12
Sustaining biodiversity revitalising the Biodiversity Action Plan process The conservation of biodiversity is both a local and global concern. The UK Government has made a commitment to halt the loss of biodiversity by 2010 and has set targets to restore some of our most threatened species and habitats. More people than ever before want to take action to help our beleaguered wildlife. The Biodiversity Action Plan process is the best way for efforts to be channelled. The forthcoming review of the BAP is the ideal opportunity for us to learn from our experiences over the past 10 years and refresh the process for the future. Delivering this manifesto for change will ensure that conservation action is targeted at our current conservation priorities, that action is co-ordinated and integrated across all policy areas, that efforts are cost-effective and that people will continue to be able to enjoy the many benefits that biodiversity brings. In short, it will help enhance the well-being of people and wildlife throughout the UK. Conclusion 24 There is strong and growing support for the conservation and enhancement of biodiversity in the UK. Above: birdwatching by Andy Hay (rspb-images.com) Front cover: white bluebells by David Norton and girl looking at a bug by Carolyn Merrett (both rspb-images.com), anemones by Sue Scott (Marine Conservation Society) RSPB regd charity no 207076 23-1150-03-04 This publication was produced by the RSPB. This publication is supported by the following members of Northern Ireland Environment Link, Scottish Environment Link, Wales Environment Link and Wildlife and Coutryside Link: Sustaining biodiversity revitalising the Biodiversity Action Plan process

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Page 1: Sustaining biodiversity - The RSPB

Sustaining biodiversity revitalising the Biodiversity Action Plan process

The conservation of biodiversity is both a localand global concern. The UK Government hasmade a commitment to halt the loss ofbiodiversity by 2010 and has set targets torestore some of our most threatened species andhabitats. More people than ever before want totake action to help our beleaguered wildlife. TheBiodiversity Action Plan process is the best wayfor efforts to be channelled. The forthcomingreview of the BAP is the ideal opportunity for usto learn from our experiences over the past 10years and refresh the process for the future.

Delivering this manifesto for change will ensurethat conservation action is targeted at our currentconservation priorities, that action is co-ordinatedand integrated across all policy areas, that effortsare cost-effective and that people will continue tobe able to enjoy the many benefits that biodiversitybrings. In short, it will help enhance the well-beingof people and wildlife throughout the UK.

Conclusion

24

� There is strong and growing support for theconservation and enhancement ofbiodiversity in the UK.

Above: birdwatching by Andy Hay (rspb-images.com) Front cover: white bluebells by David Norton and girl looking at a bug by Carolyn Merrett (both rspb-images.com), anemones by Sue Scott (Marine Conservation Society)

RSPB regd charity no 207076 23-1150-03-04

This publication was produced by the RSPB.

This publication is supported by the following members of Northern Ireland Environment Link, Scottish Environment Link, WalesEnvironment Link and Wildlife and Coutryside Link:

Sustaining biodiversityrevitalising the Biodiversity Action Plan process

Page 2: Sustaining biodiversity - The RSPB

The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process 3

Summary 4

Introduction 6

A rich and healthy natural environment for all 6

Achieving truly sustainable development 8

The Biodiversity Action Plan process 10

What has been achieved? 12

Challenges for the future 14

Revitalising biodiversity 16

Getting biodiversity into the heart of policy 16

Making the necessary resources available 17

Redefining our conservation activities 18

Refreshing priorities 18

Updating targets 19

Improving plans 21

Enhancing survey and monitoring 21

Objective reporting 23

Conclusion 24

This manifesto highlights why biodiversity is

essential to all our lives. It explains how the

Biodiversity Action Plan (BAP) process

has been developed to sustain and

enhance this biodiversity and makes

recommendations on the ways the

process can be improved to meet the target

of halting biodiversity loss by 2010.

Contents

Bittern by Andy Hay (rspb-images.com

)

Red

adm

iral b

y Chris

Gomersall (rspb-images.com)

Sunset by Clyde H Smith (Still Pictures)

Walkers by Andy Hay (rspb-images.com)

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Summary

5

Summary

4

Sustaining biodiversityrevitalising the Biodiversity Action Plan process

What is biodiversity?

Biodiversity is the earth’s life support system. It includes all plants, animals and micro-organismsand the places where they live. Biodiversityprovides direct and indirect economic, social,aesthetic, cultural and spiritual benefits.

The state of our biodiversity is a key measure ofsustainable development. We have already losttoo much of our wildlife and wild places.Conserving and restoring the biodiversity that isleft improves everyone’s quality of life. It bringssignificant benefits for the economy as well aspeople’s mental and physical health, and socialwell-being.

What we are doing about conserving it

The UK Government and its devolvedadministrations are committed to conservingbiodiversity under the UN Convention onBiological Diversity. The BAP process – acommon agenda for nature conservation in theUK – helps to meet these obligations. It co-ordinates and drives action at national and locallevels by encouraging policies to rescue our mostthreatened wildlife and will enable the rest of ourbiodiversity to thrive.

The BAP process has plans for priority speciesand habitats. It also has strategies to develop andinfluence the policies that deliver the objectivesthat are detailed in the plans. Each plan involvesauditing biodiversity to assess its condition.Priorities for action are then established and

targets are set to help monitor progress.

The BAP process is primarily delivered atthe devolved level (ie England, NorthernIreland, Scotland and Wales). It is rightthat each country or devolvedadministration should develop its ownbiodiversity and/or sustainable

development strategy, but it is vital thatthese collectively meet the UK’s

commitments to the Convention onBiological Diversity.

