Memorandum submitted by the Minister for
Environment, Sustainability and Housing, Welsh Assembly Government
EAC INQUIRY ON
HALTING UK BIODIVERSITY
LOSS
POLICY AND
PROGRESS
1. Is the Government on course to meet its
2010 biodiversity target?
Despite the huge amount of positive progress
that has been achieved to date, the target to halt biodiversity
loss is most unlikely to be achieved by 2010.
Rather than being attributable to a lack of
effort or resource, this is mainly due to the fact that the environment,
and particularly biodiversity, has remained outside mainstream
thinking and policy development.
The message from Malahide on 27 May 2004 stated
that "biodiversity loss continues at an unprecedented rate"
and that "this loss threatens to undermine economic and social
progress". Reinforced action was delivered from sectors already
involved in nature conservation but this has been insufficient
to counter the steady tide of non-sustainable development in other
sectors.
2. How effective is the biodiversity monitoring
and reporting process?
Biodiversity monitoring tools on land are well
developed and effective although there are some gaps and an increasing
need for improved data from the marine environment.
Biodiversity Action Reporting System (BARS)[17]
The Welsh Assembly Government has recorded all
biodiversity-related Wales Environment Strategy actions on BARS.
Local Biodiversity Action Plan partnerships have made use of BARS
since 2004. Lead Partners, including CCW, reported on BARS for
the 2005 UK BAP report and are currently improving and increasing
their use of BARS throughout Wales. Since 2007 CCW Species Challenge
Fund grants require recipients to use BARS; this will be rolled
out to all other CCW grants for biodiversity action from 2008
in line with other UK grant givers.
Local Record Centres[18]
Local Record Centres (LRCs) are part of a wider
network of organisations working under the umbrella of the National
Biodiversity Network (NBN). Together these organisations co-ordinate
and provide the data needed to support the delivery of the UK
Biodiversity Action Plan and compliance with the Habitats Regulations.
The first of the four LRCs, the Biodiversity
Information Service for Powys and the Brecon Beacons National
Park (BIS) has been running successfully since November 2001.
The second LRC in Wales is the South East Wales Biodiversity Records
Centre (Sewbrec) which has been fully operational since August
2005. North Wales Environmental Information Service (Cofnod) has
been fully operational since January 2007. West Wales Biodiversity
Information Centre (WWBIC) has been fully operational since September
2007, which completes the coverage of Wales.
3. Are the biodiversity indicators meaningful?
Biodiversity indicators are sufficiently meaningful
to enable policy decisions.
The Environment Strategy for Wales Report on
Progress outlines the current reporting of biodiversity in Wales.
The main indicators that are used are in two categories. Outcome
indicators report on the actual changes in biodiversity, and activity
indicators track the inputs to improving management of habitats,
which promote biodiversity.
Outcomes
Trends in Biodiversity Action Plan species and
habitats
UK priority species and habitats are those that
have been identified as being most threatened. Data are reported
every three years. There are some gaps in information. For example
the reporting of priority species shows that there is insufficient
information for 26% of species in 2005, but this is a large improvement
on the situation in 2002, when there was insufficient information
on 45% of species. The reporting of habitats is more comprehensive.
Trends in wild bird index for all species and
for farmed, woodland, urban, coastal and wetland species
This is based on work commissioned by DEFRA
from the BTO and RSPB to produce long-term wild bird indicators
for the regions of the UK and uses the results of the Common Bird
Census (CBC). One problem is that there are too few CBC plots
in Wales. However short-term trends can be presented using the
UK method. In 2005, 269 plots were visited in Wales and the data
shown represents the 58 species that were recorded in an average
of at least 20 plots between 1994 and 2005. The less abundant
species (including some key birds of farmed habitats) could not
be included because of statistical considerations. Therefore these
data are not representative of all birds in Wales. Also, at the
start of the BBS in 1994, populations of many farmland and some
woodland bird species had already shown steep declines in abundance
at the UK-level and Wales-level over the previous 25 years. Short-term
trends should always be interpreted with reference to this historic
context.
