Valuing Nature Consultation on a Biodiversity Strategy for Northern Ireland to 2020 - Northern Ireland Environment Link
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Valuing Nature Consultation on a Biodiversity Strategy for Northern Ireland to 2020
Cover Photographs From Left to Right 1. Dragon Fly by Robert Thompson 2. White Rocks by Robert Thompson 3. Waxwing by Derek Charles 4. Common Sundew by Laurie Campbell 5. Smooth Newt by Robert Thompson 6. Red Wood Ant by Laurie Campbell
VALUING NATURE
CONSULTATION ON
A BIODIVERSITY STRATEGY FOR
NORTHERN IRELAND TO 2020
Contents Page
How to Respond 2
Freedom of Information Act 2000 – confidentiality of consultation 4
responses
Foreword 5
Chapter 1 – Biodiversity in Northern Ireland 6
Chapter 2 – Strategic Priorities for Northern Ireland 12
Chapter 3 – Delivery of Targets for 2020 14
Chapter 4 – Information Gathering and Reporting 36
Chapter 5 – Strategic Targets for 2014 – 2020 40
Chapter 6 – Implementation, Review and Reporting 46
Consultation Questions 49
Appendix 1 – Confidentiality of Consultation 50
Appendix 2 – Screening for Equality Impact Assessment 51
Appendix 3 – Rural Proofing Statement 52
Appendix 4 – Glossary of Terms 53
Appendix 5 – List of Consultees 56
1
HOW TO RESPOND
Responding to this Consultation
This consultation sets out the proposals for action to help halt the loss of
biodiversity and the degradation of ecosystems up to 2020. The Department
welcomes your response to the questions set out in the consultation as well
as any other views you may have. There is no requirement to respond to all
the questions.
Before submitting your response, please read the information on the
confidentiality of consultations set out later in this section and in Appendix 1.
This provides guidance on the legal position of any information given by you
in response to this consultation.
Response Method
Response to this consultation can be sent either by post or by email to:
Post
Carol Wilkinson
Department of the Environment
Environmental Policy Division
8th Floor
Goodwood House
44-58 May Street
Town Parks
Belfast BT1 4NN
Email:
biodiversity.policy@doeni.gov.uk
You are invited to respond to this consultation no later than 28 February
2014.
Should you have any enquiries on any aspect of this consultation please send
them to Carol Wilkinson at the above address, to
biodiversity.policy@doeni.gov.uk or telephone 02890 254728.
2
An electronic copy of the consultation document can be obtained if required
by using the contact details above. It is also available on the Department’s
website at http://www.doeni.gov.uk/ (click on ‘Natural Environment’ and on
‘Biodiversity’).
This document may be made available in alternative formats (large print, disc,
Braille, audio cassette or text phone for the hearing impaired). It may be
made available, on request, in minority languages for those who are not
proficient in English. Please contact us to discuss your requirements.
Information and additional copies of the document can be requested by using
the contact details above. The Text Phone number is 02890 540642.
Equality and Other Impact Assessments
Section 75 of the Northern Ireland Act 1998 places a duty on public
authorities to have due regard to the need to promote equality of opportunity.
The Department has completed an Equality Screening Impact exercise to
identify if any of the proposals included in this consultation will have an
impact on Section 75 groups and has concluded that no differential impact is
likely. Details of the screening analysis are provided at Appendix 2.
Human Rights Impact Assessment
The proposals contained in the consultation are considered to be compatible
with the Human Rights Act 1998.
Regulatory Impact Assessment
It is considered that there are no negative impacts on business, charities,
social economy enterprises or the voluntary sector.
Rural Proofing
It is considered that there are no negative impacts on rural productivity or the
provision of services to the rural community as a result of these proposals. A
Rural Proofing Statement is provided at Appendix 3.
Freedom of Information Act 2000 – Confidentiality of Consultation
Responses
The Department of the Environment (the Department) may wish to publish
responses to the consultation document. It will certainly publish a summary of
responses following completion of the consultation exercise.
3In addition, your response may be disclosed on request.
The Department is only able to refuse disclosure in very particular
circumstances. Therefore, you are advised to read the information at
Appendix 1 before sending a response to this consultation document. It
provides guidance on the legal position of any information given by you in
response to this consultation. If you are responding on behalf of a group or
organisation, please indicate this on your response.