Progress to date

Over the last 10 years the BAP process hassuccessfully focused resources and effort onbiodiversity priorities through a partnership ofnational and local government, business and thevoluntary sector. The decline of some species hasbeen halted, but there is still much more to do toprevent extinctions and habitat destruction.

What needs to happen now?

Action for biodiversity needs to continue and weneed to keep the momentum up. This means thatthe BAP process needs some re-focusing toensure that it is relevant and takes into accountthe changing world, including the implications ofdevolved government, major agricultural reformsand climate change. The 2005 review of the BAPprocess needs to challenge our ambitions. Thebiodiversity or sustainable developmentstrategies need to inform and encourage thewider development of policies sympathetic to theneeds of wildlife and people.

In this manifesto, we have identified 26 ways toimprove our approach to wildlife. From the 26action points, the following five themes are ofparticular importance:

1 Government commitment and policyintegration: It is important that the respectivedevolved administrations report frequently onthe progress of their biodiversity and/orsustainable development strategies. They alsoneed to show how biodiversity has been takeninto account in all appropriate policy areas.(Recommendations 1–3).

2 Resourcing: The scale of the action requiredto achieve favourable conservation status forBAP species and habitats means that moreresources are needed. A review and revisionof subsidies, incentives or policies thatprevent biodiversity targets being achieved isneeded from the devolved administrations.(Recommendations 4–7).

3 Prioritisation and action planning: Revisedlists of priority species and habitats atdevolved and UK levels are needed to ensureour action is appropriate (Recommendations8–12). Targets for the species and habitatsidentified should be set at a devolved leveland should be clear and measurable. Thesetargets should also be amalgamated toproduce targets for the UK as a whole thatwill achieve favourable conservation statusfor priority species and habitats. HabitatAction Plans need to be implemented at alandscape scale. (Recommendations 13–18).

4 Monitoring and surveillance: Improvedmonitoring and surveillance ofbiodiversity is urgently needed, and theUK Countryside Survey, planned for 2006,should be developed to help meet habitatmonitoring requirements.(Recommendations 19–25).

5 BAP review timetable: The timetable for futureBAP review is needed urgently from theBiodiversity Partnership Standing Committeeto show how a more effective BAP processwill be delivered. (Recommendation 26).

� Biodiversity informs and enriches our lives,we all still have much to learn from it.

Sustaining biodiversity revitalising the Biodiversity Action Plan processSustaining biodiversity revitalising the Biodiversity Action Plan process

Pond

dipp

ing

(rspb

-imag

es.c

om)

Song thrush by Chris Gomersall (rspb-im

ages.com)

Cycl

ist b

yAn

dyHay

(rspb-im

ages.com)

Page 4: Sustaining biodiversity - The RSPB

Introduction

7

Introduction

Sustaining biodiversity revitalising the Biodiversity Action Plan process6

In 1994, the UK started to meet its obligations tothe 1992 Rio Convention on Biological Diversityby producing the UK Biodiversity Action Plan(BAP). For the first time, a common agenda fornature conservation was prepared and targetswere set to judge performance. Government,voluntary organisations and industry joinedforces at national and local levels to try to rescueour most threatened species and habitats.

Ten years on, much progress has been made.Some species have been saved from extinction,the loss of many habitats has been halted andsome are being restored. But we still have muchmore to do. The pace of progress is insufficient ifwe are to meet new international commitmentsand adapt to the realities of climate change. Weneed to learn from our experiences and respondto new conservation priorities and changingpublic aspirations. We therefore believe it is timeto reinvigorate this plan. This manifesto re-affirmswhy biodiversity is essential to all of us and offersa set of recommendations to help policy makersand participants in the BAP process meet thechallenges ahead.

IntroductionA rich and healthy natural environment for all

Biodiversity is the variety of life on the planet. Itincludes all plants, animals and micro-organismsand the places or habitats where this wildlife lives.Conserving biodiversity is vital to our future survivaland our quality of life. Our biodiversity is part of ashared global heritage and is the earth’s lifesupport system. This is why we have a duty underinternational conventions towards its conservation.

European environment ministers(including the UK minister), havecommitted to halting biodiversityloss by 2010 as part of the EUSustainable Development Strategy,(Presidency Conclusions of theGöteborg European Council, 15–16June 2001, SN 200/1/01 REV 1)

‘Biodiversity is still declining. Theclock is ticking. It is time to ring thealarm bell – we have to move fromwords to deeds.’

Margot Wallström, Member of theEuropean Commission, responsiblefor Environment, February 2004.

� Biodiversity is not our gift to destroy but aresponsibility to conserve.

Biodiversity matters to people

� It provides direct economic benefits – eg in farming, fisheries, forestry,pharmaceuticals, manufacturing and tourism.

� It provides indirect economic benefits eg flood control, waste watersystems, water quality, soil creation and stabilisation and human health.

� It has a social value eg for recreation and enjoyment of the countrysideand urban areas.

� It has aesthetic, cultural and spiritual value – it enriches ourquality of life, it inspires, entertains and motivates us. It makes the world abetter and healthier place to live.

Biodiversity is valued for its own sake. We careabout whether or not it is conserved. Peoplevalue knowing that species and habitats exist,and worry about the loss of UK plants andanimals. But biodiversity conservation is aboutmore than preventing extinctions – it is also aboutputting back what we have lost where we can,and ensuring it is in good health for futuregenerations. Maintaining and restoring habitats,from deep water corals to woodlands and wetmeadows to coastlands, helps us fulfil ourinternational obligations, provides crucialprotection for important resources and improvespublic health by encouraging sustainableexercise and recreation.

