COMMISSION STAFF WORKING PAPER SUMMARY OF THE IMPACT ASSESSMENT  COMMISSION STAFF WORKING PAPER SUMMARY OF THE IMPACT ASSESSMENT
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 
SEC(2011) 541 final 

COMMISSION STAFF WORKING PAPER 

SUMMARY OF THE IMPACT ASSESSMENT 

Accompanying document to the 

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

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

{COM(2011) 244 final} 
{SEC(2011) 540 final} 

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1. 

INTRODUCTION 

In  March  2010,  the  European  Council  adopted  an  ambitious  new  headline  target  for 
biodiversity to replace the expiring 2010 target. The new headline target calls for halting the 
loss of biodiversity and the degradation of ecosystem services by 2020 and restoring them in 
so far as feasible, while stepping up the EU contribution to averting global biodiversity loss. 

The current biodiversity policy framework will not enable the EU to reach its 2020 headline 
target.  The  Council  therefore  called  on  the  Commission  to  develop  a  new  strategy,  which 
should include targets as well as necessary, feasible and cost-effective measures and actions 
to  reach  them.  The  Council  requested  that  the  strategy  reflect  the  eventual  outcomes  of  the 
tenth  meeting  of  the  Conference  of  the  Parties  to  the  Convention  on  Biological  Diversity 
(CBD CoP10), which took place in Nagoya, Japan in October 2010, and that it be completed 
as soon as possible after that meeting. 

2. 

PROBLEM DEFINITION 

The 2010 EU biodiversity baseline shows that on average only 17% of assessed habitats are in 
favourable  conservation  status  and  up  to  25%  of  animal  species  in  the  EU  face  the  risk  of 
extinction.  Most  ecosystem  services  are  no  longer  able  to  deliver  the  optimal  quality  and 
quantity of basic services such as crop pollination, clean air and water, and control of floods 
or erosion that underpin many economic activities. 

Europe's biodiversity remains under severe threat from habitat loss due to land use change and 
fragmentation;  pollution;  overexploitation/unsustainable  use  of  resources;  invasive  species 
and  climate  change.  These  pressures  are  all  either  constant  or  increasing  in  intensity.  The 
situation  is  similar  at  global  level.  The  pressures  are  underpinned  by  indirect  drivers  that 
relate  for  instance  to  demographic  and  cultural/lifestyle  choices,  market  failures,  and 
economic structure, size and growth. 

This degradation and loss have significant environmental, economic and social consequences 
within the EU and at the global level. For example the loss of riparian wetlands has an impact 
on society at large, through reduced flood control services, lower water purification, reduced 
recreational  and  amenity  services  and  lower  carbon  storage.  Some  business  sectors  are 
particularly affected, as they depend on biodiversity and ecosystem services, either directly or 
indirectly.  Biodiversity  loss  also  has  impacts  on  jobs,  since  one  in  six  jobs  in  Europe  is 
somehow  linked  to  the  environment  and  biodiversity,  whether  directly  or  indirectly.  It  also 
limits  the  delivery  of  several  ecosystem  services  essential  to  maintain  a  healthy  population, 
from the provisioning of food and potable water to clean air and medicine. In addition, it has a 
strong bearing on the EU’s territorial cohesion, since biodiversity and ecosystems cement the 
social fabric and identity of many European regions. 

Actions  proposed  in  this  paper  are  those  where  the  EU  has  most  value-added  and  leverage. 
However,  it  is  clear  that  without  parallel  action  at  Member  State  level,  they  will  not  be 
sufficient  to  deliver  the  target  of  halting  biodiversity  loss.  Success  in  delivering  the  2020 
headline target will depend on a  mixture  of  EU and  national,  regional or  local measures, in 
line  with  the  principle  of  subsidiarity.  Actions  may  need  to  vary  across  Member  States  and 
from regions. 

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3. 

OBJECTIVES AND TARGETS 

The general objective is the EU 2020 biodiversity target and its three components. Achieving 
the 2020 headline target is also seen as an intermediary step towards attaining the objective 
set out in the 2050 vision, and a means of meeting the EU's commitment to the global 2020 
biodiversity targets.  