Should you require further information about confidentiality of responses,
please contact:
Information Commissioner’s Office (Northern Ireland)
51 Adelaide Street
Belfast
BT2 8FE
Telephone Number:
0289026 9380
Fax:
028 9026 9380
Alternatively, your request can be sent electronically to ni@ico.gsi.gov.uk.
Information can also be accessed at: www.informationcommissioner.gov.uk.
Consultees
A list of the stakeholder organisations that have been contacted directly for
this consultation is attached at Appendix 5. However, views from anyone
interested in these proposals are welcome.
What Happens Next?
Following closure of the consultation on 28 February 2014, all responses will
be analysed and considered along with other available evidence to help us
reach decisions on the development of a Biodiversity Strategy to 2020.
4Ministerial Foreword
Northern Ireland’s biodiversity is internationally important for
both its species and habitats. It includes around 20,000
species of living things that are found here on land, in the
soil, in the air and in our waters. While conserving
biodiversity is important in its own right, its significance to the
economy and the health and well-being of the people of
Northern Ireland is paramount. That is why development of a
new Biodiversity Strategy for Northern Ireland is included in
the Executive’s Programme for Government.
The Northern Ireland Biodiversity Strategy published in 2002 provided a focus
on the action that could be taken to protect our vulnerable and threatened
habitats and species. It has served us well. In its 2nd report published in
October 2009, the Northern Ireland Biodiversity Group commented “Much has
taken place since, with many recommendations addressed fully or
implemented in part....”. But much remains to be done and the thinking on
how we do things has moved on.
Where once the focus was on the action that could be taken to protect our
vulnerable and threatened habitats and species there has been a shift
towards looking at ecosystems in their entirety. There is also an emphasis on
reflecting the benefits we derive from the environment or “natural capital” into
economic decision-making to help improve the performance of the economy.
This consultation outlines strategic targets proposed by government to help
halt biodiversity loss in Northern Ireland. I hope that all those with an interest
in our natural environment will look at the many issues covered in this
consultation and provide a response to the questions that we have posed.
Mark H Durkan MLA
Minister of the Environment
5Chapter 1 – Biodiversity in Northern Ireland
What is biodiversity and why is it important?
Biodiversity is the variety of all life on Earth. It includes all species of plants
and animals – everything that is alive on our planet.
Our society, economy and individual well-being therefore depend upon a
healthy natural environment. It underpins everything we collectively produce
and consume. We rely on it for our food, energy, minerals, clean air and
water. In short, a healthy natural environment needs to be retained for us to
exist.
The natural environment also provides us with opportunities for leisure,
outdoor recreation and leads to our general health and well-being. Many jobs
have been created in harnessing the elements of nature that produce value or
benefits to people, such as our forests, rivers, oceans and land.
The majority of environmental trends, both locally and globally, paint a picture
of overall decline, particularly over the past 50 years. The ongoing loss of
biodiversity, the degradation of ecosystems and the likely future impacts of
demographic and climate change pressures are of concern.
What have we achieved?
The initial Northern Ireland Biodiversity Strategy was developed in 2000 and
contained 76 objectives or recommendations to assist halt biodiversity loss.
Many of these recommendations have been implemented or have evolved
into wider actions due to changing circumstances and/or priorities. Over the
past number of years achievements have included:
• introduction of the WANE Act in 2011 which increased the range of
species to be protected, increased penalties for wildlife crime including
custodial sentences, banned hare coursing events and introduced a
Biodiversity Duty on all public bodies;
• marine legislation introduced to allow preparation of a Marine Plan and the
designation of MCZs;
6• introduction of measures to control pollution and improve water quality;
• greater volumes of waste being recycled;
• implementation of agri-environment and other schemes for farm
businesses;
• the number of ASSIs designated increased to over 350;
• completion of the designation of SACS and SPAs under the Habitats and
Birds Directives;
• appointment of Biodiversity Officers in the majority of district councils;
• publication of a strategy to tackle the threat of IAS together with practical
actions, many undertaken through an all-Ireland approach between NIEA
and the NPWS;
• publication of priority habitat and species list in 2010;
• publication of habitat action plans and species action plans; and
• the development of a greater level of knowledge and data in both
terrestrial and marine environments.
While these actions reflect high-level government commitment to halt
biodiversity loss, this is only part of the picture. Organisations such as
environmental NGOs manage many of our priority habitats in a sustainable
and effective manner to ensure biodiversity is promoted. A greater
understanding and increased awareness of the threats to biodiversity has
assisted individuals, community groups, schools and businesses to undertake
practical and positive actions.
