GAP - Grazing on Sites with Public Access

Information Leaflet Grazing Stock on Sites with Public Access Livestock keepers have a duty of care to their animals. They also have to ensure that the public are not put at risk.

If the proposed grazing site has not previously (or recently) had livestock on it, then the public may be concerned about their safety or that the animals will interfere with their recreational enjoyment.

The general public are often unaware of the behavioural characteristics of livestock. Most people lack ‘stock sense’ and are unable to fully assess and respond appropriately to a situation that involves animals. The two most common factors associated with ‘public-livestock’ incidents that are reported to the Health and Safety Executive (HSE) are cows with calves and walkers with dogs. Even normally placid cows can become aggressive when their protective maternal instinct is aroused.

This leaflet provides advice on how to reduce potential safety risks plus minimise conflict with the public when stock are grazed on sites with open access. (Advice on animal welfare plus gathering and handling stock are covered in other GAP publications).

Contents in this leaflet • General tips.

• Risk assessments.

• Reducing risks and ameliorating concern.

• Infrastructure.

• Monitoring the site.

• Using a grazier.

• Insurance.

• Case Studies.

©Rare Breeds Survival Trust

General Tips Plan Before bringing animals on site • Assess the level and type of public use.

• Work with stakeholders to compile a list of possible conflict issues and mitigation measures.

• Prepare a grazing impact assessment »» External consultants may be needed

• Develop a grazing scheme that will achieve the conservation objectives.

Consider

»» Creating new permissive access routes to avoid stock. »» Implementing rotational grazing in smaller sub-divisions so there are always areas without stock.

• Determine the most appropriate stock to use i.e. species, breed, stocking density, age, sex, breeding or non-breeding animals.

• Identify any work required e.g. fencing, appropriate access for both public and stock, handling pens, water supplies etc.

Consider employing specialist consultants if you don’t have the time or expertise for these.

Research the site Determine its current and historical interest, uses and ‘values’. Any photos of past grazing on the site can be useful.

Consult widely Contact local people, stakeholders, other site managers, your staff, GAP etc.

• Talk to as many people with an interest in the site as possible – spend lots of time getting to know people and having face-to-face meetings with them.

• Work with local parish councils as key local administrative bodies.

Grazing Animals Project Original Document 2007; Revised 2019

Page 1 Written and Designed by Pen Rashbass

Grazing Stock on Sites with Public Access

Publicise widely • Use social media,the internet, email shots, local press, site notices at key entrances, leaflets and word of mouth.

• Erect Signs and Notices »» To warn about the presence of stock, »» To outline the rationale for grazing. »» (see below for more details)

• Link to other grazing operations – both locally and nationally. This can reassure the public that using livestock is a tried and tested method for conservation management.

• Press releases and social media posts should be published both before and during grazing.

Run special interest sessions For example for dog walkers or horse riders.

They could include ‘meet the shepherd and / or 'meet the stock' events (Figure 1)

Encourage local people to get involved • Set up site ‘friends of’ groups. Make full use of social media (e.g. facebook, twitter, instagram), hold biannual forums – both indoor and outside on site.

• Consider recruiting:

»» A voluntary warden. S/he may be wellknown locally and can liaise with the public. »» Volunteer stock lookers. »» Site volunteers. Some may have additional professional skills (e.g. legal, fundraising or accounting). Make use of these.

Site managers who own dog(s) or use a horse / pony on site will immediately be more accepted by dog walkers and horse riders.

User groups These can be either formal or informal.

• Formal professional groups could include statutory agencies and conservation NGOs. • Informal groups for locals who use the site and care about its future, e.g. horse riders, dog walkers, amateur naturalists.

Kevin Caster

Figure 1. Introducing small groups of the public to the grazing livestock

©Rare Breeds Survival Trust

Grazing Animals Project Original Document 2007; Revised 2019

Page 2

Grazing Stock on Sites with Public Access

Anticipate difficult questions

Expect members of the public to have queries and concerns. Prepare for these.