Specific objectives are identified, taking into account the factors that led to the failure of the 
EU in meeting its 2010 target and the need to reflect the global biodiversity targets agreed at 
CBD CoP10. An assessment of existing EU policy and legislation shows that two of the direct 
drivers of biodiversity loss — climate change and pollution — do not constitute major policy 
gaps.  Conversely,  land  use  change;  overexploitation/unsustainable  use  of  resources;  and 
invasive alien species constitute significant gaps. As a result, three specific objectives focus 
on  addressing  these  drivers.  The  remaining  three  specific  objectives  respond  to  the  2050 
vision  and  2020  headline  target  call  to  maintain  and  enhance  biodiversity  and  ecosystem 
services in the EU (both within and beyond the Natura 2000 network of protected areas), and 
at global level. 

Options for operational targets and different levels of ambition were then considered based on 
their  potential  to  efficiently  build  on  the  baseline  to  2020  to  deliver  the  overall  target  and 
vision. Six operational targets were (Table 1). 

General objectives 

Halting the loss of 
biodiversity and the 
degradation of 
ecosystem services in 
the EU by 2020 

Specific 
objectives 

Fully implement 
the Birds and 
Habitats 
Directives 

Operational targets 

T1 - 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. 

Increase the 
contribution of 
agriculture and 
forestry to 
maintaining and 
enhancing 
biodiversity* 

T3a  -  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 EU 2010 Baseline, thus contributing 
to enhance sustainable management. 

T3b - By 2020, Forest Management Plans or equivalent instruments, in line 
with Sustainable Forest Management (SFM1), 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 Programme, so as to bring 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 

1 

As defined in SEC(2006) 748 

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instruments that are in line with SFM. 

Ensure the 
sustainable use of 
fisheries resources 

T4 - Achieve Maximum Sustainable Yield (MSY)2 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. 

Combat invasive 
alien species 

T5 - By 2020, invasive alien species (IAS) and their pathways are identified 
and prioritized, priority species are controlled or eradicated, and pathways 
are managed to prevent the introduction and establishment of new IAS. 

Restoring ecosystem 
services in so far as 
feasible 

Maintain and 
restore 
ecosystems and 
their services 

T2 - By 2020, ecosystems and their services are maintained and enhanced by 
establishing green infrastructure and restoring at least 15% of degraded 
ecosystems. 

Stepping up the EU 
contribution to 
averting global 
biodiversity loss 

Help avert global 
biodiversity loss 

T6 - By 2020, the EU has stepped up its contribution to averting global 
biodiversity loss. 

Table 1: General and specific objectives and operational targets 

4. 

MEASURES AND RELATED IMPACTS 

For each target, a coherent set of complementary measures needed to achieve it is proposed. 
The likely impacts of these measures are analysed against environmental, economic and social 
criteria, differentiating by type of measure when appropriate.  

As  many  of  the  measures  will  be  further  elaborated  and  analysed  in  the  context  of  impact 
assessments to be undertaken in the context of other policy proposals in the pipeline, impacts 
are  mostly  assessed  in  a  qualitative  way  (Table  2).  Orders  of  magnitude  of  aggregated 
quantitative  impacts  are  given  where  possible,  and  examples  of  specific  cases  usually  at 
project level are also provided for illustrative purposes. The distribution of impacts within the 
EU and the expected international impacts are also assessed, where relevant. 

Environmental 

Economic 

Social 

biodiversity 

Increased 
and 
ecosystem  services  from  Natura 
to 
2000  sites,  better  resilience 
stressors  such  as  climate  change. 
Synergies with WFD and MSFD. 

T1 

+ 

- 

Increased  benefits  from  ecosystem 
services.  Limited  private  business 
opportunities in Natura 2000. 

Increased  employment 
areas in the medium term. 

in 

rural 

Fraction of total management costs 
of € 5.8 billion per year. 

Possible  short  term  job  losses  due 
to restricted access to resources. 

2 

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. 

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natural 

enhanced 
and 
Maintained 
ecosystems  and  services,  such  as 
clean air and water, carbon storage 
and 
control. 
Increased  ecosystem  resilience  and 
reduced  vulnerability  to  climate 
change.  Synergies  with  WFD  and 
MSFD. 

disaster 

enhancing 
and 
Maintaining 
agriculture  and  forest  ecosystems 
and their services, including carbon 
prevention, 
erosion 
storage, 
pollution 
and  water 
control 
purification. Synergies with WFD. 

of 

Increased  and  more  sustainable 
populations, 
fish 
levels 
maintained  and  enhanced  marine 
ecosystems  &  services.  Synergies 
with MSFD. 