However, given the ongoing decline of many of our important species and
habitats, there is a need to take a holistic and high-level approach to the
initiatives and strategic targets that are needed to help halt biodiversity loss.
That will be the aim of the revised Northern Ireland Biodiversity Strategy.
What are the main threats to biodiversity?
The pressure affecting Northern Ireland’s biodiversity is not unique. Human
health and well-being are inextricably linked to biodiversity. Over several
7thousand years humans have transformed the global environment. This
transformation has accelerated greatly in recent times due to our greater
need for food, water and energy security. These actions have resulted in the
main threats to biodiversity being:
• habitat loss, degradation and fragmentation through changing and
unsustainable land use and land management practices;
• trade in plants and animals and globalisation of transport, leading to the
spread of invasive alien species, pests and diseases;
• eutrophication, nitrogen deposition and pollution of land and water; and
• climate change, influencing the functioning of ecosystems.
International and European context
It is therefore no surprise that both nationally and internationally, the 2010
targets to halt biodiversity loss were missed and led to the UN Convention on
Biological Diversity setting new targets for 2020 – the “Aichi Biodiversity
Targets” – agreed at Nagoya, Japan in 2010 1. The UK and other Member
States within the EU are signatories to the Convention and this led to the
publication of the EU Biodiversity Strategy 2 in 2011 setting out a range of
targets geared towards 2020. Those with most relevance to Northern Ireland
are to:
• fully implement the Birds and Habitats Directives;
• maintain and restore ecosystems and their services;
• increase the contribution of agriculture and forestry to biodiversity;
• ensure the sustainable use of fisheries resources; and
• combat the introduction and spread of invasive species.
1
www.cbd.int/sp/targets/
2
http://ec.europa.eu/news/environment/110503_en.htm
8A vision for Northern Ireland
Conserving and restoring the natural environment is complex and
policies/initiatives to achieve meaningful ecological benefits will need to be
both diverse and long-term. Therefore, in line with other administrations
Northern Ireland is aspiring to attain ambitious gains by 2020 with an overall
vision that:
“By 2050, our life support system, nature, is protected and restored for its
own sake, its essential contribution to our well-being and prosperity, and to
avert catastrophic changes likely to arise from its loss.”
Natural capital and ecosystem services
To date, the emphasis for nature conservation has been on protection of
endangered species and habitats of either European or national importance.
In addition, we have sought to protect our most cherished landscapes. This
approach has been achieved through legislative controls and/or a formal
designation process.
However, despite targeted species and habitat protection, our natural
environment continues to suffer decline, a situation mirrored in much of the
world today. Indeed, even though around 13% of the world’s land surface is
now designated as protected areas, around a quarter of all plant species are
considered by the United Nations Convention on Biological Diversity to be
threatened with extinction. This includes the very plants which we rely on for
medicines, food and raw materials.
This point was reinforced with the publication of the UK National Ecosystem
Assessment 3 in 2011. This document revealed that the emphasis on
producing more food and other goods has been to the detriment of other
parts of nature that generate hidden wealth. By calculating the value of less
tangible factors such as clean air, clean water and natural defences the report
hopes to rebalance the equation.
As a result, the thinking behind how we collectively safeguard the
environment is undergoing a radical change of focus. In this context we need
to think about quantifying the value of nature’s stocks (natural capital) and
nature’s flows (ecosystem services) in a way that has not been attempted
before. By valuing natural capital in a similar way to financial, manufactured,
social or other forms of capital we can take better decisions on the natural
environment based on hard-nosed economics.
3
http://uknea.unep-wcmc.org/
9To ensure that the Biodiversity Strategy secures its goals, it is being
supported by a Natural Capital Framework. The framework will explore how
we can value our natural assets and make better informed decisions.
For example, while the Biodiversity Strategy will focus on the protection of our
vital peatlands, the Natural Capital Framework will look at the value which we
assign to this ecosystem. Peatlands provide wider benefits such as water
storage and purification, carbon storage and flood alleviation. It is by
demonstrating the value of these benefits that we can better influence others
of the importance of protecting such habitats.
In focusing on the benefits of valuing our natural capital, the Northern Ireland
Biodiversity Strategy is being reviewed to take account of high-level initiatives
to ensure:
(i) consistency of approach within the UK and Ireland; and
(ii) that actions on nature conservation are not considered in isolation.