Proportion of features (species and habitats)
on Natura 2000 sites in favourable or recovering condition
The Natura 2000 sites in Wales includes the
90 Special Areas for Conservation (SACs) designated under the
Habitats Directive and the 19 Special Protection Areas (SPAs)
designated under the Birds Directive. Each site is designated
for one or more conservation features, and the condition of these
features is monitored on an approximate six-year cycle, in line
with the UK Common Standards Monitoring framework. Under this
framework, features are assigned a condition category reflecting
whether or not they are in a desired state (favourable condition)
or are recovering towards it.
Data for Wales are available form the Welsh
Assembly Government website.i
4. Is there adequate data upon which to define
targets and to assess progress?
There is generally adequate data on which to
define targets and assess progress but gaps do exist.
The data on bird indicators exemplifies one
of the recurrent issues in reporting at a regional level. For
statistical analysis to detect change there needs to be a large
number of plots. For example the Countryside Survey for 2007 has
been expanded to about 120 sites in Wales, to enable meaningful
assessment of habitats. Previous Surveys have been insufficient
to allow reporting on a Wales basis.
It is important to recognise that the time required
for land management to lead to improvement of biodiversity is
of the period of several years. The habitat monitoring of Tir
Gofal, the higher level agri-environment scheme in Wales, started
in 2001-02 and it is only now that results are being analysed
from re-surveys.
Currently other gaps in reporting are indicators
to illustrate range and genetic diversity need to be developed
and indicators that the wider environment is more favourable to
biodiversity through reduced habitat fragmentation and increased
extent and interconnectivity of habitats. DEFRA is leading a project
to develop indicators for the latter.
5. Are the policy and institutional frameworks
effective at protecting biodiversity?
Policy and institutional frameworks are improving
and the existing Sustainable Development duty has been an incentive
for Welsh Assembly Government to address the horizontal links
between policy areas.
The 2010 target has been incorporated directly
into Welsh Assembly Government Policy as Environment Strategy
Wales Outcome 19ii.
Within Wales the implementation of the UK biodiversity
action plan (UKBAP) is co-ordinated by the Wales Biodiversity
Partnership (WBP). At present the Partnership meets three times
a year and brings together organisations involved in biodiversity
conservation in Wales. The Partnership provides advice to the
Welsh Assembly Government on biodiversity matters and co-ordinate
Wales-level biodiversity actions associated with the Environment
Strategy and the UK BAP and to provide a leadership role and decision
making on priorities for action on biodiversity in Wales.
6. Is biodiversity protection addressed effectively
at local and regional levels?
Biodiversity protection at a local and regional
level is improving.
Local authorities are a key target group for
implementation of Section 40(1) of the Natural Environment and
Rural Communities Act 2006 but the duty also affects a wide range
of public bodies including fire, and police, health and transport
authorities etc.
Welsh Assembly Government Officials have worked
with the Countryside Council for Wales, Defra, Natural England,
the Local Government Association, Wildlife and Countryside Link
and others to developing guidance to support public authorities
in complying with this duty.
During 2006, a Welsh Assembly Government officer
contacted each local authority to explain the duty and identify
a "biodiversity champion". Meetings were held with the
majority of local authorities and actions agreed.
Bullet point "biodiversity checklists"
were developed by the WBP, approved by the Minister for Environment,
Sustainability and Housing in July 2007 and subsequently endorsed
by the Partnership Against Wildlife Crime in Wales and the Wales
Local Government Association.
In Wales, most local authorities and national
parks employ one or more ecological specialists to provide advice
to planning, highways and other departments and many have service
level agreements in place with the Local Record Centre. These
roles directly support the making of appropriate decisions, reducing
the risk of legal challenge and unnecessary damage to the environment.
7. How successful has the UK Biodiversity
Action Plan been?
In Wales, each local authority or national park
has its own Local Biodiversity Action Plan. This sets out the
local actions necessary to conserve and enhance rare or threatened
species and habitats. Individuals and representatives of statutory
and non-statutory organisations take responsibility for these
actions and act together as the Local Biodiversity Action Plan
Partnership, which is central to achieving the 2010 target.