If we are to continue to benefit frombiodiversity, and meet our internationalresponsibilities, we need a renewedcommitment and a long-term strategythat better integrates environmentalactions. This is also necessary for usto gain support from all sectors anduse resources efficiently.Governments identify goals andstrategies for health, education andthe economy and equal weight needsto be given to the environment.

� Bottlenose dolphins in the Moray Firth.Wildlife watching is an increasinglyimportant contributor to the economy. Italso inspires people.

Sustaining biodiversity revitalising the Biodiversity Action Plan process

� Lack of physical activity is a nationalproblem: it costs the National HealthService in the UK millions of pounds peryear. Projects encouraging people to takeup walking or undertake countrysidemanagement really work1. Theattractiveness of the countryside, which isstrongly dependent upon biodiversity, actsas a real motivator. Look after biodiversityand we help look after the nation’s health.

1See Walking the way to health, www.whi.org.uk, andgreen gym www.btcv.org/greengym/An

emon

es b

y Su

e Sc

ott (

Mar

ine

Cons

erva

tion

Soci

ety)

Bottlenose dolphinC

Gomersall(rspb-im

ages.com)

Walkers on Pembrokeshire coastal path by David Woodfall (Woodfall Wild Images)

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Introduction

9

Introduction

8

Conserving and restoring biodiversity will improveour quality of life. For example, in England, the

Government has officially recognised this byconsidering the population of wild birds

as one of its 15 ‘headline’ quality of lifeindicators. Other indicators includethe condition of Sites of SpecialScientific Interest, progress withBiodiversity Action Plans, and thearea of land under agri-environment agreements/schemes.

1970 1974 1978 1982 1986 1990 1994 1998 2002

Year

120

100

80

60

40

Popu

latio

n in

dex

(197

0=10

0)

Source RSPB, BTO, Defra

All (106)

Woodland (33)

Farmland (19)

� Population of wild birds in the UK 1970–2002.

The population of wild birds is also one of thekey indicators of sustainable development inWales. In Scotland, sustainable developmentindicators include the percentage of BAPspecies and habitats identified as stable orincreasing and the proportion of fish stockswithin safe biological limits.

Protecting wildlife sites makeseconomic sense. A recent studyestimates that a global nature reservenetwork would bring goods and servicesworth about one hundred times the costof such a network.

(Balmford et al 2002, Science 297:950-953).

Achieving truly sustainable development

The state of our biodiversity should be a keymeasure of sustainable development. Forsustainable development, economic and socialdevelopment should not be at the cost ofbiodiversity. Government at all levels needs tocheck that policies result in maintaining thepresence of our natural heritage and enhancing it.The biodiversity process provides the UKGovernment, devolved administrations and localgovernment with a way of delivering theirsustainable development obligations, often throughinternational agreements that have been ratified bythe UK Government.

One practical way of encouraging sustainabledevelopment is through the application ofStrategic Environmental Assessments (SEA) to allplans and programmes. The EU Directive on theAssessment of the Effects of Certain Plans andProgrammes on the Environment (or SEADirective as it has become known) was agreed in2001. It is to be implemented by Member Statesby 21 July 2004 and it should help to ensure thatthe environmental consequences of policies,plans and programmes are identified, assessedand minimised. The SEA should be an essentialtool in achieving sustainable development andintegrating environmental thinking across all

Government policies and operations.Under the UN Convention on Biological Diversity,the UK Government is committed to developingnational strategies, plans and programmes forthe conservation and sustainable use ofbiological diversity.

The UK Government has put in place legislation,policy statements and guidance to progressinternational obligations and national aspirations.The UK Biodiversity Action Plan and thedeveloping biodiversity strategies (in England,Northern Ireland and Scotland) and sustainabledevelopment strategies (in Wales) provide theframework to take these forward and importantmechanisms for delivery.

‘Just as every decision and action istargeted at closing the opportunity gaps,so too will all our work be judged againsthow well we conserve and sustain theenvironment that our children will inheritfrom us. Scotland is a land of manyriches: our natural resources and thetalents of our people. Our responsibility tofuture generations is to conserve, protectand harness all those resources.’

Jack McConnell MSP, Scotland’s FirstMinister, April 2002.

Sustaining biodiversity revitalising the Biodiversity Action Plan process

� Development that damages biodiversity isunsustainable. Conserving biodiversity isnot an ‘option’, it is essential for ourfuture well being.

Sustaining biodiversity revitalising the Biodiversity Action Plan process

‘We are extremely fortunate that [here] inWales we still have an exceptionaldiversity of habitats and our flora andfauna include many distinctive species.Many of these are of European andinternational importance and we have aspecial responsibility to ensure thatthese habitats and species are handedon in a good condition for futuregenerations to come. ... Delivery will notbe achieved overnight but withconcerted effort I am confident that realprogress can be made.’

Carwyn Jones AM, Welsh AssemblyGovernment Minister for Environment,Planning & Countryside, May 2003.

Housing development on heathland by Chris Gom

ersall (rspb-images.com

)

Tree

spar

row

and

tract

orby

Andy

Hay(rs

pb-images.com)

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The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process 11

The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process10

There are two interlocking aspects to the BAPprocess – plans and strategies. A total of 391species action plans and 45 habitat action planshave been produced, identifying therequirements of the UK’s highest biodiversitypriorities. Consideration of the suite of plans hashelped to identify policy areas where reformsare needed to enable better delivery of theirobjectives – for example in agriculture, fisheries,forestry, water and urban areas. It hashighlighted the importance of policy integrationto work towards a joined up approach to theconservation of biodiversity. Strategies are beingprepared to develop and influence policies inareas that profoundly influence plan delivery.

� Interest in biodiversity is not confined torainforests and pandas; it concerns lookingafter the full range of wildlife in the UK.