This includes preparing paperwork (e.g. risk assessments) in consultation with specialists such as the HSE. Complaints Always respond to complaints and talk to complainants – ideally face-to-face, but as a minimum, over the phone. Never let these complaints ‘fester’ – often people just need to have their opinions listened to, they don’t necessarily want you to agree with them.

Report back Publicise any positive impacts that grazing has on key species and habitats. Results of monitoring should be released when trends have been identified. Survey information could also be provided. However, this may not be possible if confidentiality is required to protect certain rare species.

Visitor surveys These will reveal changes (or otherwise) in attitudes and perceptions.

Risk Assessments Even gentle knocks from stock can result in injuries. It is therefore important that prior to introducing animals, site managers plus the grazier carry out assessments that identifies potential risks to • Staff plus volunteers.

• The public.

• The livestock.

These may also help address any public queries and concerns.

Seek advice from GAP and other conservation managers who have experience with grazing on public sites. They may have additional suggestions that you have not considered.

For each hazard, you need to • Identify who may be harmed and how.

• Weigh up the risks.

• Decide on precautions.

• Put the results into practice.

• Keep a written record in the reserves file.

• Make sure the risk assessments are regularly reviewed, especially in response to any incidents.

• Keep good notes so that any trends or particular issues can be identified and dealt with.

The HSE have a range of relevant resources including downloadable risk assessment form templates.

NB. This leaflet focuses on managing stock interactions with the public. Risk assessments for livestock and staff (plus volunteers) who may need to handle animals are covered in other GAP publications.

Figure 2. Calm Longhorn cattle inquisitively coming to see what volunteers are doing

©Rare Breeds Survival Trust

Grazing Animals Project Original Document 2007; Revised 2019

Kevin Caster

When drawing up risk assessments, walk around the site to identify possible hazards.

Consult your staff and volunteers.

Page 3

Grazing Stock on Sites with Public Access

Reducing Risk and Ameliorating Concern.

In addition to the General Tips discussed above, public concern and risk can be reduced in a number of ways. These include • Choice of animal.

• Minimising disease risk to the public.

• Advice about pet dogs • Using appropriate signs.

Choice of animal The HSE have produced an advice leaflet on cattle and public access for English and Welsh livestock keepers. A Scottish version is also available.

No animals known or suspected of being aggressive should be allowed on sites with public rights of way Assess all stock • Use breeds and animals that tend to be more docile in temperament.

• Choose livestock that are familiar with people, dogs and other stimuli they may encounter.

• It is illegal to keep bulls from recognised dairy breeds on sites with public access.

»» These breeds are Holstein, British Friesian, Ayrshire, Dairy Shorthorn, Guernsey, Jersey and Kerry.

• Beef bulls are banned from fields or enclosures with footpaths unless accompanied by cows or heifers.

• In areas with heavy public access, try not to have

»» Calving cows. »» Cows with calves less than 12 weeks old. »» Lambing ewes. »» Ewes with young lambs. »» Bulls older than 10 months old unless accompanied by cows. »» Rams older than 12 months old unless accompanied by ewes. »» Groups of steers and bulling heifers that can be boisterous and inquisitive.

©Rare Breeds Survival Trust

You should carefully assess the temperament of ‘new’ animals or grazier stock prior to exposing them to the public.

Take the time to train stock before they interact with the public. This should include confronting them with things they are likely to meet e.g. dogs and bicycles. It can help to video these interactions. This will let you review the episode later with others. It can also act as evidence to show that precautions were taken if an incident between the stock and a member of the public should subsequently occur.

In some herds, an individual animal may act as a ringleader. This animal influences the others and can be a nuisance e.g. regularly escaping or intimidating the public. It should be removed from the site.

If an individual animal is a problem, it should be removed from the site An individual animal’s behaviour around people and their dogs can alter over time e.g. if previously chased by a dog, after being fed by ‘well-wishers’ or to maternal instinct, stress, illness, adverse weather, hunger etc.