It is crucial that we take a more holistic approach to conserving our natural
heritage. To do this, we need to be able to assess, communicate and, more
importantly, relate the role of biodiversity and ecosystem services to the
economy and to society generally to highlight their benefits.
Valuing ecosystem services will demonstrate how our society benefits
through a range of outcomes, including health and well-being, and will also
raise awareness of the value of ecosystem services to the Northern Ireland
economy and its future prosperity. Natural capital in the wider countryside will
be enhanced by:
• identifying landscape-scale ecological networks to conserve biodiversity
through improved connectivity between designated sites and Natura 2000
habitat types and species; and
• sustaining healthy ecosystems, which will be more resilient to the effects of
climate change and provide the ecosystems services which contribute to
the well-being of our society and the economy.
The development of strong partnerships will help protect and promote
recognition of landscapes as assets that will provide a strong basis:
• for tourism;
10• to deliver on the management of special landscapes;
• to provide sustainable and managed outdoor recreation opportunities; and
• to develop and deliver local biodiversity action plans.
Integration of the ecosystem approach into the development of policy will
benchmark the value and benefits of this approach.
Prioritised Action Framework (PAF)
As part of the process for ensuring compliance with the Habitats Directive,
Member States are obliged to set out the measures essential for the
maintenance or re-establishment of the priority habitats and species on the
sites designated under that directive. These measures are identified in a PAF.
That document will also be used by the Commission to monitor key funding
mechanisms and achieve conservation priorities for the wider Natura network
and the potential benefits for other European directives. At a meeting in
Brussels in March 2012, senior Commission officials stressed that
strengthening the uptake of EU funding will depend on four key elements:
• better strategic planning for financing Natura 2000 by Member States;
• improved definition of Natura 2000 management requirements for targeted
action;
• strengthening awareness of socio-economic benefits from Natura 2000
management; and
• considering other forms of funding for Natura 2000.
11Chapter 2 – Strategic Priorities for Northern Ireland
The scope of the proposed Northern Ireland Biodiversity Strategy will be
based on the Aichi Biodiversity Targets which fall under five strategic goals.
The proposed strategic targets set out in Chapter 5 aim to help Northern
Ireland meet its commitments under COP10 and contribute to delivery of the
five strategic goals.
Public bodies, including local authorities, have embraced the spirit of the
Biodiversity Duty introduced in 2011. Examples of where the Department
intends to work closely with a range of key sectors so that biodiversity is
taken into account by decision makers include:
• improving the environmental outcomes from management practices for
agricultural land through the revised CAP, agri-environment schemes and
other initiatives;
• creating and managing woodlands in a way that conserves or enhances
biodiversity and considers ecological connectivity in the wider
environment;
• achieving a strategic approach to safeguarding the natural environment
through strategic planning policies;
• protecting and enhancing water ecosystems through the river basin
management approach and through a multi-discipline catchment
approach;
• ensuring a coherent network of marine protected areas is established and
a marine plan is developed for the integration and sustainable use of
marine resources;
• promoting biodiversity awareness through education providers;
• maintaining sustainable fisheries management;
• completing Natura 2000 and all national designation initiatives to provide
an ecologically coherent network of sites; and
12• managing and protecting designated features and habitats through an
integrated approach.
In addition to these key areas, a number of other initiatives have the potential
to conserve biodiversity, including tackling invasive species, mitigating and
adapting to climate change and addressing the problems of waste and air
pollution.
Engagement with groups outside of central government is crucial given the
potential for business, industry, local government and NGOs to deliver
actions to benefit biodiversity.
13Chapter 3 – Delivery of Targets for 2020
Action for habitats and species
Ecosystems are made up of a range of habitats, species and processes.
Protecting these is essential to support Northern Ireland’s natural capital and
to underpin the many ecosystem services. A number of Northern Ireland
habitats and species requiring conservation action have been identified.
These have been included in lists of priority habitats and species published in
2010 and include a number of habitats and species requiring protection
through European legislation.
Designated sites
There are a range of site designations used to safeguard biodiversity for
areas of land and water that have been identified by scientific survey as being
of highest conservation value. At EU level, there is a suite of SACs and
SPAs, which collectively form the Natura 2000 network 4. An additional
network of ASSIs is provided for through domestic legislation. There are also
a number of national and local nature reserves. AONBs are designated for
their landscapes although they also include areas rich in habitats and
species. The designation of these sites represents an important investment in
natural capital, offering a wide range of societal gains including flood risk
management, carbon sequestration and landscape protection, as well as the
primary objective of conserving biodiversity and geological assets.