The Biodiversity Action Plan processProducing the Biodiversity Action Plans involvessix key activities:

1 undertaking the audit to identify the state ofbiodiversity

2 establishing priorities – the species andhabitats that are the highest priority forconservation action

3 setting clear, quantifiable objectives andtargets for specific species and habitats withan end point against which progress can bemeasured

4 preparing action plans to set out the workrequired for each species and habitat

5 co-ordinating the implementation of actionplans by allocating actions and ensuring clearlines of responsibility

6 monitoring and reviewing to provideinformation to assess progress on targets,action and deployment of resources.

‘Even if we had done all we could toprotect our most precious sites and rarestspecies, it would be insufficient toaddress modern society’s pervasiveinfluences on biodiversity. For that, weneed fundamental shifts in policy andbehaviour to integrate concern forbiodiversity into every aspect of our lives.’

Rt Hon Margaret Beckett MP, Secretary ofState for the Environment, Food and RuralAffairs at the launch of the BiodiversityStrategy for England, 24 October 2002.

It is vital that common standards are adoptedacross the UK. This includes using commoncriteria to select and review priority habitats andspecies, collecting common information, usingcompatible reporting systems and identifyingshared research priorities. Besides helping tocomply with international obligations, there arepractical, conservation, and financial reasons foradopting common standards and continuing toreport progress at a UK level.

� Conservation begins at home – the UKhas a wonderful wealth of importantand, in some cases, endemicbiodiversity. Up to 50% of all theworld’s bluebells are found in the UK.

� Some of our best wildlife sites, such asthe Ouse Washes, are being damaged byactivities outside the site boundary. We must address these issues byamending policies and programmes,including removing inappropriate financialsupport for damaging activities.

In England, 47 indicators have beendeveloped to help monitor theimplementation of the England BiodiversityStrategy. The most important is the status ofBAP priority species and habitats because,ultimately, favourable conservation statusof these species and habitats is what thestrategy is trying to achieve.

Throughout England, Scotland and Wales, LocalBiodiversity Action Plans (LBAPs) have beendeveloped. The LBAP process aims to ‘focusresources to conserve and enhance thebiodiversity resource through local partnerships,taking account of both national and localpriorities’. LBAPs provide an important way ofinvolving local people and local organisations,

Ouse Washes by Chris Gom

ersall(rspb-images.com

)

Snowdonia N

ationalPark by David Woodfall (David W

oodfall Images)

fresh

wat

er b

ryoz

oan

loph

opus

cry

still

inus

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atur

al H

isto

ry M

useu

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ondo

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The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process 13

The Biodiversity Action Plan process

12

including Local Authorities, in biodiversityconservation. They are important strategicdocuments that identify national and local priorityspecies and habitats that need to be consideredas part of community planning. They help to focuspractical delivery of biodiversity conservation at alocal level. The process of developing an LBAPfollows the same key activities outlined above.

The BAP process is a key way for the UKGovernment, devolved administrations and localgovernment to co-ordinate their policies todeliver a healthy natural environment. Inparticular, it sets out to conserve and enhance:

� the range and numbers of wildlife speciesand the quality and extent of wildlife habitats

� species that are internationally important orcharacteristic of local areas

� species and habitats that have declinedsignificantly over recent decades.

The BAP process provides the framework for thedevolved administrations to work with non-government organisations (includingvoluntary conservation bodies, industry and otherstakeholders) to further biodiversity conservation.It allows a shared understanding and ownershipof conservation priorities. This common agendaensures cost-effective action.

What has been achieved?

Massive change in the countryside over the lastcentury has resulted in large-scale habitat lossand degradation. It would be unrealistic to expectsignificant improvement in the status of our mostimportant and threatened habitats and speciesimmediately on the introduction of the BAPprocess. However, in the last 10 years it hashelped to focus resources and effort onbiodiversity priorities through a partnership ofnational and local government, business and thevoluntary sector. By 2002, 72% of plans weremaking progress on at least one target, althoughthis also means that 28% of plans had still tomake progress on any of their targets.

� Volunteers planting new reedbed –biodiversity conservation is about morethan preventing extinctions, it is also aboutputting back some of what we have lost.

In interpreting these charts, it is important toappreciate that the species and habitats includedare the highest priority for conservation action inthe UK. In many cases, they are listed because ofsignificant declines over many years, eg skylarks,water voles and native oysters. This means that itwill often take a great deal to turn their fortunesaround and achieve favourable conservationstatus. Therefore, while some of the species andhabitat trends are given as ‘stable’ this is notnecessarily satisfactory. A species or habitat may

� Delivering action plans for species suchas the corncrake involves fullconsideration of the socio-economicneeds of crofters, farmers and landmanagers. Co-ordinated conservationaction is working. In 2003, 820 callingcorncrakes were recorded, the highestfigure since at least 1977.

Sustaining biodiversity revitalising the Biodiversity Action Plan process

Increasing13.3%

Stable13.3%

Declining (slowing)31.1%

Declining(continuing/accelerating)

6.7%

Fluctuating/No clear trend4.4%

No data entered2.2%

Unknown28.9%

Increasing6.4%

Stable19.4%

Declining (slowing)7.7%

Fluctuating/No clear trend10.2%

Declining(continuing/accelerating)

17.1%

Unknown28.1%

No data entered6.9%

Lost (since BAP publication)0.3%

Lost (pre BAP publication)3.8%

Figure 1 The UK trends of UK BAP Priority Habitat s (N= 45)

Figure 2 The UK trends of UK BAP Priority Species (N= 391)

have suffered a massive decline and thechallenge is, therefore, restoration to formerlevels. Nevertheless, it is encouraging that 13%of habitats and 6% of species were assessed as‘increasing’. In addition, some species havestarted to meet their initial targets, whichindicates that we are making progress towardstheir favourable conservation status.