The role of co-ordinating the partnership is
crucial and is undertaken by the Local Biodiversity Action Plan
(LBAP) officer or biodiversity officer based within each local
authority.
This system has been successful in generating
local level action to protect and enhance species and sites across
Wales. However implementation has been mixed and there is still
more to be done to ensure that biodiversity gains are built in
to all projects from the earliest possible stage.
8. Does Conserving biodiversity - the UK approach
address the need to have a joined-up approach to biodiversity
protection with the devolved administrations?
It does. The UK approach links directly with
the Wales Biodiversity Framework http://www.biodiversitywales.org.uk/English/Library/default.aspx?pid=1
and the Environment Strategy Wales, the chapter entitled "Distinctive
Biodiversity, Landscapes and Seascapes" of which constitutes
the Biodiversity Strategy for Wales.
9. How well is biodiversity protection incorporated
into the policy-making process?
Biodiversity protection is enshrined in the
Environment Strategy for Wales http://new.wales.gov.uk/topics/environmentcountryside/epq/Envstratforwales/about_the_strategy/?lang=en
This Strategy covers all of WAG policy areas
and includes the high level outcomes of:
— The loss of biodiversity has been
halted and we can see a definite recovery in the number, range
and genetic diversity of wildlife, including those species that
need very specific conditions to survive.
— The wider environment is more favourable
to biodiversity through appropriate management, reduced habitat
fragmentation and increased extent and interconnectivity of habitats.
— Sites of international, Welsh and
local importance are in favourable condition to support the species
and habitats for which they have been identified.
— Our seas will be clean and support
healthy ecosystems that are biologically diverse and productive
and managed sustainably.
These requirements are included in the Welsh
Assembly Government Policy Gateway process, which impacts on all
our policies.
The new Environment Strategy Action Plan, about
to go to public consultation, highlights action on biodiversity
as one the key priority areas of work for coming years, and emphasises
the role of a range of partners in delivering this. The Welsh
Assembly is also about to publish a Community Strategy Advice
Note on Environment to support Community planning partners in
development of their Community Strategies, and biodiversity is
one of the key opportunities highlighted in this for groups to
take forward.
10. How well will the Ecosystem Approach Action
Plan address this issue?
The Ecosystem Action Plan is led by DEFRA and
covers England only. Development of the ecosystems approach in
Wales requires an appraisal of options for policy and implementation,
in terms of identifying synergies and conflicts and ranking how
we decide on those options to maximise benefits. Effective use
of resources to maintain and enhance ecosystems in Wales depends
heavily on good spatial definition of the assets, their condition,
and the opportunities and threats.
In Wales, the ecosystem services approach is
integral to the design of the new agri-environment scheme, which
will be introduced in 2010. It is planned to incorporate management
of biodiversity, water quality and soil quality. The Woodland
Strategy is also being revised and will adopt an ecosystems services
approach.
11. Has there been enough progress in ensuring
that the value of ecosystem services are reflected in decision-making?
DEFRA funds research for Wales and England,
and WAG will be using outputs from the research for developing
the evidence base, and developing ways to value ecosystem services.
The latter task is an important framework for decision-making.
A range of methodologies is available. As many ecosystem services
are not traded in markets, and therefore remain unpriced, it is
necessary to assess the relative economic worth of these goods
or services using non-market valuation techniques.
WAG will use the approach set by DEFRA in its
report "An introductory guide to valuing ecosystem services"
published in December 2007, but recognising that both use and
non-values in Wales may differ from those in England.
In taking forward this approach, WAG is setting
up a pilot project with its partners in Wildlife Trust, CCW, EAW
and FC to trial the ecosystem services approach in Pumlumon.
KEY THREATS
12. What are the key drivers of biodiversity
loss in the UK, and is the Government addressing them?
The Environment Strategy Consultation Document
identified major pressures on biodiversity in Wales such as:
— Intensive use of land and water reducing
both suitable areas for biodiversity and degrading the condition
of habitats.