To maximise benefits, it is imperative to work closely with stakeholders either
to maintain or restore the sites to Favourable Conservation Status. The
targeting of funds through agri-environment schemes and other measures
within the EU’s 2014–20 Rural Development Programme5 is crucial to
supporting farm businesses in conserving and protecting biodiversity. Many
designated sites can be utilised to demonstrate best practice management for
biodiversity and the provision of ecosystem services.
It is intended that both EU and national designation processes will be largely
completed by 2016 and there is a need, therefore, to develop adequate
integrated management arrangements to ensure protection of ecosystems
4
http://ec.europa.eu/environment/nature/natura2000/index_en.htm
5
http://ec.europa.eu/agriculture/cap-post-2013/
14and to assist in halting overall biodiversity loss. Leading on from that, the aim
is to have 95% of all ASSIs in favourable conservation status by 2020 and
strategy and policy will have to be developed if we are to achieve this.
A DSM policy will be developed, underpinned by strategic actions, to
determine how best to protect and manage these sites. The DSM policy will
require a greater degree of co-ordination and working in partnership with
departments, landowners and other stakeholders with decisions on site
management based on firm conservation objectives and evidence-based.
The Department has compiled a PAF to assist in making significant
management decisions. It is envisaged that there is a need to develop
comprehensive habitat maps. The provision of these maps and subsequent
conservation actions will require substantial resources in terms of information
gathering, scientific advice and practical measures.
Rural development
In October 2011, the EU published its draft regulations for rural development 6
as part of CAP reform proposals. These are based around three broad
objectives and relate to the competitiveness of agriculture, sustainable
management of natural resources and the balanced development of rural
areas. They specify six EU priorities for rural development, one of which is
concerned with restoring and enhancing ecosystems dependent on
agriculture and forestry and which should focus on:
• restoring and preserving biodiversity, including Natura 2000 areas and
high nature value farming, and the state of European landscapes;
• improving water management; and
• improving soil management.
The main differences from the 2007–2013 rural development regulation
include an increased focus on climate change mitigation and the
environment.
Following publication of the draft EU regulations, DARD is taking forward the
development of a draft rural development programme for Northern Ireland for
the period 2014–2020 and published its proposals for public consultation in
6
http://www.seupb.eu/2014-2020Consultation/backgroundinfo/eudraftregulations.aspx
15July 2013 7. The EU regulations setting out the detailed rules and controls to
be applied to EU funding have not yet been agreed. However, these policy
proposals are based largely on the EU Commission proposals published in
October 2011. Although some of the detail may be subject to change, the
main direction of the policy proposals is unlikely to be affected.
DARD’s proposals stress that management of our natural resources to
improve biodiversity and to mitigate climate change will remain a high priority.
Key targets are to improve the natural environment through:
• sustainable growth of a sustainable agri-food industry by reducing the
carbon intensity of local food production;
• support for those who actively manage our land and woodlands to help
them develop practices which conserve or improve biodiversity;
• support for farming practices that improve water quality and meet Nitrates
Action Plan obligations; and
• planting new woodlands and managing existing forests to mitigate the
effects of climate change.
Five schemes have been proposed to conserve and enhance biodiversity,
namely:
• agri-environment schemes through which financial support will be provided
to farmers for undertaking environmentally-sensitive land management
practices;
• the Woodland Expansion Scheme to encourage the creation of woodland
to contribute to biodiversity, soil and water quality;
• the Woodland Environment Grant to support significant environmental
benefits through the enhancement of biodiversity;
• the Sustainable Forestry Operations Grant which will be offered per
hectare to forest holders who undertake on a voluntary basis to carry out
operations consisting of one or more forest-environment commitments;
and
7
http://www.dardni.gov.uk/index/consultations/current-consultations/rural-development-programme-2014-
2020-public-consultation.htm
16• the Agro-forestry Scheme to encourage the planting of trees in
combination with extensive agriculture on the same land. The number of
trees to be planted per hectare will be determined within the programme
but will take into account local climatic conditions, the forestry species and
the need to ensure the agricultural use of the land.
These proposed schemes aim to help sustain and enhance biodiversity,
improve the quality of water, air and soil, enhance the landscape, and
increase woodland creation. They will also aim to help mitigate climate
change by reducing the carbon intensity of local food production and
encouraging farming practices that lead to carbon sequestration.