Much remains to be achieved. A significantproportion of habitats (38%) and species (25%)

Plan

ting

reed

s an

d co

rncr

ake

by A

ndy

Hay

(rspb

-imag

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om)

Data for pie charts courtesy of 2002 UK Biodiversity Reporting. (www.ukbap.org.uk/2002onlinereport/2002report.htm)

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The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process 15

The Biodiversity Action Plan process

Sustaining biodiversity revitalising the Biodiversity Action Plan process14

are still declining and the trend is unknown for31% of habitats and 35% of species. The resultsof the 2002 report highlighted the groups of planswhere relatively little progress has been made.For example, progress on targets for marine BAPsand for re-creating terrestrial habitats has beenvery limited. This underlines the need to re-invigorate the way marine and habitat BAPs areimplemented, including developing a greatersurvey and monitoring effort to gather adequatebaseline and monitoring data.

The BAP process needs to be adopted as a keydriver of environmental policy. In England andWales, the Countryside and Rights of Way Act(2000) gives Ministers, Government departmentsand the National Assembly of Wales a duty toconserve biological diversity in accordance withthe Convention on Biological Diversity. TheSecretary of State (for England) and the NationalAssembly of Wales (for Wales) have duties toproduce lists of species and habitats of principalimportance for their respective countries and tofurther the conservation of these priorities. Inaddition, the England Biodiversity Strategy hasbeen adopted by the Department for Environment,Food and Rural Affairs as one of its key projectsand programmes. This is a welcome step.

In Scotland, the Nature Conservation (Scotland)Bill 2004, places a duty on every public body andoffice holder to further the conservation ofbiodiversity and for Ministers to designate aScottish Biodiversity Strategy with regularreporting on progress to parliament. A duty toproduce lists of priority species and habitats isalso being considered. Northern Irelandpublished its Biodiversity Strategy in 2002 and asteering group has now been appointed tooversee its implementation, while Wales isaddressing the need for policy reform to helpbiodiversity through its revised sustainabledevelopment strategy.

Challenges for the future

Long term conservation of biodiversity will bemost effective if it is conducted on the mostappropriate scale. The health and wealth of ourbiodiversity, and its ability to cope with thecompeting pressures placed upon it, has beenseverely compromised by past fragmentation ofhabitats and species populations and will becompromised in the future by the impacts ofclimate change. Fragmentation means thatspecies and habitats have become criticallydisconnected from much of the natural order

� For widespread farmland species such as the brown hare wemust farm the countryside in an environmentally responsible way.Proposed reforms of the Common Agricultural Policy need to beadopted and further developed.

essential for them to survive. Management thatre-establishes those connections at all scales (eglocal, ecosystem or landscape) is essential forthe long-term protection and enhancement ofbiodiversity resources, from conserving andprotecting genetic variability to conservinglandscape-scale systems in order to adapt to thepressures that climate change will create. Suchmanagement can be achieved in two ways:

1 through the actions and targets withinindividual Habitat Action Plans and SpeciesAction Plans

2 through individual biodiversity and/orsustainable development strategies and theirinfluence on wider policy areas, such aswater and agriculture, which affect plandelivery.

An important part of the BAP process ismonitoring progress and learning from findings.Progress on Biodiversity Action Plans up to 2002was reported in 2003. The external world ischanging fast, so we need to refresh and refocusthe plan so it is fit for future challenges. We needto reassert its relevance and take account of newGovernment institutions, major policy reforms andclimate change.

In this manifesto, we outline our shared prioritiesfor reviewing the UK Biodiversity Action Plan anddetail 26 recommendations for improving thecontent of the plan and its delivery.

� Human-induced climate change is a majorthreat to the UK’s biodiversity. It is vital thatwe take steps both to reduce emissions tolessen climate change, and to reduce theimpacts of the changes that will occur, byadapting our conservation efforts.

Brown hare by Chris Gomersall (rspb-images.com)

Traffic by Andy Hay (rspb-images.com

)

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Revitalising biodiversity

Sustaining biodiversity revitalising the Biodiversity Action Plan process 17

Revitalising biodiversity

Sustaining biodiversity revitalising the Biodiversity Action Plan process16

To meet our international commitments to haltthe loss of biodiversity in the UK by 2010 weneed to revitalise the BAP process. Key to thiswill be ensuring biodiversity is at the heart of allGovernment policies on sustainable developmentand that the plans are refreshed and refocused.

‘We want a Scotland that deliverssustainable development; that putsenvironmental concerns at the heart ofpublic policy and secures environmentaljustice for all of Scotland’s communities.’

Jack McConnell MSP (Scotland’s FirstMinister) and Jim Wallace MSP (Leaderof the Scottish Liberal Democrats) insupport of the ‘Partnership for a betterScotland’ agreement. 15 May 2003

Getting biodiversity into the heart of policy

Major infrastructure developments, urbanexpansion, water pollution/abstraction, airpollution, agricultural intensification, andinappropriate forestry and fisheries managementcan cause major problems for biodiversity. These

Revitalising biodiversity

policy areas need to become part of the solution,as new opportunities for more environmentallysensitive and integrated policies arise – such asthrough the reform of the Common AgriculturalPolicy, the development of agri-environmentschemes, the Water Framework Directive, tighterlegislation to protect environmental resources andprevention of pollution, and sustainable forestrypractices. Biodiversity considerations should beincorporated into all appropriate policies andprogrammes, not just those relating to agriculture,forestry, water and fisheries but also policies forenergy, transport, planning and taxation.

