Target framework The Environment Bill allows for long-term targets to be set in respect of any matter which relates to the natural environment, or people’s enjoyment of it. It requires government to set at least one target in four priority areas: air quality, biodiversity, water, and resource efficiency and waste reduction, as well as a target for fine particulate matter (PM2.5). These targets need to be brought forward by 31 October 2022. Long-term targets will be supported by interim targets, which will set a five year trajectory towards meeting the long-term targets. This will allow for an ongoing assessment of whether the government is on track to meet its longer-term target ambitions. The Environment Bill creates a new statutory cycle of monitoring, planning and reporting, including a long-term Environmental Improvement Plan. The 25 Year Environment Plan will be the first such Environmental Improvement Plan. Interim targets will be set out in the Environmental Improvement Plan, which will be reviewed at least every five years. The government will have to report annually on what it has done to implement the Environmental Improvement Plan and on whether the natural environment (or particular aspects of it) has improved. That report will also consider the progress that has been made towards meeting relevant targets. The new environmental watchdog, the Office for Environmental Protection, will also have to report annually on the progress that has been made in improving the natural environment in accordance with the Environmental Improvement Plan and on progress towards meeting targets. That report may also include recommendations to government about how it can improve progress, to which the government would have to respond. The bill framework requires government to periodically review its targets, by carrying out a Significant Improvement Test at least every five years. This means that government must consider whether meeting its long-term targets and the PM2.5 target, alongside any other relevant statutory environmental targets, would significantly improve the natural environment in England. It must report to Parliament on its conclusions and, if it considers that the test is not met, set out how it plans to use its target-setting powers to close the gap. The Bill allows for additional long-term targets to be set in the future. We expect any future long-term targets will be set in a similar way to the first suite, through expert advice, stakeholder engagement, and public consultation as part of the robust, evidence-led target-setting process. The natural environment is complex, and we see target-setting as an iterative process, built upon over time as our evidence base and understanding develops. We want to use targets to meaningfully drive the environmental outcomes that we need. Criteria and principles for developing targets We want to develop targets that are driven by taking action in areas that matter the most, rather than limiting our targets to areas that are easy to measure and improve. The targets should drive environmental outcomes that benefit future generations and respect nature’s intrinsic value, independent of human use. We want to start by identifying indicators that will help measure the changes that we want to see in improving the environment. All targets, both long-term and interim, must meet certain requirements that are set out in the Environment Bill. These requirements are reflected in the criteria for Bill targets below. Wider considerations will also inform the development of robust and credible targets and are reflected below as principles for target development. Together, these criteria and principles provide a robust framework for how we will develop evidence-based targets. Criteria for bill targets
we can set long-term targets in respect of matters that relate to the natural environment or people’s enjoyment of it
we must set at least one long-term target in each of the four priority areas (air quality, biodiversity, water, and resource efficiency and waste reduction) as well as a target for fine particulate matter (PM2.5) expressed as an annual mean (the PM2.5 target may, but need not be, a long-term target). More than one target could be set within a given priority area
a long-term target must have a minimum duration of 15 years
we need to ensure that targets have a clearly defined level or quality standard to be achieved, which can be objectively measured. The method for objective measurement should be clear and repeatable, to allow results to be reproducible within reason
we need to identify a specific date for achieving each target. This ensures targets are time-bound and there is a clear deadline to focus policy action
when developing targets, we need to make sure that long-term targets can be met. In other words, we want to develop ambitious targets, but in doing so make sure that they are achievable. To inform this we will analyse the historic pace of change to the natural environment and consider future trends, including possible policy mechanisms and socio-economic drivers. We also expect innovation to play a role in helping achieve our environmental outcomes
independent expert advice needs to be sought by government when developing long-term targets. A range of experts will play a role in informing the development of targets including academics, scientists or expert practitioners. To provide scrutiny of the evidence-based approach for targets, the government will set up appropriate processes for each priority area
targets should be developed in a way that is consistent with the requirements of the policy statement on environmental principles, established under the Environment Bill. This requires policy-makers to have due regard to the Environmental Principles Policy Statement during the policymaking process