Increased  benefits  from  ecosystem 
services.  No  aggregated  estimates 
of  benefits,  but  project-based 
evidence  of  benefit-cost  ratios  in 
to  75.  New 
the 
for 
investment 
businesses 
innovation 
potential. 
Climate  mitigation 
benefits. 

opportunities 
and 

range  of  3 

in 

the  order  of  several 
Costs 
billions per year, but GI costs could 
substitute  for  more  costly  grey 
infrastructure investment. 

created 

for 
New  possibilities 
agricultural  sector  diversification; 
improving 
in 
farmers 
Natura  2000  and  HNV  areas; 
and 
increased 
forestry 
diversification  of 
sector. 

competitiveness 

income 

the 

Costs related to funding from pillar 
1  and  pillar  2  measures,  which 
would  partly  contribute  to  costs  of 
managing  Natura  2000  and  HNV 
areas.  Likely 
to  be  change  of 
spending  priorities  rather  than  net 
costs.  Forest  management  plans 
than 
administrative  costs  more 
compensated  by  rural  development 
payments. 

long-run 

Positive 
fisheries 
efficiency of public spending. 

income. 

impact 

on 
Increased 

Multiple  social  benefits,  both  in 
urban  and  rural  areas,  such  as 
impacts  on  health  and 
positive 
life,  aesthetical  and 
quality  of 
reduced 
psychological  benefits, 
exposure  to  natural  disasters,  new 
job opportunities in restoration and 
conservation. 

Contribution  to  rural  development 
in less favoured areas; new jobs. 

negative 

on 
Prevent 
employment in case of a collapse in 
fish stocks. 

effect 

Negative  short  term  impacts  on 
fisheries 
Higher 
income. 
management costs to avoid adverse 
impacts on ecosystems. 

Reduced  pressure  on  species  and 
habitats  from  IAS.  Strong  synergy 
effects  with  other 
targets  e.g. 
ecosystem restoration. 

Reduced economic damage. Rough 
estimates show benefits in terms of 
avoided  damage  costs  of 
billion / year. 

€ 1-9 

Improved 
biodiversity 
global 
especially  in  developing  countries, 
Increased  ecosystem  services  such 
as  carbon  storage,  water  provision, 
purification  and  retention.  Some 
improvements also in the EU. 

€ 40 million–190 million / year. 

Economic benefits from 
biodiversity & ecosystem services, 
e.g. climate mitigation, increased 
crop yields through pollination in 
developing countries. Genetic 
diversity benefits EU & developing 
countries (cosmetics & 
medication). ABS protocol 
provides legal certainty of access to 
resources for EU companies. 

EU contribution to financing global 
biodiversity  to  increase  by  2020; 
to  EU 
cost  of  ABS  protocol 
industry. 

Short  term  social  cost  of  scaling 
down of fleet in the fishing sector. 

Reduced adverse impacts on human 
health, avoided negative 
employment consequences, 
enhanced cultural services and 
recreational activities. 

social 

Poverty  alleviation.  Decreased  risk 
impacts  of  natural 
of 
disasters. 
benefits. 
Health 
Improved  livelihood  of  indigenous 
communities  through  sharing  of 
traditional knowledge benefits. 

T2 

T3 

T4 

T5 

T6 

+ 

- 

+ 

- 

+ 

- 

+ 

- 

+ 

- 

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Table 2: Key costs and benefits of reaching targets 

The  report  reviews  prioritisation  of  actions  within  each  target.  T2  and  T5  kick  start  policy 
action in areas which are currently not part of the EU biodiversity policy framework and have 
good potential for delivering significant and early results. However, improved implementation 
and integration in sectors is also key to reaching the overall objectives. 

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5. 

FUNDING AND GOVERNANCE 

As insufficient funding was a key factor in the failure to meet the 2010 EU target, it will be 
important  to  ensure  adequate  and  effective  funding  for  the  implementation  of  the  2020 
biodiversity strategy. Whilst for some targets, the focus will be more on effective take-up and 
redistribution of existing resources, existing sources will need to be scaled up and new ones – 
both public and private – identified and promoted at EU, national and global level.  