The biodiversity and sustainable developmentstrategies provide the overall administrative andpolicy framework for the BAP process to operateand through which the collective objectives ofthe action plans can be delivered. In particular,these strategies have attempted to identify andpropose actions to address cross-departmentpolicy issues that affect biodiversity.

The key test of these strategies will be howeffective they are at ensuring that biodiversity isfully considered in all appropriate policies.

Recommendations1 Frequent reporting of progress on

biodiversity or sustainable development strategies by the devolved administrations is needed. The reportingmechanisms need to be clear and objective to demonstrate how biodiversity has been taken into account in all appropriate policy areas.

2 The UK Government needs to consider how it can take the opportunity to use the BAP process to help implement the requirements of EU Directives – particularly the achievement of favourable conservation status for species and habitats listed on both the EU Birds and Habitats and Species directives.

3 Funding programmes linked to all policy/legislative initiatives should be assessed and guided by appropriate Government departments to maximise delivery of BAP (eg Forestry Grant Schemes, Water Framework Directive and agri-environment schemes)

Making the necessary resources available

The 2002 BAP reporting round showed that wehave made significant progress in meeting somebiodiversity targets. This has been mostsuccessful for those species that have beensubject to targeted, specific recoveryprogrammes, eg corncrakes, bitterns and largeblue butterflies. However, we are currentlybehind schedule for a large proportion of speciesand habitats. It is also apparent that there is aconsiderable gap in our knowledge on the statusand trends for many species and habitats (forexample, those in the marine environment). Insome cases, this may be because conservationmeasures have not yet had time to take effect,but resource constraints and perverse subsidies(for example, grants for restocking conifers onancient woodland sites or on important openground habitats such as lowland heathland)undoubtedly continue to hamper progress.

The scale of the action required to achievefavourable conservation status for BAP speciesand habitats means that more resources arelikely to be needed. The cost of this work has yetto be properly assessed. Some of the cost willrelate to bringing notified Areas or Sites ofSpecial Scientific Interest (ASSIs/SSSIs), SpecialProtection Areas (SPAs) and Special Areas forConservation (SACs) into favourable condition. A huge amount can also be achieved byincorporating the needs of species and habitatsin, for example, forestry management and agri-environment schemes (see above).

Finally, we can make better use of resources, forexample through better targeting of grants forbiodiversity work and by encouraging volunteersfor conservation action and monitoring.Volunteers already make a great contribution toour work towards BAP targets. Efforts should bemade to develop and increase this.

� Development must avoid the mostimportant sites for wildlife – where it doesgo ahead biodiversity must be ‘built’ in toit from the outset.

� We need to consider ways in which theBAP can help to deliver Europeanconservation obligations, includingfavourable conservation status, forspecies such as the great crested newt.

Recommendations4 Statutory nature conservation agencies

should review and update their recoveryprogrammes for all ‘conservationdependent’ BAP species and habitats (iethose that require specific action that isunlikely to be met by policy reformalone), to ensure that they provideadequate support by 2005.

5 Government departments should identify, for review and revision, any subsidies, incentives or policies that arepreventing the achievement of biodiversity targets. These should be revised where they are contrary to obligations under EU Directives and statutory designations. Revision shouldrequire integration with complementaryobjectives of other environmentalsubsidies and policies.

6 From 2005, revised species and habitatBAPs (at UK level or, where these donot exist, country or devolvedadministration level) and strategiesshould be used to help determineresource allocation at national, regionaland local levels.

7 The UK Government should negotiateresearch funding with the NaturalEnvironment Research Council with aview to increasing levels of funding tobiodiversity priorities.

Housing by Andy Hay (rspb-images.com

)

Great crested newt by Roger W

ilmshurst (rspb-im

ages.com)

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Redefining our conservation activities

To deliver biodiversity conservation throughoutthe UK, the approach to species and habitatconservation needs to be revised. We lookforward to contributing to the review of priorityspecies and habitats, which is being undertakenin 2005, and working to ensure that UK targets areincorporated into any subsequent national,regional and local plans. This should ensure thatwe have:

� revised lists of priority species and habitats atUK, national, regional and/or local levels

� clear, measurable targets that will achievefavourable conservation status for these toppriority species and habitats

� updated action plans with a clearly definedrole at each geographical level and allocationof responsibility to ensure effective and co-ordinated delivery

� improved monitoring of biodiversity to assessprogress

� clear reporting that identifies gaps inknowledge and blockages to progress.

Refreshing priorities

Conserving biodiversity is a big challenge. Timeand resources are short, so choices have to bemade on where effort should be expended. Oneof the strengths of the UK approach is that itprovides the framework for setting clear prioritiesfor action. The species and habitats consideredto be most in need of conservation action wereidentified in 1995. In Wales, additional nationalpriorities have been agreed, reflecting speciesand habitats of particular interest at this level.

However, with new information available and withchanges in status of some species and habitats itis time to re-assess these priorities. In a devolvedUK, priorities to target action and meetinternational obligations need to be set atdevolved level and UK priorities must be identified.This needs to be considered in the light of the roleof the BAP and recognising that different priorityspecies and habitats may require differentconservation approaches. While a number ofplans will undoubtedly require significantproactive measures, the inclusion of a species orhabitat in a priority list may simply require amonitoring programme to ensure the currentstatus is maintained, or that it is recognised inprotection policies. It is important that keyhabitats or species are not excluded from any listssimply because insufficient data are available orpeople are currently unsure what to do.

� It is vital that we revise our UK list ofpriority species to ensure that those inmost need of conservation action get it.The grizzled skipper, which was oncecommon throughout England, has declinedby 48% in the last 20 years.

