EUROPEAN COMMISSION Brussels, 1.6.2018 COM(2018) 395 final COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Pollinators Initiative {SWD(2018) 302 final}

{SWD(2018) 303 final}



1.The need for EU action on pollinators In recent years, public attention has been drawn to the plight of honeybee populations, which have seen losses in the EU and around the world. Behind this highly publicised phenomenon is a problem of a much larger scale, namely the dramatic decline in the occurrence and diversity of all kinds of European wild insect pollinators, including wild bees, hoverflies, butterflies and moths. Numerous pollinator species are extinct or threatened with extinction. This is a serious cause for concern because pollinators are an integral part of healthy ecosystems. Without them, many plant species would decline and eventually disappear along with the organisms that depend on them, which would have serious ecological, social and economic implications. Pollinator-dependent crops rely on animal pollination to varying degrees. It is estimated that 5–8 % of current global crop production is directly attributed to animal pollination. In the EU alone, around 84 % of crop species and 78 % of wild flower species depend, at least in part, on animal pollination. Up to almost EUR 15 billion of the EU’s annual agricultural output is directly attributed to insect pollinators. The first global report on pollinators issued by the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services names land-use change, intensive agricultural management and pesticide use, environmental pollution, invasive alien species, pathogens and climate change as the main threats to pollinators. It also identifies significant gaps in knowledge of how these drivers work and the need for cross-sectoral action to tackle them. The Convention on Biological Diversity endorsed the findings of the report and highlighted the importance of pollinators and the ecosystem services they deliver to achieving a number of the UN Sustainable Development Goals. The EU has put in place a range of measures beneficial to pollinators, notably under environment and health policies (in particular the Birds and Habitats Directives and the EU legislation on pesticides), as well as under the common agricultural policy, cohesion policy and research and innovation policy. There are also a number of national and regional pollinator strategies in place. However, to date there has been no single, coordinated EU action to address the decline of pollinators through an integrated approach involving different sectors and policies. The EU and its Member States need to address the problem together. This Communication presents strategic objectives and a set of actions to be taken by the EU and its Member States to address the decline of pollinators in the EU and contribute to global conservation efforts. It sets the framework for an integrated approach to the problem and a more effective use of existing tools and policies. This initiative illustrates the Commission’s ambition to accelerate progress towards the EU 2020 goal of halting and reversing the loss of biodiversity and ecosystem services reaffirmed by the Action Plan for nature, people and the economy. It responds to the calls made by the European Parliament, and the Council for action to protect pollinators and their habitats in order to put an end to their decline. The public consultation preparing this initiative has established that an EU initiative on pollinators is strongly supported across the stakeholder groups, and in particular by the general public. 2.The components of the initiative The objectives and actions set out in this initiative aim to improve scientific knowledge about insect pollinator decline, tackle its main known causes and strengthen collaboration between all the actors concerned. While the focus is on wild pollinators, the initiative addresses challenges common to all pollinators. Therefore, it will also benefit domesticated pollinators, in particular honeybees, and will complement existing EU support for apiculture and bee health. While the actions proposed are designed to be delivered in the short term, they will set key processes in motion and put mechanisms in place in order to come to grips with the challenge in a holistic way over the longer term. The successful implementation of these actions will require adequate financial and human resources. Policy makers and public authorities cannot tackle the challenge alone; EU citizens and the business sector will also need to be involved. PRIORITY I: Improving knowledge of pollinator decline, its causes and consequences PRIORITY II: Tackling the causes of pollinator decline PRIORITY III: Raising awareness, engaging society-at-large and promoting collaboration The initiative sets long-term objectives and short-term actions under three priorities: The table in annex provides details of the various actions and sub-actions under each priority. 2.1.PRIORITY I: Improving knowledge of pollinator decline, its causes and consequences The EU has already supported the generation of valuable knowledge (for example through the ALARM and STEP projects and the European Red List). While these clearly demonstrate an alarming decline of pollinators and warrant immediate action, the knowledge gaps are still considerable. The full extent of the decline is not known and its repercussions on human society and the economy are not yet fully understood. Although the main threats to pollinators are established and allow immediate, knowledge-based action to be undertaken, knowledge about their individual impacts and interaction requires further research. Improving knowledge therefore represents a cornerstone of this initiative and will require joint efforts of the Commission, the Member States, the European Environment Agency, academia, stakeholders and citizens. Pollinator species and populations in the EU need to be better monitored. The development of a coordinated monitoring process aiming to fill the knowledge gap on their status and trends will require a joint effort from the EU and its Member States. A technical expert group will be needed to devise a cost-effective and standardised monitoring methodology. Citizen science, ICT tools and technology like DNA barcoding and machine learning have the potential to contribute to the process. Good quality on-site data from monitoring will make it possible to assess endangered pollinator species and develop robust pollinator indicators. These indicators would help to assess the impacts of various EU policies, primarily in the areas of the environment, agriculture and health, and to track EU progress towards the UN Sustainable Development Goals 2 (‘Zero hunger’) and 15 (‘Life on land’). Coupled with data on threats to pollinators and pollination, they would make it possible to carry out an integrated assessment of the decline of pollinators, its impacts on society and the economy through tools such as mapping and assessment of ecosystems and their services and natural capital accounts on pollinators and pollination, and to develop adequate policy responses.