Your stock checks should include a regular re-assessment of an animal’s temperament in addition to its daily health check.

Prepare an emergency action plan i.e. what to do and who to contact if something goes wrong – see GAP leaflet on Animal Health and Welfare for more details about stock checks and action plans.

Plan how to safely move individual animals, the whole herd / flock (or part of it) from field to field. Remember that inadequately controlled livestock on roads can cause public concern, damage or injury.

Grazing Animals Project Original Document 2007; Revised 2019

Page 4

Grazing Stock on Sites with Public Access

Minimising disease risk to the public All livestock naturally carry a range of diseases. Some of these (known as zoonoses) can also infect humans. However the risk of transmission to members of the general public is usually low. Consider taking the following precautions • Create stock-free areas e.g. picnic sites, footpaths and recreational areas.

• Provide hand-washing facilities if possible.

• Use signs to »» Keep all staff and visitors informed. »» Advise public to avoid contact with livestock and their faeces.

Maintain high levels of animal health and prevent infections spreading by

»» Good stockmanship and regular animal husbandry. »» Avoid contamination of feed or drinking water with faeces or water etc. »» Follow an animal health plan. »» Seek veterinary advice when necessary. »» Quarantine all new stock. »» Screen for disease. »» Vaccinate against disease where appropriate. »» Reduce livestock stress. »» Control rodents. »» Dispose of contaminated materials and bedding properly.

• Cows with young calves (<12 weeks), horned sheep with young, horned goats, stallions and mares with young foals can react aggressively to dogs.

• Dogs off a lead or under poor control may chase or even kill livestock.

Problems for the handler are often caused when s / he • Tries to protect the dog.

• Gets between the dog and the stock.

• Gets between a cow and her calf.

• Runs and the stock give chase.

The behaviour and body language of the dog and handler make a difference to how livestock respond to them (Figure 3).

Figure 3. Exmoor ponies learn about that dogs don’t have to be a threat (using a calm, well-behaved dog)

Ticks can cause a range of diseases. If they are a problem on the reserve as a result of grazing (e.g. with sheep or deer), then further action may be required.

©Rare Breeds Survival Trust

Grazing Animals Project Original Document 2007; Revised 2019

Kevin Caster

Advice about pet dogs Every year, a minority of people with dogs have incidents with livestock. However, the consequences can be serious. Examples of incidents include • Young stock (e.g. steers and heifers) can react badly to dogs, tending to mob and chase them.

Page 5

Grazing Stock on Sites with Public Access

Integrate dog management with other aspects of site management e.g. predator control, livestock management.

Possible management options include • For Livestock.

»» Assess the temperament of your stock. »» Train your animals to get used to dogs. »» Remove any stock that do not react well to people and dogs. »» Avoid using over-inquisitive individuals. »» Llamas or alpacas can be used within a flock as guard animals against dogs (and foxes).

• For visitors.

»» A multi-faceted approach is often more effective than a single policy. »» Wardening, steering and regulations appear to work best. »» Leaflets and signs may be less effective unless used as part of a comprehensive strategy. »» Increase understanding and decrease fears with events such as ‘meet the animals’.

• Zoning.

»» Create areas where dogs are free to run off the lead and areas where there is no dog access. This can help integrate dog use with horse riding, picnicking, children play areas and sensitive conservation areas. »» Clearly indicate areas where dogs must be kept on leads (and whether this restriction is permanent or seasonal). »» Create dog trails and routes to help manage dog walking and steer people away from sensitive areas at certain times of the year.

Monitor and keep a record of any incidents so that you can assess the scale of the problem and analyse why, when and where issues occur.

Further information and advice about dogs, livestock and wildlife can be found in the GAP leaflet on Animal Health and Welfare.

The legal situation for England and Wales can be found in The Countryside Code and for Scotland in The Outdoor Access Code.