Forestry
‘Northern Ireland Forestry – a Strategy for Sustainability and Growth 8 restated
forestry policy as the sustainable management of existing woods and forests,
and a steady expansion of tree cover to increase the many diverse benefits
that forests provide. The strategy has a long-term aim to increase woodland
cover from 6% to 12% of land area and states that sustainable forest
management is about ensuring the delivery of benefits for the present
generation, while at the same time protecting the environment and resources
for the benefit of future generations.
Forestry also plays a key role under Priority 5 of the EU Rural Development
proposals in fostering carbon sequestration. One of the schemes included in
the proposed RDP for the next period will be the Forestry Plantation Scheme
to encourage the creation of larger scale plantations at a landscape scale
where woodland may be managed for timber production, maximising carbon
sequestration through efficient management which is consistent with the
output of durable products. Associated benefits of the scheme will include the
processing and marketing of forestry products, including material for
renewable energy systems, conserving or enhancing biodiversity and water
quality, and the public amenity value. This policy incorporates benefits for
natural flood management
The third edition of the UK Forestry Standard (UKFS) was published in 2011
and set out the criteria and standards for government’s approach to
sustainable forest management of all our woodlands. The standard is
supported by a series of individual guideline publications which cover
biodiversity, climate change, the historic environment, landscape, people, soil
and water. These guidelines provide more detailed information for forest and
8
http://www.dardni.gov.uk/strategy-for-sustainability-growth.pdf
17woodland owners, managers and practitioners on how to comply with the
UKFS requirements.
Forest managers and practitioners are expected to meet the UKFS
requirements, and DARD assesses applications for the Forestry Grant
Schemes against them before offering grant aid.
Water
The WFD9 is the most substantial piece of EU water legislation to date, and is
designed to improve and integrate the way water bodies are managed
throughout Europe. It introduces a more holistic approach to water quality
comprising ecological, morphological and chemical status and its purpose is
to establish a framework for the protection of inland surface waters (rivers
and lakes), transitional waters (estuaries), coastal waters and groundwater.
The Directive came into force on 22 December 2000, and was transposed
into Northern Ireland legislation by the Water Environment (Water Framework
Directive) Regulations (Northern Ireland) 2003 10.
Under the WFD, Member States must aim to achieve good chemical and
ecological status in identified water bodies by 2015. This includes transitional
(estuarine) and coastal waters out to one nautical mile.
The ecological and chemical status of surface waters is assessed according
to the following criteria:
• biological quality of fish, benthic invertebrates and aquatic flora;
• hydro-morphological quality such as river bank structure, river continuity or
substrate of the river bed and physical-chemical quality such as
temperature, oxygenation and nutrient conditions; and
• chemical quality in relation to environmental quality standards for river
basin specific pollutants. These standards specify maximum
concentrations for specific water pollutants where, if even one such
concentration is exceeded, the water body will not be classed as having
good ecological status.
One important aspect of the WFD is the introduction of river basin districts.
River basins (the spatial catchment of the river) are natural geographical and
hydrological units that have been assigned to river basin districts which serve
9
http://ec.europa.eu/environment/water/water-framework/
10
http://www.legislation.gov.uk/nisr/2003/544/contents/made
18as the administrative areas for co-ordinated water management. If a river
basin crosses the borders of more than one EU Member State, it is assigned
to an international river basin district.
There are three river basin districts in Northern Ireland, two of which are part
of an IRBD: the North Western River Basin District (part of North Western
IRBD), the North Eastern River Basin District and the Neagh Bann River
Basin District (part of Neagh Bann IRBD). Each is managed through RBMPs,
which provide a clear indication of the way the objectives set for the river
basin are to be attained within the required timescale through implementation
of a programme of measures. The Department is the competent authority for
each river basin district within Northern Ireland and delivery of the WFD rests
with the Department in partnership with DARD, DCAL and DRD, all of which
have commitments and responsibilities set out in the programme of measures
in each river basin management plan.
Under the WFD, RBMPs have to be drawn up, implemented and reviewed in
six-year cycles from 2009–2027. The current plans for 2009–2015 are
implemented through 26 Local Management Area action plans which will be
reviewed over the period 2013–2015.
