COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Our life insurance, our natural capital: an EU biodiversity strategy to 2020  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Our life insurance, our natural capital: an EU biodiversity strategy to 2020
Date: 2011-05-03
Institutions: European Commission
Subjects: EU environmental policy, biodiversity, climate change, deforestation, ecosystem, environmental impact, environmental protection, forest conservation, sustainable development

EUROPEAN COMMISSION 

Brussels, 3.5.2011 
COM(2011) 244 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE ECONOMIC AND SOCIAL COMMITTEE 
AND THE COMMITTEE OF THE REGIONS 

Our life insurance, our natural capital: an EU biodiversity strategy to 2020 

{SEC(2011) 540 final} 
{SEC(2011) 541 final} 

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1. 

INTRODUCTION 

Biodiversity — the extraordinary variety of ecosystems, species and genes that surround us — 
is  our  life  insurance,  giving  us  food,  fresh  water  and  clean  air,  shelter  and  medicine, 
mitigating  natural  disasters,  pests  and  diseases  and  contributes  to  regulating  the  climate. 
Biodiversity  is  also  our  natural  capital,  delivering  ecosystem  services  that  underpin  our 
economy.  Its  deterioration  and  loss  jeopardises  the  provision  of  these  services:  we  lose 
species and habitats and the wealth and employment we derive from nature, and endanger our 
own  wellbeing.  This  makes  biodiversity  loss  the  most  critical  global  environmental  threat 
alongside climate change — and the two are inextricably linked. While biodiversity makes a 
key contribution to climate change mitigation and adaptation, achieving the '2 degrees' target 
coupled  with  adequate  adaptation  measures  to  reduce  the  impacts  of  unavoidable  effects  of 
climate change are also essential to avert biodiversity loss.  

Current  rates  of  species  extinction  are  unparalleled.  Driven  mainly  by  human  activities, 
species are currently being lost 100 to 1,000 times faster than the natural rate: according to the 
FAO, 60% of the world's ecosystems are degraded or used unsustainably; 75% of fish stocks 
are  over-exploited  or  significantly  depleted  and  75%  of  the  genetic  diversity  of  agricultural 
crops has been lost worldwide since 1990. An estimated 13 million hectares of tropical forests 
are cleared each year1 and 20% of the world’s tropical coral reefs have already disappeared, 
while  95%  will  be  at  risk  of  destruction  or  extreme  damage  by  2050  if  climate  change 
continues unabated2.  

In the EU, only 17 % of habitats and species and 11 % of key ecosystems protected under EU 
legislation  are  in  a  favourable  state3.  This  is  in  spite  of  action  taken  to  combat  biodiversity 
loss, particularly since the EU 2010 biodiversity target was set in 2001. The benefits of these 
actions have been outweighed by continued and growing pressures on Europe's biodiversity: 
land-use change, over-exploitation of biodiversity and its components, the spread of invasive 
alien  species,  pollution  and  climate  change  have  either  remained  constant  or  are  increasing. 
Indirect drivers, such as population growth, limited awareness about biodiversity and the fact 
that biodiversity's economic value is not reflected in decision making are also taking a heavy 
toll on biodiversity.  

This  strategy  is  aimed  at  reversing  biodiversity  loss  and  speeding  up  the  EU's  transition 
towards  a  resource  efficient  and  green  economy.  It  is  an  integral  part  of  the  Europe  2020 
Strategy4, and in particular the resource efficient Europe flagship initiative5.  

1 
2 
3 
4 
5 

FAO, 2010. 
'Reefs at Risk Revisited', World Resources Institute, 2011. 
http://www.eea.europa.eu/publications/eu-2010-biodiversity-baseline/. 
COM(2010) 2020. 
COM(2011) 21. 

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2. 

A NEW FOUNDATION FOR EU BIODIVERSITY POLICY 

2.1. 

A DUAL MANDATE FOR ACTION  

The EU mandate 

In  March  2010,  EU  leaders  recognised  that  the  2010  biodiversity  target  would  not  be  met 
despite some major successes, such as establishing Natura 2000, the world’s largest network 
of protected areas. They therefore endorsed the long-term vision and ambitious headline target 
proposed by the Commission in its Communication ‘Options for an EU vision and target for 
biodiversity beyond 2010’6.  

2050 vision 

By 2050, European Union biodiversity and the ecosystem services it provides — its natural 
capital — are protected, valued and appropriately restored for biodiversity's intrinsic value 
and for their essential contribution to human wellbeing and economic prosperity, and so that 
catastrophic changes caused by the loss of biodiversity are avoided. 

2020 headline target 

Halting the loss of biodiversity and the degradation of ecosystem services in the EU by 2020, 
and  restoring  them  in  so  far  as  feasible,  while  stepping  up  the  EU  contribution  to  averting 
global biodiversity loss. 

The global mandate 

The  tenth  Conference  of  the  Parties  (CoP10)  to  the  Convention  on  Biological  Diversity 
(CBD), held in Nagoya in 2010, led to the adoption of a global Strategic Plan for biodiversity 
2011-20207, the Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable 
Sharing of Benefits Arising from their Utilisation (ABS Protocol)8, and a strategy to mobilise 
resources for global biodiversity. 

The  EU  2020  biodiversity  strategy  responds  to  both  mandates,  setting  the  EU  on  the  right 
track to meet its own biodiversity objectives and its global commitments. 

2.2. 