Research and innovation need to be strengthened on all fronts: the magnitude of the problem (status and trends of pollinators), tackling causes (threats to pollinators, their relative importance and interaction) and consequences (impacts on nature, human wellbeing and the economy). Fundamental research (systematics, taxonomy) as well as applied research should be supported to enhance the EU's monitoring and assessment capacity in relation to pollinators. Several ongoing research projects will already be delivering results on pollinators, as well as on innovations in plant protection, integrated health approaches and alternatives to pesticides. Open access to pollinator-relevant data and information is a pre-condition for making better use of existing resources to generate new knowledge and innovative solutions. Further efforts should be made to bring scattered data and information together and make it easily accessible. 2.2.PRIORITY II: Tackling the causes of pollinator decline The variety of drivers of pollinator decline calls for mitigation actions across various sectors and policies. The most threatened EU pollinator species and habitats, such as the ones protected under the Habitats Directive or included on the European Red List, should be subject to priority action and funding. The LIFE programme will in particular play an important role in this regard. Loss of habitats In order to improve the implementation of the Birds and Habitats Directives, the Commission is implementing the Action Plan for nature, people and the economy. While the Habitats Directive only lists a limited number of pollinator species, conservation measures for protected habitat types such as grasslands can significantly benefit pollinators. Therefore, improving the Directive’s implementation is of major significance in addressing one of the key threats to pollinators — loss of habitats. Green infrastructure can further improve the natural conditions needed to sustain thriving pollinator habitats by providing nature-based solutions and strengthening the coherence and connectivity of the Natura 2000 network in broader rural and urban landscapes. The EU’s common agricultural policy and cohesion policy present key opportunities for the maintenance and creation of pollinator habitats in rural and urban areas in the period up to 2020. The structure of the common agricultural policy (including cross-compliance, direct payments, and rural development measures) provides a broad set of instruments needed to help tackle pressures on pollinators stemming from intensive agricultural management and land-use change, including farmland abandonment. These include in particular ecological focus areas under direct payment support to farmers, which provide buffer strips for pollinators and land lying fallow for nectar- and pollen-rich plants, as well as agri-environment-climate measures under rural development programmes. Other important incentives support farmers for sustainable farming systems in Natura 2000 areas, and investing in organic farming. Continued efforts are needed to recognise the significance of pollinators for agricultural productivity. While the role of rural areas is paramount for healthy pollinator populations, the importance of urban and peri-urban areas in supporting pollinator habitats is increasingly recognised as well. Public and private spaces such as parks, gardens, green roofs and green walls act as refuge habitats for pollinators and ‘stepping stones’ which allow pollinators to move and disperse within urbanised areas. By connecting to natural and semi-natural areas in the countryside, they support a network of pollinator habitats in the wider landscape. A number of promising solutions, such as nature-based solutions, can improve the integration of pollinator habitats within major infrastructure networks such as roads and railway and power lines, often associated with habitat deterioration and typically spread across large expanses of diverse European landscape. Regional and local authorities should be encouraged to invest in such solutions. Pesticide use The risks and impacts of pesticides on pollinators result from the toxicity of the active substance and the level of exposure. In the EU, active substances used in plant protection products can only be approved following a risk assessment to make sure there are no undesired effects on honeybees. In 2013, the European Food Safety Authority (EFSA) developed a guidance document to strengthen the current risk assessment by including, among other, chronic effects and wild bee species to the assessment requirements. However, this guidance has not yet been endorsed by Member States; further action will therefore be needed to ensure its implementation. In 2013, the Commission restricted the use of three neonicotinoid pesticides after it was shown that they pose high risks to bees. In February 2018, the EFSA’s review of the evidence confirmed these risks. As stated in Regulation (EC) 1107/2009, it is important to introduce adequate measures to mitigate these risks. The Commission's proposal to further restrict the use of three neonicotinoid pesticides was endorsed by Member States on 27 April 2018. Furthermore, Directive 2009/128/EC provides for a range of actions that support the sustainable use of approved pesticides. Specific targets and measures can be set up in national action plans under the Directive to address the impacts of pesticides on pollinators. Invasive alien species Invasive alien species are another key threat to pollinators. Regulation (EU) 1143/2014 provides for a set of measures to be taken in this area across the EU. Continued efforts to implement these measures and list new species considered a threat will mitigate harmful effects, such as those associated with the predation by the yellow legged hornet (Vespa velutina), or the destruction of pollinator habitats by certain plant species such as the Himalayan balsam (Impatiens glandulifera) which smothers native vegetation. Furthermore, the use of native pollinator species and native plant species for private and public use should be promoted to avoid the risks that alien species pose to native pollinator species. Other threats Pollinators are further impacted by climate change, environmental pollution and diseases. Climate change affects pollinators' distribution and range, their habitats and interaction, both through gradual shifts and extreme weather events. While comprehensive studies on the effects of various pollutants (such as air pollution, heavy metals and light pollution) and disease are lacking, they are known to harm wild pollinators or negatively impact their habitats. This initiative does not directly address these threats. EU policies on climate action, air pollution and actions for bee health will help to mitigate their impacts on pollinators. The initiative will, however, contribute to addressing these and other threats indirectly by supporting the maintenance, creation and connection of healthy habitats for pollinators and by tackling the spread of non-native species that carry harmful pathogens and diseases, thereby enhancing the overall climate resilience of European ecosystems. 2.3.PRIORITY III: Raising awareness, engaging society-at-large and promoting collaboration Tackling pollinator decline requires a strategic approach at all levels of governance and the involvement of various actors. This initiative will raise awareness across society on the importance of pollinators and the urgent need to take action. By promoting and disseminating best practice and supporting further collaboration activities, it will aim to mobilise the scientific community, policy makers, businesses and citizens to act and to cooperate. While a number of platforms supporting collaboration on pollinators already exist (such as research networks and policy exchange platforms), the capacity for collaboration need to be further strengthened. The Commission and Member States should raise awareness of and promote funding opportunities in this regard. Common tools and templates for developing pollinator plans and strategies, building on existing best practices, will foster further action at national, regional and local level. Increased EU expenditure on national apiculture programmes could also broaden public and professional understanding on the importance of wild pollinators for society and the economy.