©Rare Breeds Survival Trust

Using appropriate signs Suitable signs should be erected on all access points to the site, These should • Explain the need for conservation grazing.

• Inform that livestock are present.

• Give emergency contact details for the grazier and / or the site manager.

• State that dogs must be kept on leads or under close control in areas where stock are grazing.

• Advise that dogs should be released if chased by cattle.

• For electric fencing provide warning signs located at access points and suitable intervals along its length (50 –100m apart).

See Box 1 for general advice on design.

Misleading signs which deter people from using public rights of way are illegal and should never be used For Bulls in Fields, a suitable sign has • A black triangle on a yellow background.

• A bull or bull’s head (black on yellow) • Supplementary text (also black on yellow) such as ‘bull in field’ if desired • Supplementary text should NOT suggest that the bull is aggressive, threatening or dangerous i.e. avoid words such as ‘beware’ or ‘danger’.

• Remove sign when no longer required.

Box 1. Designing signs • They need to be simple, clear, concise and specific.

• Stick to one message rather than diluting or risking confusing people by trying to put across too much information.

• Keep words to a minimum – a single picture, symbol or cartoon is often more effective.

• Upper case lettering is harder to read than a mixture of lower and upper case.

• Make sure the sign clearly explains where and for how long the behaviour is being requested.

• Humour can help, but hard-hitting facts are often more effective for serious problems such as sheep worrying or health risks.

Grazing Animals Project Original Document 2007; Revised 2019

Page 6

Grazing Stock on Sites with Public Access

Infrastructure • Erecting fencing may require legal permission, for example where the fence-line crosses a public rights-of-way or when it is erected on common land.

Public consultation may also be required.

• Determine whether it is more appropriate to solely ring-fence the boundary whether smaller enclosures (either permanent or temporary) are required. »» Consider the impact that fences may have on wildlife.

• Ensure that gates, fences and access furniture are safe and fit for purpose. The HSE advise that

»» Fields with groups of cattle older than 10 months should be securely enclosed by stock-proof hedging or fencing at least 1.3m high. This should be strong enough to retain the animals and capable of restricting access of children. »» Gates etc. should >> Be at least of equal height and strength as the perimeter fencing. >> Restrict the access of young children. >> Be fitted with a securing device which will prevent release by children and the animals. »» Electric fencing if used must be fitted with suitable warning signs at the appropriate intervals

• Cattle grids may help overcome difficult fencing needs on fragmented sites.

»» Appropriate permission may needed before these can be installed.

• Ensure that handling facilities are available.

»» As a minimum, consider having simple, permanent pens on site. If necessary, ill animals can be penned and treated in these (with adequate food, water and shelter). »» Alternatively use mobile penning systems.

©Rare Breeds Survival Trust

• Site troughs/fences/pens and handling areas in locations that avoid conflict with the public.

• Try to minimise the impact of poaching and animal faeces.

»» Where possible, regularly move mineral licks, feeding sites and water troughs. »» Use an extensive grazing regime with low numbers of stock and / or zone the site and regularly rotate stock from zone to zone.

• To minimise vandalism consider

»» Hiding fences in thorny scrub. »» Using stronger material. »» Making top rails of handling pens triangular to stop kids sitting on them.

Monitoring the site You need to consider • The well‐being of the stock.

• The state of the infrastructure.

• The effect of grazing on the site.

• Public perceptions.

Regular checks of stock and infrastructure should be performed – see GAP leaflet on ‘Animal Health and Welfare’ leaflet for more details.

Grazing will inevitably have an impact on the flora and fauna on the site. You need to design a suitable monitoring programme that you can both implement and interpret.

• Consider whether this will be done in-house or outsourced to expert consultants.

»» Involving local people can help alleviate fears.

• Determine

»» What techniques will be used. »» How often the site will be monitored. »» How often will you review, and if necessary adapt, your grazing system as a consequence of monitoring.