VALUING OUR NATURAL ASSETS TO DELIVER MULTIPLE BENEFITS 

The  EU  2020  biodiversity  target  is  underpinned  by  the  recognition  that,  in  addition  to  its 
intrinsic value, biodiversity and the services it provides have significant economic value that 
is  seldom  captured  in  markets.  Because  it  escapes  pricing  and  is  not  reflected  in  society’s 
accounts,  biodiversity  often  falls  victim  to  competing  claims  on  nature  and  its  use.  The 
Commission-sponsored 
international  project  on  The  Economics  of  Ecosystems  and 
Biodiversity  (TEEB)  recommends  that  the  economic  value  of  biodiversity  be  factored  into 

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COM(2010) 4. 
The global Strategic Plan 2011-2020 includes a 2050 vision, 2020 mission and 20 targets. 
On 11 February 2011, the Commission submitted a proposal to the Council for a Council decision on 
the signing, on behalf of the European Union, of the Nagoya Protocol. 

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decision  making  and  reflected  in  accounting  and  reporting  systems.9  In  Nagoya,  this 
recommendation was incorporated into a global target and forms one of several key actions of 
the current strategy. 

Although  action  to  halt  biodiversity  loss  entails  costs10,  biodiversity  loss  itself  is  costly  for 
society  as  a  whole,  particularly  for  economic  actors  in  sectors  that  depend  directly  on 
ecosystem  services.  For  example,  insect  pollination  in  the  EU  has  an  estimated  economic 
 15  billion  per  year11.  The  continued  decline  in  bees  and  other  pollinators12  could 
value  of  €
have serious consequences for Europe’s farmers and agri-business sector13. The private sector 
is  increasingly  aware  of  these  risks.  Many  businesses  in  Europe  and  beyond  are  assessing 
their dependency  on  biodiversity and integrating  targets for sustainable natural resource use 
into their corporate strategies14. 

Fully valuing nature’s potential will contribute to a number of the EU’s strategic objectives: 

•  A more resource efficient economy: The EU’s ecological footprint is  currently double  its 
biological capacity.15 By conserving and enhancing its natural resource base and using its 
resources  sustainably,  the  EU  can  improve  the  resource  efficiency  of  its  economy  and 
reduce its dependence on natural resources from outside Europe. 

•  A  more  climate-resilient,  low-carbon  economy:  Ecosystem-based  approaches  to  climate 
change  mitigation  and  adaptation  can  offer  cost-effective  alternatives  to  technological 
solutions, while delivering multiple benefits beyond biodiversity conservation. 

•  A  leader  in  research  and  innovation:  Progress  in  many  applied  sciences  depends  on  the 
long-term  availability  and  diversity  of  natural  assets.  Genetic  diversity,  for  example,  is  a 
main source of innovation for the medical and cosmetics industries, while the innovation 
potential of ecosystem restoration and green infrastructure16 is largely untapped.  

•  New skills, jobs and business opportunities: Nature-based innovation, and action to restore 
ecosystems  and  conserve  biodiversity,  can  create  new  skills,  jobs  and  business 
opportunities.  TEEB  estimates  that  global  business  opportunities  from  investing  in 
biodiversity could be worth US$ 2-6 trillion by 2050. 

2.3. 

BUILDING ON THE BIODIVERSITY KNOWLEDGE BASE 

Good  progress  has  been  made  in  improving  the  biodiversity  knowledge  base  to  underpin 
policy  with  up-to-date  scientific  data  and  information.  This  now  needs  to  be  aligned  to  the 
2020 policy framework. 

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12 
13 

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http://www.teebweb.org/ 
As set out in the accompanying Staff Working Paper. 
Gallai et al, 2009. 
Grassland butterfly populations have declined by over 70 % since 1990. 
Over  80 %  of  the  EU’s  crops  are  estimated  to  depend  at  least  in  part  on  insect  pollination  (‘Bee 
Mortality and Bee Surveillance in Europe’, 2009). 
‘State of Green Business 2011’, GreenBiz Group. 
http://www.eea.europa.eu/data-and-maps/indicators/ecological-footprint-of-european-countries/. 
As described in COM(2009) 147 and COM(2011) 17. 

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The  Commission  will  work  with  Member  States  and  the  European  Environment  Agency  to 
develop by 2012 an integrated framework for monitoring, assessing and reporting on progress 
in  implementing  the  strategy.  National,  EU  and  global  monitoring,  reporting  and  review 
obligations will be improved and streamlined as far as possible with requirements under other 
environmental legislation, such as the Water Framework Directive. The EU 2010 biodiversity 
baseline  and  the  updated  EU  biodiversity  indicators17  will  be  key  components  of  this 
framework, which will also draw on other data and information, such as that produced by the 
Shared  Environmental  Information  System  and  Global  Monitoring  for  Environment  and 
Security,  the  European  Forest  Data  Centre  and  the  LUCAS  Land  Use  Cover  Area  Frame 
Survey. The Biodiversity Information System for Europe (BISE) web portal will be the main 
platform for data and information sharing. 

This strategy includes specific action to improve monitoring and reporting. The integration of 
biodiversity monitoring and reporting into EU legislation on nature, the Common Agricultural 
Policy  (CAP),  the  Common  Fisheries  Policy  (CFP)  and,  to  the  extent  feasible,  Cohesion 
Policy would help assess the impacts of these policies on biodiversity.  

The Commission will continue its work to fill key research gaps, including on mapping and 
assessing ecosystem services in Europe, which will help improve our knowledge of the links 
between  biodiversity  and  climate  change,  and  the  role  of  soil  biodiversity  in  delivering  key 
ecosystem services, such as carbon sequestration and food supply. Research funding under the 
new Common Strategic Framework could further contribute to closing identified knowledge 
gaps and supporting policy. 

Finally,  the  EU  will  remain  closely  involved  in  and  contribute  actively  to  the  new 
intergovernmental  science-policy  platform  on  Biodiversity  and  ecosystem  services  (ipBes), 
particularly  to  work  on  regional  assessments,  for  which  an  EU-level  mechanism  may  be 
required to reinforce the science-policy interface. 