The WFD sets out clear deadlines for the delivery of the various requirements
including the overall primary objective of ensuring that all inland and coastal
waters reach at least good status or good ecological potential (for heavily-
modified water bodies) by 2015, unless this is not possible for reasons of
disproportionate cost or technical infeasibility. NIEA’s Strategic Priorities
Report published in July 2012 states that the aim for water quality is:
“Achievement of good status or good potential for all water bodies under the
Water Framework Directive in the next ten years (by 2022).”
The target for the first cycle, current RBMPs (2009–2015) is to achieve good
status for 59% of water bodies by 2015. A summary report outlining the work
currently underway to meet objectives set to improve the water environment
by 2015 is available on the Department’s website 11.
A consultation on significant water management issues will be published by
December 2013 and new plans to cover the second cycle (2015–2021) will be
published in December 2015.
11
http://www.doe.gov.uk/niea/delivering-the-programme-of-measures-in-the-northern-ireland-river-basin-
management-plans-2012-final-published-version.pdf
19Compliance with directives such as the Waste Water Treatment Directive can
also contribute to improving water quality in Northern Ireland.
Marine
The MSFD 12 establishes a framework within which EU Member States are
required to take the measures necessary to achieve and maintain GES in the
marine environment by 2020.
GES is the central concept in the MSFD and is defined in Article 3 as:
“the environmental status of marine waters where these provide ecologically
diverse and dynamic oceans and seas which are clean, healthy and
productive within their intrinsic conditions, and the use of the marine
environment is at a level that is sustainable, thus safeguarding the potential
for uses and activities by current and future generations.”
The MSFD aims to protect Europe’s marine waters by applying an ecosystem
approach to the management of human activities while enabling the
sustainable use of marine goods and services for present and future
generations. The main objectives are to:
• protect and preserve the marine environment;
• prevent its deterioration;
• restore marine ecosystems, where practicable, in areas where they have
been adversely affected;
• prevent and reduce inputs in the marine environment with a view to
phasing out pollution; and
• ensure that there are no significant impacts on or risks to marine
biodiversity, marine ecosystems, human health or legitimate uses of the
sea.
The MSFD is very wide-ranging and sets out 11 descriptors of GES but
leaves it to Member States to determine what GES means in detail. It also
lays out a number of key requirements that Member States must put in place
such as:
• setting environmental targets and indicators;
12
http://ec.europa.eu/environment/water/marine/directive_en.htm
20• implementing monitoring programmes for ongoing assessment; and
• developing and implementing programmes of measures to achieve or
maintain GES.
Member States are also required to develop measures that will ensure that a
co-ordinated approach to achieving GES is adopted with neighbouring
countries and a consistent and integrated approach is adopted within marine
(sub) regions (Figure 1).
Figure1: Timeline for achievement of GES
Now that the UK initial assessment, characteristics of GES and associated
targets and indicators have been finalised and submitted to the EC, work has
begun to develop and implement a co-ordinated monitoring programme by
July 2014 to measure progress towards achieving GES.
Following this, the key mechanism in MSFD for delivering the sustainable use
of the marine environment is the programme of measures that Member
States are required to devise by the end of July 2015 and to have put these in
place by July 2016 to guide progress towards the achievement of GES.
Specifically, it requires spatial protection measures that contribute to a
coherent and representative network of marine protected areas to be
established by 2015 and for their management to be in place by 2016.
21Marine planning
The UK Marine and Coastal Access Act 2009 13, in combination with the
Marine Act (NI) 2013 14, enables the Department as Marine Plan Authority to
prepare Marine Plans for Northern Ireland’s marine area.
In March 2011, the UK Government and the Devolved Administrations
published the MPS 15. It outlines the high-level policy context within which all
marine plans in the UK will be developed, implemented, monitored, amended
and/or withdrawn. It also ensures that there is appropriate consistency in
marine planning across the UK marine area as a whole and outlines the
national policies for various activities and issues which need to be considered
in developing a Marine Plan for Northern Ireland. It provides transparency,
guides the development of marine plans, sets out the importance of
encouraging co-existent uses and explains how impacts should be
considered.
Northern Ireland’s Marine Plan Area will cover approximately 12,350 km², and
include 650km of coastline. Within our marine area, the demand for space for
marine activities, both now and in the future is increasing. The new plan-led
system will provide the opportunity to manage marine activities in a
sustainable manner taking into account social, economic and environmental
considerations. It will clarify marine objectives and priorities, and direct
decision-makers and users towards more consistent, evidence-based
decisions and sustainable use of marine resources in Northern Ireland’s
inshore and offshore regions.