� Juniper, a UK priority species, is featuredin 16 LBAP species action plans andoccurs in many more LBAP areas whereother appropriate action has beenundertaken. It is vital that LBAPs clearlyidentify all UK priority species and habitatsthat occur in their area in an audit or list,even if they do not produce local plans forall of them.

The UK list of priority species was based onthose globally threatened or rapidly declining inthe UK (more than 50% in 25 years). For habitats,the selection criteria were internationalimportance, risk (due to decline or rarity) andfunctional significance.

Recommendations8 Biodiversity groups in England, Northern

Ireland, Scotland and Wales should identify (or update) national priority lists in partnership with relevant taxonomic experts and Lead Partners.

9 In preparation for the 2005 review, the original criteria for selecting priorities should be re-applied to UK species and habitats by the Biodiversity Reporting and Information Group in collaboration with relevant taxonomic experts and Lead Partners, using the latest information.

10 Any species or habitat that now meets the criteria should be added to the UK priority list.

11 Following implementation of recommendation 9, current BAP species and habitats should only be removed from the priority list if there is convincing evidence that they have favourable conservation status and conservation action is not required to sustain that status.

Local Biodiversity Action Plans (LBAPs) vary inthe way they deal with UK priorities. They shouldaim to reflect national priorities and contributetowards national targets, nesting within andinforming the national process. In addition tohelping encourage local action for nationalpriorities, they identify and deliver action forlocal priorities.

Recommendations12 Regional/Local BAP partnerships and

Lead Partners should work together to ensure that all appropriate UK and national priority species and habitats are identified in plans at the regional/local level, in addition to species or habitats of local importance.

Updating targets

Targets in Biodiversity Action Plans serve severalpurposes by:� providing agreed objectives for all partners to

work towards� enabling progress to be measured� enabling success to be celebrated; and most

importantly� providing the correct focus on real biological

outcomes rather than conservation activity.

Targets for species and habitats can be dividedinto two broad categories:

Maintaining a species population or the extent ofa habitat at, or above, a minimum figure. Thesetargets are effectively saying this is the bottomline, below which we really cannot let things slip. Restoring/enhancing biodiversity. This may referto increasing a population or its range, increasingthe extent, or improving the condition of a habitat.These targets often aim to reverse, or at leaststart to reverse, known declines.

The targets may be set at a pragmatic milestonetowards favourable conservation status (aninterim or milestone target) or at what isconsidered to be favourable conservation status(an end point target).

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Juniper by Bob Gibbons (NaturalIm

age)

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Many of the existing targets were set in 1995 or1998 with dates for completion of 2005 or earlier,and we now have the opportunity to review thembased on better knowledge. Good targets shouldbe specific, measurable and time limited.

For example

Target one (milestone) increase the extent ofhabitat x from 2,600 hectares to 3,200 hectaresby 2010, Target two (end) increase the extent to 6,000hectares (believed to represent favourableconservation status) by 2025.

Targets need to be reviewed and reset if they areto remain relevant and challenging.

� For habitats, including upland heathland,the first priority is ensuring that existingareas are managed appropriately.

� One effective way of enhancingbiodiversity in the marine environment isto create ‘no take zones’ or ‘wildlifesanctuaries’. These can provide long-termbenefits for sustainable fisheries as wellas biodiversity.

� We also need clear, ambitious targets forre-creating vibrant habitats, such asreedbeds. This will help stimulateconservation action on the ground.

Recommendations13 By the end of 2004, the UK Biodiversity

Reporting and Information Group shoulddevelop guidelines for producing realistic but ambitious biological targets.

14 The Lead Partners that have been tasked with co-ordinating the implementation of species and habitat plans should be involved in producing the revised targets in 2005. These should represent favourable conservation status or milestone targetsfor all priority species and habitats at a devolved level. These targets should be agreed by the respective biodiversity groups and amalgamated to produce UK targets.

15 A timetable and mechanism for future target review is needed from the UK Biodiversity Partnership Standing Committee by 2006.

Improving plans

Plans are important to identify the actionneeded to conserve priority species andhabitats effectively. The plans include targets,actions and timeframes. Lead Partners co-ordinate efforts, encourage action andreport on delivery. New plans will need to beprepared and new Lead Partners identified fornew priorities. This should be done quickly andefficiently, once the priority lists are agreed.However, plans exist at many levels – from theparish up to Government level – and resourcesare allocated at all of these levels. To ensurethat resources are used optimally and that plansat each level work together to reach UK targets,the role of each plan must be defined and allpartnerships must receive sufficient support,training and resources to develop and deliverplans effectively.

Lead Partners play a vital role in protecting and restoring biodiversity at national and locallevels. They must be given the necessarysupport, resources and training to do the job well.

Action towards BAP targets should be designedand conducted at the most appropriate spatialscale, working towards restoring and maintaininghealthy, fully functioning ecosystems. Actiontherefore needs to be based on partnership andlong-term vision.

Recommendations16 Following the review of species and

habitat priorities, new and appropriate UK biodiversity action plans need to be produced for priority species.

17 The slow progress on targets for some groups of plans requires investigation by the UK Biodiversity Partnership Standing Committee. By the end of 2005,measures need to be introduced to improve the delivery of these plans.

18 Habitat Action Plans need to be implemented with ambition and imagination to ensure that conservationis delivered at a landscape scale. Habitat Action Plan Steering Groups should focus on the development of collaborative site or area based projects to maintain or restore healthy ecosystems.

Enhancing survey and monitoring

Where progress on achieving BAP targets hasbeen limited – for example with marine BAPs –this is often due to a lack of data on the speciesand habitats concerned. We need to know whatthe trends are for our most threatened speciesand habitats and take the appropriate actionaccordingly. The information also needs to beinterpreted in local, regional, national, UK andEuropean contexts.