3. 

A FRAMEWORK FOR ACTION FOR THE NEXT DECADE 

The 2020 Biodiversity strategy includes six mutually supportive and inter-dependent targets 
that  respond  to  the  objectives  of  the  2020  headline  target.  They  will  all  help  to  halt 
biodiversity  loss  and  the  degradation  of  ecosystem  services,  with  each  seeking  to  address  a 
specific issue: protecting and restoring biodiversity and associated ecosystem services (targets 
1  and  2),  enhancing  the  positive  contribution  of  agriculture  and  forestry  and  reducing  key 
pressures  on  EU  biodiversity  (targets  3,  4  and  5),  and  stepping  up  the  EU’s  contribution  to 
global biodiversity (target 6). Each target is broken down into a package of actions designed 
to respond to the specific challenge addressed by the target. The specific actions are set out in 
the Annex to this Communication. The actions will be subject to further impact assessments 
where necessary.18  

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http://biodiversity.europa.eu/topics/sebi-indicators.  Other 
sustainable development and agro-environmental indicators. 
The potential impact of targets and measures were assessed in the accompanying Staff Working Paper. 
This paper, on p. 81/82, also lists actions for which further impact assessment work is planned.  

the  EU's 

indicators 

relevant 

include 

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3.1. 

CONSERVING AND RESTORING NATURE 

The  full  implementation  of  the  Birds  and  Habitats  Directives  (i.e.  reaching  favourable 
conservation  status  of  all  habitats  and  species  of  European  importance  and  adequate 
populations of naturally occurring wild bird species) is critical to preventing further loss and 
restoring  biodiversity 
target  will  accelerate 
implementation of the Directives and achievement of the objectives set out in them. 

time-bound,  quantified 

the  EU.  A 

in 

Target 1  
To  halt  the  deterioration  in  the  status  of  all  species  and  habitats  covered  by  EU  nature 
legislation and achieve a significant and measurable improvement in their status so that, by 
2020,  compared  to  current  assessments:  (i)  100%  more  habitat  assessments  and  50%  more 
species assessments under the Habitats Directive show an improved conservation status; and 
(ii)  50%  more  species  assessments  under  the  Birds  Directive  show  a  secure  or  improved 
status.  

3.2.  MAINTAINING AND ENHANCING ECOSYSTEMS AND THEIR SERVICES 

In the EU, many ecosystems and their services have been degraded, largely as a result of land 
fragmentation.  Nearly  30 %  of  the  EU  territory  is  moderately  to  very  highly  fragmented. 
Target  2  focuses  on  maintaining  and  enhancing  ecosystem  services  and  restoring  degraded 
ecosystems  by  incorporating  green  infrastructure  in  spatial  planning.  This  will  contribute  to 
the  EU's  sustainable  growth  objectives19  and  to  mitigating  and  adapting  to  climate  change, 
while promoting economic, territorial and social cohesion and safeguarding the EU's cultural 
heritage.  It  will  also  ensure  better  functional  connectivity  between  ecosystems  within  and 
between  Natura  2000  areas  and  in  the  wider  countryside.  Target  2  incorporates  the  global 
target  agreed  by  EU  Member  States  and  the  EU  in  Nagoya  to  restore  15%  of  degraded 
ecosystems by 2020. 

Target 2  
By 2020, ecosystems and their services are maintained  and  enhanced  by establishing green 
infrastructure and restoring at least 15 % of degraded ecosystems. 

3.3. 

ENSURING THE SUSTAINABILITY OF AGRICULTURE, FORESTRY AND FISHERIES 

The  EU  has  already  made  efforts  to  integrate  biodiversity  into  the  development  and 
implementation of other policies. However, given the benefits that biodiversity and ecosystem 
services  bring  to  many  sectors,  these  efforts  are  still  not  sufficient.  This  strategy  seeks  to 
improve  integration  in  key  sectors,  specifically  through  targets  and  action  to  enhance  the 
positive  contribution  of  the  agriculture,  forest  and  fisheries  sectors  to  biodiversity 
conservation and sustainable use20. 

With respect to agriculture, existing instruments under the CAP will contribute to this target 
as  well  as  Targets  1  and  2.  The  forthcoming  reform  of  the  CAP  and  CFP  and  the  new 
Multiannual  Financial  Framework  present  opportunities  to  enhance  synergies  and  maximise 
coherence between biodiversity protection objectives and those of these and other policies.  

19 
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COM(2011) 17. 
Agriculture and forests cover 72 % of EU land. Maintaining and enhancing forest biodiversity is a stated 
aim of the EU’s 2006 Forest Action Plan - COM(2006) 302.  

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Target 3* 

A)  Agriculture:  By  2020,  maximise  areas  under  agriculture  across  grasslands,  arable  land 
and permanent crops that are covered by biodiversity-related measures under the CAP so as 
to ensure the conservation of biodiversity and to bring about a measurable improvement(*) in 
the conservation status of species and habitats that depend on or are affected by agriculture 
and  in  the  provision  of  ecosystem  services  as  compared  to  the  EU2010  Baseline,  thus 
contributing to enhance sustainable management.  

B)  Forests:  By  2020,  Forest  Management  Plans  or  equivalent  instruments,  in  line  with 
Sustainable Forest Management (SFM)21, are in place for all forests that are publicly owned 
and for forest holdings above a certain size** (to be defined by the Member States or regions 
and communicated in their Rural Development Programmes) that receive funding under the 
EU  Rural  Development  Policy  so  as  to  bring  about  a  measurable  improvement(*)  in  the 
conservation status of species and habitats that depend on or are affected by forestry and in 
the provision of related ecosystem services as compared to the EU 2010 Baseline.  