— Inappropriate management of habitats.
— Fragmentation of habitats due to
pressure to use land for other purposes.
— Construction and development on land
and at sea.
— Invasive non-native species.
— Agricultural intensification and
food security impacts.
The vast majority of these pressures is caused
by human activity, either directly or indirectly and pre-dates
the effects of climate change, which will further damage the biodiversity
upon which we rely. The key objective is to increase the resilience
of biodiversity to all the challenges.
13. Will the Invasive Non-native Species Framework
Strategy prove effective?
We believe that the Invasive Non-native Species
Framework Strategy will prove effective. It was launched on 28
May 2008 and in addition the systems and processes described in
the strategy, WBP have put in placed a working group to lead action
in Wales. This group works closely with the Invasive Non-native
Species team at DEFRA to ensure synergy throughout GB.
14. Is there adequate regulation and resources
to prevent further invasions and to undertake eradication programmes?
Existing funding has been sufficient for the
developmental stages. This has been supplemented, for example,
by funding for specific projects such as £100k funding from
the Welsh Assembly Government Department for Economy and Transport
towards a £500k research programme on Japanese knot weed
eradication, in partnership with Cornwall CC, SWRDA, EA, Railtrack
and others at UK level.
Looking ahead it will be necessary to provide
increased budget. This could be most effectively provided as a
GB budget for Invasive Non-native Species that could be administered
at a local/devolved level but directed at agreed actions within
the GB Strategy.
15. What impact will climate change have on
UK biodiversity?
Climate change is already beginning to cause
a complex range of changes:
— Species turning up in unexpected
places.
— Species disappearing even more rapidly.
— Increase in invasive non-native species.
— Changing management requirements
as seasons shift and weather patterns change.
16. How might the impacts of climate change
be reduced?
The ecosystem services approach can, by focusing
on the fundamentals such as water and soil quality, have some
positive effect for wildlife. However the role and importance
of biodiversity within ecosystem services is not always clear
and this approach alone is unlikely to be sufficient alone.
A concerted effort to build biodiversity benefits
into all plans, projects and programmes so as to increase resilience
and create stepping stones ad, where appropriate corridors and
buffer zones is needed in addition to the ecosystem services approach.
17. How can potential conflict between climate
change mitigation and adaptation measures and biodiversity protection
be effectively managed?
Diversity—biological as well as social,
linguistic and cultural diversity—is the lifeblood of sustainable
development and human welfare. It is key to resilience—the
ability of natural and social systems to adapt to change and is
essential for nearly every aspect of our lives. We can not expect
to tackle climate change if we don't look after the natural wealth
of animals, plants, micro-organisms and ecosystems that make our
planet inhabitable.
A robust natural environment will reward us
by providing many ecosystem services in the face of climate change:
flood defence, reducing soil erosion, buffering climatic extremes
around settlements and so on. Action to help the natural environment
to respond to climate change should be seen as key element of
any plan to adapt and mitigate for climate change.
18. Does planning policy adequately protect
biodiversity?
The land use planning system has a critical
role in safeguarding wildlife and the environment on which it
depends. It helps to ensure that development and growth are sustainable
and is directed to appropriate locations. The main planning mechanisms
for delivering this are, firstly, European and national planning
policy, supplemented by the development plans which the 25 local
planning authorities are required to prepare, setting out their
policies for the future use and development of land. The second
mechanism is the development control system whereby those wishing
to develop land are required to seek planning permission from
their local planning authority, or if refused permission, from
the Planning Inspectorate. The development control system is an
important decision making framework for the delivery of biodiversity
protection, as it has to balance potential tensions between economic,
social and environmental considerations.
Welsh Assembly Government Planning Division
is responsible for preparing, with key stakeholders, the policy
and technical advice needed. For example, the update of Technical
Advice Note 5, on Nature Conservation, prepared with invaluable
input from CCW, is nearing completion. This will reflect recently
transposed requirements under the Habitat Regulations, the NERC
Act and case law. The revised TAN 5 will be accompanied by a programme
of training for all 25 LPAs to ensure that they fully understand
the policy, what their statutory responsibilities are, and what
risks they run if they fail to deliver them.