Principles in developing targets: Targets should help to meet the key goals and outcomes set out in the 25 Year Environment Plan (or in future Environmental Improvement Plans) as well as wider government environmental policy ambitions. Our 25 Year Environment Plan is a living blueprint for the environment covering the next quarter of a century. It is an ambitious project and will continue to evolve and be updated as our policies develop to build on the original actions set out in 2018. Where possible, targets should be based on environmental outcomes. By “outcomes” we mean the intended final results or benefits to the environment. An example of this is the carbon budgets that set the pathway to making progress to the UK’s net-zero emissions targets, without describing how to get there. This approach allows flexibility and innovative ways of meeting targets. We recognise that this may not always be possible, so in some cases an action-based target, alleviating a specific environmental pressure, may be more suitable. This is particularly the case if environmental outcomes cannot easily be measured, are unpredictable or depend on factors outside of government control. A system-based approach to the natural environment should be taken, as far as possible, so that we consider the targets collectively and understand their interdependencies with the wider environment. This is a joined up way to achieve our environmental ambitions that has not been done before. We want to pursue targets that have mutual benefits, for example, setting water quality targets that also help deliver biodiversity objectives. When we are developing targets, we will consider how they will inform the Significant Improvement Test, as set out in the Environment Bill. The Significant Improvement Test will be conducted for the first time by January 2023, three months after the October 2022 deadline for targets to be brought forwards. When developing targets, we will consider any relevant international best practice and commitments, such as new international biodiversity targets to be developed under the Convention on Biological Diversity, and their relevance to our domestic environmental agenda. Overview of the target setting process This section provides a summary of the target setting process government intends to adopt for the first suite of targets. It is a roadmap for our programme of work with experts, umbrella organisation groups, the public and Parliament. As our evidence base and understanding continues to improve over time, we will consider if further suites of targets will strengthen action needed to improve the natural environment. Developing a comprehensive suite of targets across the natural environment is novel and not something developed at an EU level. Our process will be informed by a number of sources of evidence including scientific data and models, historical datasets, and assessment of what is feasible from a socio-economic perspective. It will be an iterative process and rely on input, expertise and scrutiny from others. We have identified four steps which will enable us to systematically develop this evidence and meet the criteria and principles (as considered in the previous section) so that we can set strong and meaningful targets. Input from experts, stakeholders, the public and Parliament will all play a role in making sure we have robust targets that drive environmental outcomes. The steps are as follows: Step 1: Setting the scope of the targets This step will set the overall direction and focus for target setting. Part B of this document provides an overview of the government’s proposed scope for targets. This is a starting point from which specific targets will be developed by government to meet the criteria and principles (as referenced above). Step 2: Developing fully evidenced targets This step is focused on developing the detail of the targets, for example an achievable level of improvement to the environment, over a given time period and how this will be measured. It will involve detailed analysis of scientific evidence. Government and its statutory advisors (such as Environment Agency, Natural England and the Joint Nature Conservation Committee), as well as other evidence partners, will provide evidence to inform target proposals. During this step, the government will also identify potential measures that could drive action and help achieve environmental outcomes. Socio-economic analysis will assess the costs, benefits and distributional impacts of any such measures on businesses and wider society. These considerations will help ensure that proposed targets are achievable and affordable whilst still driving the ambitious changes we need to the environment. The principles in developing targets (in the section above) will guide target development so that they are robust and meaningful, and support wider environmental aims across government, such as reaching the Net Zero climate target by 2050. Target development will be supported and scrutinised by independent experts for each priority area. This will include assessment of the evidence and scrutiny of Defra’s analysis on the deliverability and impacts of proposed targets. Experts will be asked to publish their views at appropriate points during this step of the target development process. By the end of this step we will have developed objectively measurable metrics as well as proposals for target standards, dates to be achieved and first interim milestones for targets (see essential criteria and principles in the section above). Step 3: Public consultation on target proposals Alongside iterative engagement with key umbrella organisations throughout the target setting process, and any wider engagement (such as through digital tools), we will consult stakeholders and ask for written responses on the proposed targets within each priority area. This will provide an opportunity to hear a range of views on the ambition, evidence and achievability of target proposals. An Impact Assessment will accompany the consultation and consider the environmental and socio-economic considerations associated with each target. This step will provide time for written contributions to be made. We expect parliamentary Select Committees will wish to scrutinise target proposals, so this could be an opportune time to carry this out. Step 4: Drafting target legislation Once the government has collated responses from the public consultation, responses will be summarised and considered in a published government response. Government will then decide the targets to be set. Statutory Instruments setting out the targets will be brought forwards by 31 October 2022 and will come into force once approved by Parliament. A diagram depicting the target setting steps can be found in annex 1.