(*)  For  both  targets,  improvement  is  to  be  measured  against  the  quantified  enhancement 
targets for the conservation status of species and habitats of EU interest in Target 1 and the 
restoration of degraded ecosystems under target 2. 

(**) For smaller forest holdings, Member States may provide additional incentives to 
encourage the adoption of Management Plans or equivalent instruments that are in line with 
SFM. 

Target 4: 
Fisheries:  Achieve  Maximum  Sustainable  Yield  (MSY)22  by  2015.  Achieve  a  population  age 
and  size  distribution  indicative  of  a  healthy  stock,  through  fisheries  management  with  no 
significant adverse impacts on other stocks, species and ecosystems, in support of achieving 
Good  Environmental  Status  by  2020,  as  required  under  the  Marine  Strategy  Framework 
Directive. 

3.4. 

COMBATING INVASIVE ALIEN SPECIES 

Invasive alien species (IAS) pose a significant threat to biodiversity in the EU, and this threat 
is  likely  to  increase  in  the  future  unless  robust  action  is  taken  at  all  levels  to  control  the 
introduction  and  establishment  of  these  species  and  address  those  already  introduced23.  IAS 
cause  some  €
 12.5  billion  worth  of  damage  each  year  in  the  EU.  Although  the  challenges 
posed  by  IAS  are  common  to  many  Member  States,  with  the  exception  of  legislation 
concerning  the  use  of  alien  and  locally  absent  species  in  aquaculture  there  is  currently  no 
dedicated, comprehensive EU policy to address them. This strategy proposes filling this gap 
with a dedicated EU legislative instrument which could tackle outstanding challenges relating 
inter alia to IAS pathways, early detection and response and containment and management of 
IAS.  

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23 

As defined in SEC(2006) 748. 
The EU signed up to a target of achieving MSY levels by 2015 at the World Summit on Sustainable 
Development in 2002 and to the new 2020 fisheries target adopted at CBD COP10. 
IEEP, 2010. 

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Target 5: 
By  2020,  Invasive  Alien  Species  and  their  pathways  are  identified  and  prioritised,  priority 
species are controlled or eradicated, and pathways are managed to prevent the introduction 
and establishment of new IAS. 

3.5. 

ADDRESSING THE GLOBAL BIODIVERSITY CRISIS 

The EU has pledged to meet the international 2020 biodiversity goals and objectives agreed to 
under the CBD. This requires taking action within the EU, but also at global level since the 
EU derives significant benefits from global biodiversity and is  at the same time responsible 
for  some  of  the  loss  and  degradation  that  occurs  beyond  its  borders,  notably  due  to  its 
unsustainable consumption patterns. 

Through  this  strategy,  targeted  efforts  will  strive  to  alleviate  pressure  on  biodiversity 
emanating from the EU while contributing to greening the economy in line with EU priorities 
for the 2012 United Nations Conference on Sustainable Development. The EU will also need 
to  meet  specific  COP10  commitments  relating  to  resource  mobilisation  and  implement  the 
Nagoya Protocol on ABS if it is to continue to lead international biodiversity policy. 

Target 6: 
By 2020, the EU has stepped up its contribution to averting global biodiversity loss. 

3.6. 

CONTRIBUTIONS FROM OTHER ENVIRONMENTAL POLICIES AND INITIATIVES 

While this strategy serves as the main vehicle for EU action to address biodiversity loss and 
focus action where the EU has most value-added and leverage, reaching the 2020 target will 
require  the  full  implementation  of  existing  EU  environment  legislation,  as  well  as  action  at 
national, regional and local level. 

Several  existing  or  planned  policy  initiatives  will  support  biodiversity  objectives.  For 
instance,  climate  change,  which  is  a  significant  and  increasing  pressure  on  biodiversity  that 
will alter habitats and ecosystems, is addressed through a comprehensive EU policy package 
adopted in 2009. Achieving the 2 degrees target for atmospheric warming will be essential to 
prevent  biodiversity  loss.  The  Commission  plans  to  issue  an  EU  strategy  on  adaptation  to 
climate change by 2013. 

The  EU  has  substantial  legislation  requiring  the  achievement  of  good  ecological  status  for 
water  by  201524  and  marine  ecosystems  by  202025,  tackling  pollution  from  various  sources, 
and regulating chemicals and their effects on the environment. The Commission is assessing 
whether additional action to tackle nitrogen and phosphate pollution and certain atmospheric 
pollutants is warranted, whilst the Member States are considering a Commission proposal for 
a  framework  directive  to  protect  soil,  which  is  needed  to  allow  the  EU  to  reach  the 
biodiversity  aims.  Finally,  indirect  drivers  of  biodiversity  loss  are  addressed  partly  through 
this strategy, including via action to reduce the EU's ecological footprint, and partly through 
other initiatives as part of the resource efficient Europe flagship initiative. 

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Directive 2000/60/EC. 
Directive 2008/56/EC. 

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4. 

WE ARE ALL IN THIS TOGETHER 

4.1. 

PARTNERSHIPS FOR BIODIVERSITY 

Achieving  the  EU  and  global  2020  biodiversity  targets  requires  the  full  engagement  and 
commitment of a wide variety of stakeholders. To secure this, a number of key partnerships 
will be expanded and promoted to support this strategy: 

•  The Commission has set up the EU Business and Biodiversity Platform, which currently 
brings  together  businesses  from  six  different  sectors  (agriculture,  extractive  industries, 
finance,  food  supply,  forestry  and  tourism)  to  share  their  experiences  and  best  practices. 
The  Commission  will  further  develop  the  Platform  and  encourage  greater  cooperation 
between businesses in Europe, including SMEs, and links to national and global initiatives.  

