation.

  A further significant step was the passing of the Agricultural Land (Utilisation) Act of 1931 which, impelled by the growing economic depression, had some success in slowing down the rate at which emergency, or wartime, allotment land was being returned to other uses.

  The outbreak of the Second World War saw the setting up of yet another government drive to grow more food, and the "Dig for Victory" campaign launched in 1940 and strengthened by wartime defence legislation.

This saw an estimated annual production from allotments at 1,300,000 tons. At the end of the War the situation was similar to 1919 as food shortages maintained the pressure for the maximum amount of home production.

  The result of demands for more and more building land saw the re-establishment of the Allotments Advisory Body which in 1949 recommended a scale of provision of 4 acres per 1,000 head of population. This resulted in the Allotment Act of 1950, the last allotments act to pass into law.

  Allotments were originally provided for use by the landless poor to enable them to feed their families. The modern need is to ensure that land is still made available for the present and future generations to enjoy fresh and healthy produce, and benefit from the ability to take fresh air and to exercise and enjoy the environment.

2. THE VALUE, QUALITY AND AFFORDABILITY OF ALLOTMENTS

  The value of allotments should not be seen purely in monetary terms, but must include benefits to health, diet, community fellowship and protection of the environment.

  Many allotment sites were originally sited on poor quality land not wanted for other purposes (see Allotments Act 1908, Section 32 which allowed unsuitable allotment land to be replaced) which has, over the period of use, been improved through dedicated workmanship. This land, now well cultivated and fertile, is in danger of being lost to development, to be replaced by poorer quality land once again.

  Many other organisations are realising the important part allotments can play in the environment and health and recreation issues.

  Department of the Environment "Greening the Cities" report includes allotments in its network of green space which make up the landscape.

  National Food Alliance/S.A.F.E. Alliance "Growing Food in Cities" report promotes the benefits of urban agriculture in the U.K.

  The report recommended that everyone - from government to local communities - should make food growing part of their policies and practices. In the wake of a long series of food scares - the report highlighted the many benefits of "growing your own".

  "Growing Food in Cities" promoted the advantages of urban agriculture which include:

    Employment and Training: new skills and opportunities for business development;

    Education: links with schools, special needs and adult learning;

    Leisure: promoting local tourism arts, crafts and volunteering;

    Sustainable neighbourhoods: revitalising parks, allotments and housing estates;

    Community development: co-operation across ethnic, age and other barriers, and even crime prevention;

 and of course:

    Better health: increased consumption of fresh foods and more exercise, plus relief from stress, and therapy for those with mental health problems.

  The report also urged the Department of Environment to issue Planning Policy Guidance notes to create and preserve green spaces, and encourage local agencies to use city wide networks to promote food growing.

  The S.A.F.E. Alliance in their "Food Miles" report referred to the two major determinants of a country's environmental impact which are the nature of its food economy and its systems of transport, and was concerned about the food we eat, where it originates and how it reaches us. It referred to the distance which food travels from producer to consumer using non renewable fossil fuel energy.

  Save the Children Fund in their report "Out of the Frying Pan" refer to the true cost of feeding a family on a low income. Their research shows that for those on low income a combination of circumstances over which they have no control militated against their best efforts to give their children a balanced diet.

  The research showed that a healthy food basket costs an average £4.07 more than a less healthy basket. Many in deprived areas paid comparatively more for their food than others living in more affluent areas. Restricted access to supermarkets meant they had to use local shops which were more expensive, or pay taxi fares to transport heavy shopping home from the supermarket and in some cases to get there as well.

  With the advent of out of town shopping developments the wider ranges of produce at affordable prices are becoming less available to those on low income, not just in deprived communities, but also rural communities.

  New Economics Foundation are concerned with community economic renewal and are organising a think tank to help focus on what can be done by people at a local level to rebuild British Society neighbourhood by neighbourhood.

  All of these reports highlight issues which can be incorporated into allotment gardening, from a sustainable environment to community health.

  The Office International of Allotment Gardeners which represents 3.5 million allotment gardeners in Europe and Scandinavia have recently presented their response to the European concept for Local Planning to the European Parliament.

  They stress the need for sustainable development to be accompanied by a sustainable development of the green spaces by concepts for social integration of widespread sections of the population. A supervision of the expansion of town planning as the deprivation of open spaces results in a loss of the quality of life which would be fit for human beings in an urban community.

  In particular, allotments are an ideal buffer for limiting the expansion of overflowing cities, a high ecological significance contributing to the conservation of the diverse flora and fauna and sociocultural opportunities for users and neighbours.

  See appendix:

    (1)   The allotment and leisure gardens and the sustainable development.1

    (2)   Leisure garden sites and urban development planning.1

    (3)   Allotment Gardens, Indispensable for People, Society, Nature and environment.1

    (4)   Resolution of the XXIX Congress of the Office International.1

  There is however a considerable value in the crops grown, not only for the Allotment tenants, but also to the National economy. A trial plot, cultivated at Harlow Carr Gardens in 1975 by the Royal Horticultural Society produced approximately 760Kg of fruit and vegetables. If this is multiplied by the number of occupied plots in England shown in the National Survey the yield would be in excess of 200,000 tonnes per year.

  Allotments add to the richness of communities, and provide a community asset at little cost to the ratepayer

3. THE EXTENT OF INTEREST IN ALLOTMENT CULTIVATION

  The Society's National Survey of Allotments in England has identified the following:
Number of sitesAcreage Total plotsVacantWaiting lists
7,79625,393296,923 43,00012,950

  Current provision represents on average, one allotment plot per 65 households. 26 counties are making above average provision, although the geographical spread by region is fairly even.

  While allotment provision is predominantly carried out by local councils, the survey identified 2,794 acres in private ownership with a further 1,045 acres of unknown origin. This land amounts to 15 per cent of the total provision in England. Added to this is a further 3,451 acres of temporary allotments not subject to consent of the Secretary of State for the Environment to disposal which means that almost 29 per cent of allotment provision has no statutory protection.

The plot holder

  A members survey in 1993 shows that allotments are predominantly used by the upper age group.
Age of allotment gardenersPer cent Economic activityPer cent
Under 356employed full-time 37
35-4929employed part-time 6
50-6430self-employed 6
65+35retired 40
homeworker 3
unemployed 4
perm sick/disabled 4
student 1

  In looking at the original motives for applying for an allotment, the survey found not surprisingly that wanting fresh food was paramount, but fresh air and exercise, wanting fulfilment and something to do, and contact with nature also feature highly in peoples motives.

  The results of the survey clearly show that allotments are used by a wide diversity of people for a variety of reasons many of which relate to health issues. There is scope for further demand and take up, but this will require encouragement not only at local, but also at National Level.

  Unfortunately, at least two local councils have implemented administration charges (one of £25.00 to sign a tenancy agreement) which is in itself acting as a deterrent to finding new plot tenants.

    Appendix 6 - National Society Survey of Members 1993.1

  Allotments have been in continuous use for over 150 years, and continue to be popular and used by 15 per cent of households in England.


 
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Prepared 3 April 1998