Grazing Animals Project Original Document 2007; Revised 2019

Page 7

Grazing Stock on Sites with Public Access

Using a grazier If the site is grazed by animals belonging to a private individual (‘Grazier’), a written grazing licence should be agreed and signed by both parties. For more advice about using a grazier see GAP leaflet on Purchasing Stock / Finding a Grazier.

The grazing licence should clarify exactly who is responsible for each aspect of insurance. The site owner / manager should ensure that the grazier’s policy of insurance is sufficient and up-to date i.e. that the premium has been paid.

Kevin Caster

Everyone involved with the stock must know who is responsible for different tasks e.g. checking animals, maintaining fences, water supplies, health, welfare and legal requirements.

Insurance The site owner and / or grazier must have adequate insurance cover for: • 3rd parties for loss, injury or damage.

• Injury or loss of livestock.

©Rare Breeds Survival Trust

Grazing Animals Project Original Document 2007; Revised 2019

Page 8

Grazing Stock on Sites with Public Access Case study. Sheffield Wildlife Trust Introducing Highland Cattle to a SSSI Annabelle Kennedy (former Sheffield Wildlife Trust Nature Reserves Manager) Although this relates to a case from 2007, it illustrates a number of key points of how to plan & introduce cattle grazing to 92 ha of moor (SSSI / SPA / SAC) on the edge of Sheffield.

Prior to introducing the stock, there were several years of controversy and so a lot was done in relation to recreation impacts especially as the site is well used by dog walkers, riders etc. In addition, there’s an extensive network of paths and bridleways, plus our locals have a strong sense of ‘ownership’. Dog walkers don’t tend to walk dogs on leads. Ways of reducing / managing risks and being accommodating to users were as follows: • We don’t have cows and calves and no bulls. The grazier is very tolerant – he is used to the public and dogs though mainly with sheep. On speaking to dog walkers this year (it’s the first year of cattle grazing) it seems that the majority of concerns are about their own dogs chasing / barking at / frightening the cattle rather than the other way round. So they take responsibility and accept that (mostly).

• The heath is fenced from the woods (huge controversy) ,so walkers & their dogs can walk in areas ‘free of cattle’ throughout the year. When the cattle are off the heath (they’re only on for 5 or so months) the gates are all locked open which keeps the riders (and dog walkers) sweet. There was a choice of having smaller enclosures or a ‘super enclosure’ and local people chose to go for the latter based on landscape reasons and retaining the feel of being a wild area.

• The Highland cattle are young (9 to 36 months) and a bit skittish and nervy. To reduce the risk of them reacting to dogs on our site, before they were introduced there, I took my dogs to get them familiarised. When I first met them, they ran at me & the dogs, but now they are very docile. I am confident that this was the right thing to do before they came to the public site as they were by then much more chilled out and not particularly inquisitive.

We have not had one incident between a dog and cattle. Although it’s still early days, I am confident that this is the right thing to do even though it does take lots of time, it’s definitely worth it.

• We also provide information / advice leaflets & posters at entrances explaining the rationale behind the grazing, advice in the event of coming across cattle (including how to shoo a cow away!! - Mainly because I got phone calls from people genuinely not knowing what to do if they came across them

©Rare Breeds Survival Trust

•

•

•

•

•

•

•

on a path or at a gate where they could not walk round them), and a map within the leaflet showing the location of the grazing enclosure so people had the choice to walk within or outside the enclosure or at least knowing whether they may come across them or not. This also reassured the grazier.

I had a grazing impact assessment done by an independent person (late on in the process so probably should have had it done earlier but at least it backed up and expanded on what we’d said previously). The report is worth it’s weight in gold The main issues have been with horse riders as they aren’t used to cattle and nor are their horses.

The footpath / bridleway network is extensive both in and out of the enclosure. We’re working on ameliorating the situation as far as reasonable and practical - clearing key sightliness, offering riders the chance to ‘meet the cattle’ at the start of the season and other things.