•  The Commission will continue working with other partners to publicise and implement the 
TEEB  recommendations  at  EU  level  and  support  work  on  valuation  of  biodiversity  and 
ecosystem services in developing countries. 

•  The  Commission  will  further  encourage  collaboration  between  researchers  and  other 
stakeholders  involved  in  spatial  planning  and  land  use  management  in  implementing 
biodiversity strategies at all levels, ensuring coherence with relevant recommendations set 
out in the European Territorial Agenda.  

•  The active involvement of civil society will be encouraged at all levels of implementation. 
Citizen science initiatives, for instance, are a valuable means of gathering high-quality data 
while mobilising citizens to get involved in biodiversity conservation activities. 

•  The Commission and Member States will work with the outermost regions and overseas 
countries  and  territories,  which  host  more  endemic  species  than  the  entire  European 
continent,  through  the  BEST  (Biodiversity  and  Ecosystem  Services  in  Territories  of 
European Overseas) initiative to promote biodiversity conservation and sustainable use.  

•  The  EU  will  also  support  ongoing  efforts  to  improve  collaboration,  synergies  and  the 
establishment  of  common  priorities  between  the  biodiversity-related  Conventions  (CBD, 
CITES, Convention on Migratory Species, Ramsar Convention on Wetlands and the World 
Heritage Convention). The EU will also promote enhanced cooperation between the CBD, 
Climate Change and Desertification Conventions to yield mutual benefits.  

•  The EU will reinforce its dialogue and cooperation on biodiversity with key partners, in 
particular candidate countries and potential candidates, to develop or adjust their policies 
to  meet  the  2020  biodiversity  targets.  Candidate  countries  and  potential  candidates  are 
invited to contribute to the implementation of the strategy and start developing or adjusting 
their policies towards the goal of achieving the EU and global 2020 biodiversity targets.  

These partnerships help to raise awareness about biodiversity, which in the EU remains low26. 
The Commission’s 2010 campaign ‘Biodiversity: We are all in this together’ will be followed 
by a specific campaign focusing on the Natura 2000 network.  

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http://ec.europa.eu/public_opinion/flash/fl_290_en.pdf. 

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4.2.  MOBILISING RESOURCES TO SUPPORT BIODIVERSITY AND ECOSYSTEM SERVICES 

Achieving  the  objectives  of  this  strategy  and  ensuring  the  EU  meets  its  global  biodiversity 
commitments will depend on the availability and efficient use of financial resources. Within 
the current programming period and without pre-empting the outcome of the negotiations on 
the  next  Multi-annual  Financial  Framework,  the  Commission  and  Member  States  will  work 
to: 

- ensure a better uptake and distribution of existing funds for biodiversity. Under the current 
programming  period,  €
 105  billion  under  Cohesion  Policy  is  foreseen  to  be  used  for 
environment  and  climate-related  activities,  including  biodiversity  and  nature  protection27. 
However, concerted efforts are needed to ensure optimum uptake of funds available28. 

-  rationalise  available  resources  and  maximise  co-benefits  of  various  funding  sources, 
including funding for agriculture and rural development, fisheries, regional policy and climate 
change. Indeed, investing in biodiversity can pay off in more ways than one and offers a cost-
effective response to the climate change crisis. The inclusion of biodiversity objectives should 
be  explored  as  part  of  the  Common  Strategic  Framework  under  consideration  by  the 
Commission  to  prioritise  funding  under  the  five  funding  instruments  under  rural,  regional, 
social and fisheries policies. 

- diversify and scale up various sources of funding. The Commission and Member States will 
promote  the  development  and  use  of  innovative  financing  mechanisms,  including  market-
based  instruments.  Payments  for  Ecosystem  Services  schemes  should  reward  public  and 
private goods from agricultural, forest and marine ecosystems. Incentives will be provided to 
attract  private  sector investment  in  green  infrastructure  and  the  potential  of  biodiversity 
offsets will be looked into as a way of achieving a ‘no net loss’ approach. The Commission 
and  the  European  Investment  Bank  are  exploring  the  scope  for  using  innovative  financing 
instruments to support biodiversity challenges, including through Public Private Partnerships 
and the possible establishment of a biodiversity financing facility.  

Two  funding  requirements  stand  out  in  particular.  The  first  concerns  the  need  for  adequate 
financing to fully implement the Natura 2000 network, where Member State funding must be 
matched by funding from the EU29 (estimated at approximately €
 5.8 billion per year in total). 
This  may  require  the  Member  States  to  develop  multi-annual  planning  for  Natura  2000, 
consistent with the prioritised action frameworks required under the Habitats Directive.  

The second responds to the CoP10 commitment to increase substantially financial resources 
from  all  sources  for  effective  implementation  of  the  Nagoya  outcomes.  Discussions  on 
funding  targets in  CoP-11  should  recognise  the  need  for  increases  in public  funding, 
but also the potential of innovative financial mechanisms. Financial flows (own resources and 
innovative sources) required to meet identified needs should be set out in national biodiversity 
strategies and action plans.  

27 
28 

29 

COM(2011) 17. 
COM(2010) 110. By end September 2009, the uptake of funds allocated to biodiversity was lower than 
for  other  spending  categories.  At  that  time,  the  uptake  for  the  two  categories  directly  related  to 
biodiversity ("promotion of biodiversity and nature" and "promotion of natural assets") was 18,1% and 
22% respectively, compared to an average of 27,1% for all cohesion policy funding. Member States are 
required to submit updated figures by the end of June 2011, hence consolidated data should be available 
in summer. 
As required under Article 8 of the Habitats Directive. 

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These  commitments  could  be  met  directly  through  dedicated  additional  funding  for 
biodiversity, and indirectly by ensuring synergies with other relevant funding sources, such as 
climate finance (e.g. ETS revenues, REDD+) and other innovative financing sources, such as 
funds  generated  by  the  Nagoya  Protocol  on  ABS.  The  reform  of  harmful  subsidies,  in  line 
with the 2020 Strategy and the global CBD target, will also benefit biodiversity. 