There is a strong tradition of recording in the UK,particularly by volunteer naturalists – forexample more than a quarter of a million hoursof volunteer time were invested in fieldwork forthe production of the New Atlas of the Flora ofBritain and Ireland (2002). National RecordingSchemes for a number of groups, eg birds andbutterflies, have provided very valuableinformation on the status of our biodiversity.Indeed, birds are used as a key biodiversityindicator. Yet, one of the most significantfindings of the 1999 and 2002 reporting roundswas the huge gaps in our knowledge of bothdistribution and trends. In 2002, the trend for29% of habitats and 28% of species was givenas unknown. In addition, even where trendswere given, in a high proportion of cases thiswas based on best or informed guesses ratherthan on some form of survey. For example, onlyeight out of the 28 habitats (where an estimate

� Volunteers, such as this diver carrying outSeasearch (www.seasearch.org.uk), aremaking a huge contribution to monitoringand surveys, but important gaps incoverage remain.

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Diving by Joe Jamieson (M

arine Conservation Society)

Dead

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Reed

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of trend was given) were based on full or samplesurvey results.

It is important to build on and develop thebiological recording work already beingundertaken and to integrate the voluntary andstatutory efforts where possible to maximise thebenefit to nature conservation. Considerationneeds to be given to extending national recordingschemes to further groups of species and howthis data collection can be used most effectivelyat a local level, for example in local plans and byLocal Records Centres. The development of theNational Biodiversity Network should continue tobe supported and encouraged by Government toensure the best use and exchange of data andthe integration of national schemes and localrecording initiatives.

Government-funded schemes should make thebest use of monitoring and survey work that hastaken place or is planned, and ensure that thereis coherence behind the objectives of theseprogrammes. For example, the UK CountrysideSurvey provides an assessment of the quality andextent of the UK’s terrestrial habitats. It does,however, have the potential to be of greater use,specifically in monitoring trends in BAP habitatsand will need revision to address the needs of thefour respective administrations. Likewise, manypublic bodies, such as the Forestry Commission,undertake substantial monitoring on their landthat could be used to monitor BAP woodlandspecies and habitats. There is no escaping thepressing need for more co-ordinated, systematicsurveying of terrestrial, freshwater and marinespecies and, particularly, habitats.

Recommendations19 The UK Countryside Survey 2006 should

be revised by Defra and the Centre for Ecology and Hydrology and refined to ensure it provides trend information on quality and extent of BAP habitats in a statistically robust way for both devolved and UK-level assessment.

20 Monitoring and surveillance of priority species and habitats should be improved urgently with adequate resources supplied by statutory nature conservation agencies and public bodies to include support for updating ofhabitat inventories where necessary. This is vital if we are to determine trends and assess whether targets havebeen met.

21 By the end of 2004, Statutory Nature Conservation Agencies (in partnership with non-governmental conservation organisations) should agree common definitions and common standards for habitats and produce a timetable for a monitoring programme that will enable reporting on trends and targets.

22 The existing expertise and enthusiasm of volunteers should be targeted by the appropriate Government agencies and voluntary organisations to support BAP monitoring and delivery. A concerted effort is needed from these agencies and the education system to produce the next generation of field naturalists and deliver adequate monitoring in the future.

23 The role of National Recording Schemes(NRSs) and Local Records Centres(LRCs) in supplying and maintainingbiological records must be recognised,as well as in increasing volunteercontributions to biodiversityconservation. Appropriate fundingmechanisms need to be in place tosupport a network of NRSs and LRCs tofulfil this role and fully interface with theNational Biodiversity Network.

Objective reporting

Reporting is a vital cog in the biodiversityconservation machine. We need to know themain threats and constraints to deliveringbiodiversity conservation on the ground if we areto alter damaging policies and design positiveones. We also need to report openly andobjectively on progress on the conservationstatus of species and habitats and on gettingbiodiversity taken properly into account in allpolicies and programmes (see above). We alsoneed to ensure that all progress is reported andto avoid double counting between the UK andlocal levels. The emerging Biodiversity Action andReporting System will help this.

The next round of reporting on progress with theBAPs is due to be carried out in 2005. However,we need to ensure that reporting aids and assistsbiodiversity conservation and does not become atime or resource burden. It is vital that we reportquickly, simply and efficiently on the issues thatreally matter to ensure that resources are focusedon action as far as possible.

The Biodiversity Action Plan process works.However, it is vital that it is regularly reviewed andupdated and therefore remains a dynamic system.

� As part of the Fife LBAP RiverEnhancement Project, records of watervoles have been used to target habitatenhancement and other conservationmeasures for this species.

� Knowledge of the extent and condition ofmany of our habitats, including coastalsand dunes, remains poor. There is anurgent need for Government agencies tofill this gap.

Recommendations24 The 2005 reporting round led by the UK

Biodiversity Reporting and Information Group needs to focus on what progress is being made against species and habitat targets. Reporting should be holistic, incorporating appropriate feedback from all levels (local, regional and national) in one system.

25 By the end of 2004, clear feedback from the biodiversity groups and the statutory nature conservation agencies throughout the UK is needed on how the 2002 reporting information has been used to support and improve the delivery of biodiversity conservation.

26 A timetable for future BAP review is urgently needed from the UK Biodiversity Partnership Standing Committee with a clear outline of how stakeholders can contribute, to ensure that we have a new, improved BAP process.

Water vole by Terry W

hittaker

Sand dunes in Northum

berland by Joe Cornish (National Trust Photographic Library)