We also obviously did risk assessments (in relation to cattle, zoonoses, fencing, recreational uses, public, horse riders, staff etc.). I had some members of the public claim that we’re not taking safety seriously enough and HSE even got involvedthe documentation helped prove that it is taken seriously.

We even did a recreation impact assessment, taking into consideration the different impacts of cattle and fencing on the different users. In general, I think the issue of putting fencing up is often more controversial than the grazing itself but it obviously depends on the context.

A lot of time and thought was put into all of this and at times seemed a bit ridiculous, but it was all worthwhile considering the long term benefits, despite it initially seeming a bit over the top. Because of the sense of ownership felt by local people, we’re under an awful lot of scrutiny so having everything already thought out and assessments etc. in place has helped hugely – much of it was done as a response to concerns expressed.

We also had to be robust and stick to our guns because some it was getting ridiculous I do believe that taking a firm stance (following consultation and reasonable actions to deal with issues) is essential.

Any chink of weakness or uncertainty just gets jumped upon.

Now the Highland cattle are on the more, people actually really love to see them (even though the same people are initially a little nervous) .They are so beautiful and unusual in the area and what a shame not to take the opportunity to link people’s everyday lives with farming.

Grazing Animals Project Original Document 2007; Revised 2019

Page 9

Grazing Stock on Sites with Public Access Case Study: Example of information that may be provided to the public on noticeboards / leaflets etc.

Isles of Scilly Wildlife Trust Top tips for walking with livestock Here are some tips to help you enjoy your walk: • Do not feed or touch the animals • Make sure that the animals know that you are there • If an animal is startled do not run!

• Avoid getting between cows and their calves and / or splitting the herd • Keep small children close to you • Do not leave bags or pushchairs unattended • Keep dogs under control Grazing sites for wildlife is a sustainable way of managing the land. Grazing increases the diversity of plants and animals, it reveals and protects the landscape, which is rich in archaeological features and gives you increased freedom to explore. Gates and stiles provide access to all grazed areas on Wildlife Trust land, which remains available for your enjoyment.

Do not feed or touch cattle or ponies • They are not pets! – Feeding and touching will encourage animals to come up to people and this can lead to problems.

• If you stop and look at the ponies and cattle and open bags close to them, they may think you are going to feed them – better to do this out of view or from the other side of the fence.

Make sure that the animals know you are there • If you are coming up from behind the animals and they haven’t noticed you, calmly whistle or talk to them to let them know that you are there.

• If cattle or ponies are blocking your way - clap your hands firmly and they should move out of your way. If necessary leave the path and go around the animals.

If an animal is startled,do not run!

• If you startle an animal, do not run. The animals may think that this is a wonderful idea and may decide to join you – cattle and ponies are more likely to ignore you if you walk quietly past them or away from them.

• Large groups of people - animals may feel excited or threatened by large groups of people.

Try to keep the group quiet when passing close to animals.

©Rare Breeds Survival Trust

Avoid getting between the cows and their calves and / or splitting the herd • Do not try to pet young animals no matter how cute and cuddly they look; the mother may disapprove and feel threatened and walk round groups of animals.

Keep small children close to you • Children may unintentionally startle an animal.

Do not leave bags or pushchairs unattended • Animals are naturally inquisitive and may rummage in a bag or pushchair. This may cause injury to an animal or scare a child.

• There is also a risk that an unattended pushchair is knocked over Keep dogs under control • Dogs do not need to be on a lead if properly controlled but please do not allow your dog to chase livestock. This causes distress to livestock and may result in injuries. If you and your dog receive unwanted attention from the animals it is best to let your dog run away and re-join you further on, the animals will be more interested in your dog than you Please follow the Countryside Code • Be safe – plan ahead and follow any signs • Leave gates and property as you find them • Protect plants and animals, and take your litter home • Keep dogs under close control • Consider other people • Copies of Countryside Code can be downloaded from https://www.gov.uk/government/ publications/the-countryside-code

Grazing Animals Project Original Document 2007; Revised 2019

Page 10