4.3. 

A COMMON IMPLEMENTATION STRATEGY FOR THE EU 

The shared EU and CBD targets need to be pursued through a mix of sub-national, national 
and EU-level action. Close coordination will therefore be needed to track progress in reaching 
the  targets,  including  those  addressed  through  policy  measures  outside  the  scope  of  this 
strategy, and to ensure consistency between EU and Member State action. For this purpose, 
the  Commission  will  work  with  Member  States  to  develop  a  common  framework  for 
implementation  involving  also  other  key  actors,  sectors  and  institutions  based  on  best 
practice, and setting out the roles and responsibilities of each in ensuring success.  

The  Commission  will  support  and  complement  Member  States’  efforts  by  enforcing 
environmental  legislation,  filling  policy  gaps  by  proposing  new  initiatives,  providing 
guidelines, funding, and fostering research and the exchange of best practice.  

5. 

FOLLOW-UP 

This strategy provides a framework for action to enable the EU to reach its 2020 biodiversity 
target  and  set  it  on  the  right  path  to  attain the  2050  vision.  It  will  be  subject  to  a  mid-term 
review in early 2014, so that results can feed into the preparation of the EU’s fifth National 
Report  as  required  under  the  CBD.  The  targets  and  measures  will  be  reconsidered  as  new 
information becomes available and progress is made on the objectives set in the strategy.  

Because  many  of  the  actions  taken  today  to  safeguard  biodiversity  and  enhance  our  natural 
assets will take a long time to bring about real improvements, implementation of this strategy 
needs to begin now for the EU to meet its 2020 headline target. 

The Commission invites the European Parliament and the Council to endorse the targets and 
actions set out in the Annex. 

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ANNEX 

TARGET 1: FULLY IMPLEMENT THE BIRDS AND HABITATS DIRECTIVES 

To  halt  the  deterioration  in  the  status  of  all  species  and  habitats  covered  by  EU  nature 
legislation and achieve a significant and measurable improvement in their status so that, by 
2020,  compared  to  current  assessments:  (i)  100%  more  habitat  assessments  and  50%  more 
species assessments under the Habitats Directive show an improved conservation status; and 
(ii)  50%  more  species  assessments  under  the  Birds  Directive  show  a  secure  or  improved 
status. 

Action  1:  Complete  the  establishment  of  the  Natura  2000  network  and  ensure  good 
management  
1a) 

Member  States  and  the  Commission  will  ensure  that  the  phase  to  establish  Natura 
2000, including in the marine environment, is largely complete by 2012. 

1b) 

1c) 

1d) 

Member  States  and  the  Commission  will  further  integrate  species  and  habitats 
protection and management requirements into key land and water use policies, both 
within and beyond Natura 2000 areas. 

Member States  will ensure  that management plans or equivalent instruments which 
set  out  conservation  and  restoration  measures  are  developed  and  implemented  in  a 
timely manner for all Natura 2000 sites. 

The Commission, together with Member States, will establish by 2012 a process to 
promote the sharing of experience, good practice and cross-border collaboration on 
the  management  of  Natura  2000,  within  the  biogeographical  frameworks  set  out  in 
the Habitats Directive. 

Action 2: Ensure adequate financing of Natura 2000 sites 

2) 

The Commission and Member States will provide the necessary funds and incentives 
for  Natura  2000,  including  through  EU  funding  instruments,  under  the  next 
multiannual financial framework. The Commission will set out its views in 2011 on 
how Natura 2000 will be financed under the next multi-annual financial framework. 

Action 3: Increase stakeholder awareness and involvement and improve enforcement 
3a) 

The  Commission,  together  with  Member  States,  will  develop  and  launch  a  major 
communication campaign on Natura 2000 by 2013. 

3b) 

3c) 

The Commission and Member states will improve cooperation with key sectors and 
continue  to  develop  guidance  documents  to  improve  their  understanding  of  the 
requirements  of  EU  nature  legislation  and  its  value  in  promoting  economic 
development. 

The  Commission  and  Member  States  will  facilitate  enforcement  of  the  nature 
directives by providing specific training programmes on Natura 2000 for judges and 
public prosecutors, and by developing better compliance promotion capacities. 

Action 4: Improve and streamline monitoring and reporting  
4a) 

The Commission, together with Member States, will develop by 2012 a new EU bird 
reporting  system,  further  develop  the  reporting  system  under  Article  17  of  the 

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Habitats Directive and improve the flow, accessibility and relevance of Natura 2000 
data.  

4b) 

The  Commission  will  create  a  dedicated  ICT  tool  as  part  of  the  Biodiversity 
Information System for Europe to improve the availability and use of data by 2012. 

TARGET 2: MAINTAIN AND RESTORE ECOSYSTEMS AND THEIR SERVICES 

By 2020, ecosystems and their services are maintained and enhanced  by establishing  green 
infrastructure and restoring at least 15 % of degraded ecosystems. 

Action 5: Improve knowledge of ecosystems and their services in the EU 

5) 

Member States, with the assistance of the Commission, will map and assess the state 
of  ecosystems  and  their  services  in  their  national  territory  by  2014,  assess  the 
economic  value  of  such  services,  and  promote  the  integration  of  these  values  into 
accounting and reporting systems at EU and national level by 2020.  

Action 6: Set priorities to restore and promote the use of green infrastructure  
6a) 

By  2014,  Member  States,  with  the  assistance  of  the  Commission,  will  develop  a 
strategic  framework  to  set  priorities  for  ecosystem  restoration  at  sub-national, 
national and EU level. 