Within  the  current  programming  period  and  without  pre-empting  the  outcome  of  the 
negotiations  on  the  next  Multi-annual  Financial  Framework,  this  should  be  achieved  by 
rationalising  available  resources  and  maximising  co-benefits  of  various  sources  of  funding, 
including funding for agriculture and rural development, fisheries, regional policy and climate 
change.  Opportunities  offered  by  ongoing  policy  reforms  (e.g.  CAP,  CFP  and  cohesion 
policy),  new  policy  initiatives  (e.g.  the  Resource  Efficiency  flagship  initiative)  and  the  next 
financial  perspectives  should  be  seized  to  deliver  the  target  and  vision  efficiently.  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. 

Innovative  financing  mechanisms  will  also  be  needed  to  mobilise  funding  from  both  public 
and private sources, at all levels. At EU and national level, the  reform  of  harmful  subsidies 
could  offer  opportunities,  in  line  with  the  2020  Strategy  and  the  global  CBD  target.  At  EU 
level, Payments for Ecosystem Services (PES) will be further mobilised to reward private and 
public  goods  from  agricultural,  forest  and  marine  ecosystems.  Incentives  should  also  be 
provided  to  encourage  up-front  investments  in  green  infrastructure  projects  and  the 
maintenance of ecosystem services, for example through better targeted EU funding streams 
and Public Private Partnerships. The potential of biodiversity offsets will be looked into as a 
way of achieving a 'no net loss' approach.  

The shared EU and CBD targets need to be pursued through a mix of sub-national, national 
and  EU-level  action.  This  will  require  close  coordination  between  all  involved  in 
implementation.  A  common  implementation  framework  is  proposed  in  which  each  Member 
State would incorporate the EU targets into its own National Biodiversity Strategy and Action 
Plan  and  complement  them  with  national  targets  as  necessary,  taking  into  account  also  the 
global targets adopted at COP10. Local and regional authorities, the private sector and civil 
society would also have important roles to play and their participation in the implementation 
of the strategy needs to be promoted and facilitated at all levels.  

6. 

MONITORING, REVIEW, COMMUNICATION AND WAY FORWARD 

The Commission, together with other partners, will develop by 2012 a logical framework to 
monitor trends and assess progress on the measures and targets in a coherent way, based on 
the 2010 EU biodiversity baseline and a streamlined set of agreed indicators. Synergies and 
better  integration  with  existing  initiatives  will  also  be  sought.  The  Commission  will  also 
continue to address knowledge gaps, in particular concerning the links between biodiversity, 
ecosystems and their services. At the global level, the EU is supporting efforts to establish an 
Intergovernmental science policy Platform on Biodiversity and Ecosystem Services (IPBES), 
to reinforce the science-policy interface. 

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The  Commission,  in  consultation  with  the  Member  States,  will  develop  a  reporting  system 
that  is  streamlined  and  aligned  with  the  review  and  reporting  obligations  under  the  CBD 
wherever  possible.  Finally,  efforts  will  be  made  to  increase  public  understanding  of  the 
importance  of  biodiversity  and  the  role  that  all  stakeholders  can  play  in  conserving 
biodiversity and ensure its sustainable use. 

On  the  basis  of  the  priorities  highlighted  above  and  the  targets  and  actions  presented,  the 
Commission  will  come  forward  with  concrete  proposals  and  initiatives  to  deliver  on  the 
different components of the Strategy, including an initiative on green infrastructure by 2012, a 
strategy  on  Invasive  Alien  Species  in  2012;  and  a  legislative  proposal  to  implement  the 
Access  and  Benefit  Sharing  Protocol  in  2012.  These  will  be  accompanied  by  impact 
assessments,  as  appropriate.  Ongoing  policy  reform  processes,  including  those  of  the  CAP, 
CFP  and  Cohesion  Policy,  provide  timely  opportunities  to  enhance  synergies  and  maximise 
coherence with the biodiversity strategy targets and measures. 

A mid-term review of the Strategy will be completed in early 2014 at the latest, and a final 
assessment  in  2020.  The  Commission  may  review  the  targets  if  needed  in  light  of  new 
information  and  consider  further  and  complementary  steps  reflecting  relevant  developments 
and emerging priorities at national, EU and global level. 

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