19. Are effective measures in place to ensure
that Government plans for housing growth (including eco-towns)
enhance rather than damage biodiversity?
Not yet. We encourage energy efficiency measures
and fund a number of projects where these are being used. All
general needs housing has to have a minimum of 40 square meters
of garden, substantially more than the majority of new build homes
for sale, and where practicable, flats also have to have a minimum
space for creating a garden for residents. Where a local pond
or particular habitat is disturbed through the development of
social housing, the developing Registered Social Landlord (eg
Housing Association) is encouraged to preserve the site and enhance
it as far as possible with the engagement of the new tenants.
This often involves local schools and wildlife organisations.
20. Should there be a review of greenbelt
policy, and what might the consequences be for biodiversity?
There are no formal green belts in Wales. We
do not believe a review of green belt policy in Wales would be
productive since the key issue should be to ensure integration
of the ecosystem approach with the planning system. Identification
of green infrastructure and appropriate linking of these sites
to the wider countryside, which in Wales would include large areas
of peri-urban land, is already on-going via the Green Spaces programme.
21. Do guidelines encouraging development
on brownfield sites risk damaging biodiversity?
Section 2.7 of Planning Policy Wales para 2.7.1
sets out clear guidance on the potential wildlife and heritage
value of previously developed land.
RESOURCES
22. Are there adequate resources for biodiversity
protection and enhancement?
So far an insufficient proportion of non-biodiversity
related budgets have been used to secure biodiversity gains. We
would recommend a two pronged attack in which devolved administrations
improve and increase the use of cross cutting funds and a GB level
fund is provided for BAP enhancement.
23. Has the Government addressed the need
to provide additional support for biodiversity protection in the
UK Overseas Territories?
N/A
PROTECTED AREAS
24. Is the UK protected area network up to
the job of maintaining biodiversity, now and into the future?
Although the EU legislation has traditionally
provided an essentially static approach to nature conservation
at odds with an increasingly dynamic environment due to climate
change, there has been movement in recent years. Sweden's fully
revamped series of Natura sites was accepted by the Commission
leading the way to allow designation of modified sites and site
systems across Europe.
There are two main weaknesses in the current
system:
Deterioration of site condition and loss or movement
of features due to climate change can not currently be addressed
sufficiently quickly but this could be dealt with through adapted
advice and guidance from the Commission.
There is a need to develop the resilience of
the network through development of sites between and around the
main sites. This might be addressed within current legislation
by stronger implementation of Article 10 of the habitats directive
and more consistent application of BAP protection at a local level.
25. Are arrangements to protect sites effective?
Generally speaking arrangements are effective
for sites once they have been identified. However implementation
of local wildlife sites guidance is still patchy so not all local
authorities have yet established a full list of suitable sites
for protection.
We are working with Defra and the other administrations
to establish an ecologically coherent network of marine protected
areas that will conserve rare, threatened and representative species
and habitats to maintain and facilitate the recovery of maritime
biodiversity and ecosystems. The overall aim is that the maritime
environment recovers to a healthy, diverse and resilient state.
26. Is more work needed to reduce habitat
fragmentation and to link up those semi-natural habitat areas
that remain?
Yes. Much of this could be achieved by extending
and building of the undoubted success so far of the BAP process
and better incorporation of biodiversity gains into all policies,
plans and projects from the outset.
This is not something that can be achieved by
legislation alone but requires a sea change in our communication
both within, between and outside public bodies.
REFERENCES
i http://new.wales.gov.uk/desh/publications/enviroconvers/enviroprogress092007/eswprogresse?lang=en
ii http://new.wales.gov.uk/topics/environmentcountryside/epq/Envstratforwales/about_the_strategy/?lang=en
2 June 2008
17 https://www.ukbap-reporting.org.uk/default.asp Back
18
http://www.lrcwales.org.uk/ Back
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