6b) 

The  Commission  will  develop  a  Green  Infrastructure  Strategy  by  2012  to  promote 
the deployment of green infrastructure in the EU in urban and rural areas, including 
through incentives to encourage up-front investments in green infrastructure projects 
and the maintenance of ecosystem services, for example through better targeted use 
of EU funding streams and Public Private Partnerships. 

Action 7: Ensure no net loss of biodiversity and ecosystem services  
7a) 

In  collaboration  with  the  Member  States,  the  Commission  will  develop  a 
methodology for assessing the impact of EU funded projects, plans and programmes 
on biodiversity by 2014. 

7b) 

The  Commission  will  carry  out  further  work  with  a  view  to  proposing  by  2015  an 
initiative to ensure there is no net loss of ecosystems and their services (e.g. through 
compensation or offsetting schemes). 

Target 3: INCREASE THE CONTRIBUTION OF AGRICULTURE AND FORESTRY TO 
MAINTAINING AND ENHANCING BIODIVERSITY 

3A) Agriculture: By 2020, maximise areas under agriculture across grasslands, arable land 
and permanent crops that are covered by biodiversity-related measures under the CAP so as 
to ensure the conservation of biodiversity and to bring about a measurable improvement(*) in 
the conservation status of species and habitats that depend on or are affected by agriculture 
and  in  the  provision  of  ecosystem  services  as  compared  to  the  EU2010  Baseline,  thus 
contributing to enhance sustainable management.  

B)  Forests:  By  2020,  Forest  Management  Plans  or  equivalent  instruments,  in  line  with 
Sustainable Forest Management (SFM)30, are in place for all forests that are publicly owned 
and for forest holdings above a certain size** (to be defined by the Member States or regions 

30 

As defined in SEC(2006) 748. 

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and communicated in their Rural Development Programmes) that receive funding under the 
EU  Rural  Development  Policy  so  as  to  bring  about  a  measurable  improvement(*)  in  the 
conservation status of species and habitats that depend on or are affected by forestry and in 
the provision of related ecosystem services as compared to the EU 2010 Baseline.  

(*)  For  both  targets,  improvement  is  to  be  measured  against  the  quantified  enhancement 
targets for the conservation status of species and habitats of EU interest in Target 1 and the 
restoration of degraded ecosystems under target 2. 

(**)  For  smaller  forest  holdings,  Member  States  may  provide  additional  incentives  to 
encourage the adoption of Management Plans or equivalent instruments that are in line with 
SFM. 

Action 8: Enhance direct payments for environmental public goods in the EU Common 
Agricultural Policy 
8a) 

The Commission will propose that CAP direct payments will reward the delivery of 
environmental  public  goods  that  go  beyond  cross-compliance  (e.g.  permanent 
pasture, green cover, crop rotation, ecological set-aside, Natura 2000). 

8b) 

The  Commission  will  propose  to  improve  and  simplify  the  GAEC  (Good 
Agricultural  and  Environmental  Conditions)  cross-compliance  standards  and 
consider  including  the  Water  Framework  Directive  within  the  scope  of  cross-
compliance once the Directive has been implemented and the operational obligations 
for farmers have been identified in order to improve the state of aquatic ecosystems 
in rural areas. 

Action 9: Better target Rural Development to biodiversity conservation 
9a) 

The  Commission  and  Member  States  will  integrate  quantified  biodiversity  targets 
into Rural Development strategies and programmes, tailoring action to regional and 
local needs.  

9b) 

The  Commission  and  Member  States  will  establish  mechanisms  to  facilitate 
collaboration  among  farmers  and  foresters  to  achieve  continuity  of  landscape 
features, protection of genetic resources and other cooperation mechanisms to protect 
biodiversity. 

Action 10: Conserve Europe’s agricultural genetic diversity 
10) 

the  uptake  of  agri-
The  Commission  and  Member  States  will  encourage 
environmental  measures  to  support  genetic  diversity  in  agriculture  and  explore  the 
scope for developing a strategy for the conservation of genetic diversity. 

Action 11: Encourage forest holders to protect and enhance forest biodiversity  
11a)  Member  States  and  the  Commission  will  encourage  the  adoption  of  Management 
Plans,31  inter  alia  through  use  of  rural  development  measures32  and  the  LIFE+ 
programme. 

31 

32 

SFM  requires  wider  use  of  management  plans  or  equivalent  instruments.  23  Member  States  already 
have more than 60 % of their forested areas under such plans. 
As set out in Council Regulation 1698 (2005). 

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11b)  Member  States  and  the  Commission  will  foster  innovative  mechanisms  (e.g. 
Payments  for  Ecosystem  Services)  to  finance  the  maintenance  and  restoration  of 
ecosystem services provided by multifunctional forests. 

Action 12: Integrate biodiversity measures in forest management plans 
12) 

Member  States  will  ensure  that  forest  management  plans  or  equivalent  instruments 
include as many of the following measures as possible: 
–  maintain optimal levels of deadwood, taking into account regional variations such 

as fire risk or potential insect outbreaks; 

–  preserve wilderness areas; 
–  ecosystem-based measures to increase the resilience of forests against fires as part 
of  forest  fire  prevention  schemes,  in  line  with  activities  carried  out  in  the 
European Forest Fire Information System (EFFIS); 

–  specific measures developed for Natura 2000 forest sites;  
–  ensuring  that  afforestation  is  carried  out  in  accordance  with  the  Pan-European 
Operational Level Guidelines for SFM33, in particular as regards the diversity of 
species, and climate change adaptation needs. 

TARGET 4: ENSURE THE SUSTAINABLE USE OF FISHERIES RESOURCES 

Achieve  Maximum  Sustainable  Yield  (MSY)  by  2015.  Achieve  a  population  age  and  size 
distribution  indicative  of  a  healthy  stock,  through  fisheries  management  with  no  significant 
adverse  impacts  on  other  stocks,  species  and  ecosystems,  in  support  of  achieving  Good 
Environmental Status by 2020, as required under the Marine Strategy Framework Directive. 

Action 13: Improve the management of fished stocks 
13a) 

The Commission and Member States will maintain and restore fish stocks to levels 
that  can produce MSY  in  all  areas  in  which EU fish fleets operate, including areas 
regulated by Regional Fisheries Management Organisations, and the waters of third 
countries with which the EU has concluded Fisheries Partnership Agreements. 

13b) 

13c) 

The  Commission  and  Member  States  will  develop  and  implement  under  the  CFP 
long-term management plans with harvest control rules based on the MSY approach. 
These  plans  should  be  designed  to  respond  to  specific  time-related  targets  and  be 
based on scientific advice and sustainability principles. 

The Commission and Member States will significantly step up their work to collect 
data  to  support  implementation  of  MSY.  Once  this  objective  is  attained,  scientific 
advice  will  be  sought  to  incorporate  ecological  considerations  in  the  definition  of 
MSY by 2020. 

Action 14: Eliminate adverse impacts on fish stocks, species, habitats and ecosystems 
14a) 

The EU will design measures to gradually eliminate discards, to avoid the by-catch 
of  unwanted  species  and  to  preserve  vulnerable  marine  ecosystems  in  accordance 
with EU legislation and international obligations. 

14b) 

The Commission and Member States will support the implementation of the Marine 
Strategy  Framework  Directive,  including  through  providing  financial  incentives 
through the future financial instruments for fisheries and maritime policy for marine 

33 

http://www.foresteurope.org/. 

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protected  areas  (including  Natura  2000  areas  and  those  established  by  international 
or  regional  agreements).  This  could  include  restoring  marine  ecosystems,  adapting 
fishing  activities  and  promoting  the  involvement  of  the  sector  in  alternative 
activities,  such  as  eco-tourism,  monitoring  and  managing  marine  biodiversity,  and 
combating marine litter. 

TARGET 5: COMBAT INVASIVE ALIEN SPECIES 

By  2020,  Invasive  Alien  Species  (IAS)  and  their  pathways  are  identified  and  prioritised, 
priority  species  are  controlled  or  eradicated,  and  pathways  are  managed  to  prevent  the 
introduction and establishment of new IAS.  

Action 15: Strengthen the EU Plant and Animal Health Regimes 
15) 

The  Commission  will  integrate  additional  biodiversity  concerns  into  the  Plant  and 
Animal Health regimes by 2012. 

Action 16: Establish a dedicated instrument on Invasive Alien Species 
16) 

The  Commission  will  fill  policy  gaps  in  combating  IAS  by  developing  a  dedicated 
legislative instrument by 2012. 

TARGET 6: HELP AVERT GLOBAL BIODIVERSITY LOSS 

By 2020, the EU has stepped up its contribution to averting global biodiversity loss.  

Action 17: Reduce indirect drivers of biodiversity loss  
17a) 

Under  the  EU  flagship  initiative  on  resource  efficiency,  the  EU  will  take  measures 
(which may include demand and/or supply side measures) to reduce the biodiversity 
impacts of EU consumption patterns, particularly for resources that have significant 
negative effects on biodiversity.  

17b) 

The  Commission  will  enhance  the  contribution  of  trade  policy  to  conserving 
biodiversity and address potential negative impacts by systematically including it as 
part  of  trade  negotiations  and  dialogues  with  third  countries,  by  identifying  and 
evaluating potential impacts on biodiversity resulting from the liberalisation of trade 
and investment through ex-ante Trade Sustainability Impact Assessments and ex-post 
evaluations, and seek to include in all new trade agreements a chapter on sustainable 
development providing for substantial environmental provisions of importance in the 
trade context including on biodiversity goals.  

17c) 

The Commission will work with Member States and key stakeholders to provide the 
right  market  signals  for  biodiversity  conservation,  including  work  to  reform,  phase 
out  and  eliminate  harmful  subsidies  at  both  EU  and  Member  State  level,  and  to 
provide positive incentives for biodiversity conservation and sustainable use.  

Action 18: Mobilise additional resources for global biodiversity conservation 
18a) 

The Commission and Member States will contribute their fair share to international 
efforts  to  significantly  increase  resources  for  global  biodiversity  as  part  of  the 
international  process  aimed  at  estimating  biodiversity  funding  needs  and  adopting 
resource mobilisation targets for biodiversity at CBD CoP11 in 201234. 

34 

As set out in CoP10 Decision X/3. 

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18b) 

The  Commission  will  improve  the  effectiveness  of  EU  funding  for  global 
biodiversity inter alia by supporting natural capital assessments in recipient countries 
and the development and/or updating of National Biodiversity Strategies and Action 
Plans, and by improving coordination within the EU and with key non-EU donors in 
implementing biodiversity assistance/projects. 

Action 19: ‘Biodiversity proof’ EU development cooperation 
19) 

The Commission will continue to systematically screen its development cooperation 
action  to  minimise  any  negative  impact  on  biodiversity,  and  undertake  Strategic 
Environmental  Assessments  and/or  Environmental  Impact  Assessments  for  actions 
likely to have significant effects on biodiversity. 

Action  20:  Regulate  access  to  genetic  resources  and  the  fair  and  equitable  sharing  of 
benefits arising from their use 
20) 

The  Commission  will  propose  legislation  to  implement  the  Nagoya  Protocol  on 
Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising 
from their Utilisation in the European Union so that the EU can ratify the Protocol as 
soon as possible and by 2015 at the latest, as required by the global target. 

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