The MCA Act also places a statutory duty on all public authorities taking
decisions capable of affecting the marine environment to do so in accordance
with the MPS until such times as Marine Plans are adopted.
At a Northern Ireland level, the draft Marine Position Paper 16 was consulted
on during 2012. This document complements the MPS, and sets out the
Executive’s objectives for the sustainable development of Northern Ireland’s
marine area and the steps being taken to realise these objectives. It identifies
the local policy context within which the Marine Plan will be developed.
In June 2012, as part of the Marine Plan process, the Department published a
Statement of Public Participation 17. The SPP, developed with the aid of
13
http://www.legislation.gov.uk/ukpga/2009/23/contents
14
http://www.legislation.gov.uk/nia/2013/10/enacted
15
http://www.doeni.gov.uk/marine-policy-statement.pdf
16
http://www.doeni.gov.uk/consultation_on_draft_marine_position_paper.pdf
17
http://www.planningni.gov.uk/index/policy/nimp_spp_reviewed_may2013.pdf
22stakeholder views, sets out how and when the Department will involve and
engage people during the preparation of the plan and importantly how the
views and comments of stakeholders will be factored into the work. It also
seeks to ensure that in whatever way people use or enjoy our seas or
coastline they will be given the opportunity to get involved.
Common fisheries policy (CFP)
It is generally understood that the majority of fish species move across seas
and therefore range over the territorial waters of several countries during their
lifespan. Obviously individual fishing vessels and, indeed, fleets of fishing
vessels have done the same for centuries, impacting on the opportunities of
fleets of other Member States. Within the EU, countries have decided to
manage their fisheries in collaboration through the CFP 18.
Major reforms to the CFP were agreed during 2013 and will be implemented
for 2014 onwards. The revised objectives that are most relevant to improving
biodiversity are:
• that fishing and aquaculture activities are environmentally sustainable in
the long-term and are managed in a way that is consistent with the
objectives of achieving economic, social and employment benefits, and of
contributing to the availability of food supplies;
• to apply the precautionary approach to fisheries management, and aim to
ensure the exploitation of living marine biological resources restores and
maintains populations of harvested species above levels which can
produce the maximum sustainable yield;
• that the maximum sustainable yield exploitation rate shall be achieved by
2015 where possible and, on a progressive, incremental basis at the latest
by 2020 for all stocks;
• to implement the ecosystem-based approach to fisheries management to
ensure that the negative impacts of fishing activities on the marine
ecosystem are minimised, and shall endeavour to ensure that aquaculture
and fisheries activities avoid the degradation of the marine environment;
• to eliminate gradually the discarding of unwanted fish from 2015–2019 on
a case-by-case basis, taking into account the best available scientific
18
http://ec.europa.eu/fisheries/cfp/
23advice, by avoiding and reducing, as far as possible, unwanted catches,
and by gradually ensuring that catches are landed;
• to provide for measures to adjust the fishing capacity of the fleets to levels
of fishing opportunities, with a view to having economically viable fleets
without over exploiting marine biological resources; and
• to be coherent with EU environmental legislation, in particular the objective
of achieving good environmental status by 2020 under the MSFD.
Climate change – adaptation and mitigation
Climate change is one of the most serious threats facing the world today. The
most severe consequences of the changing climate include flooding, famine,
drought and the extinction of species.
Northern Ireland’s current climate is characterised by relatively mild winters,
cool summers and periods of more extreme weather. During the 21st century
Northern Ireland is projected to experience increasing average temperatures
throughout the year, an increase in average rainfall in summer and rising sea
levels 19 (UK Climate Projections 2009, UKCP09).
The impacts of climate change have the potential to be highly significant on
the lives of the people of Northern Ireland. Disruption to business, agriculture,
services and our daily lives will increase if adverse changes occur. An
increased risk of flooding and coastal erosion will put pressure on drainage,
sewerage, road and rail infrastructure, water resources and habitats.
Increased temperature, increased pollution and poorer air quality may bring
discomfort to vulnerable and threatened species of animals and plants,
including crops.
The Climate Change Act 2008 20 is UK legislation that extends to Northern
Ireland with the consent of the Northern Ireland Executive and the Assembly.
It sets a long-term framework for the UK to reduce its GHG emissions
including:
• a legal framework to reduce emissions by at least 80% below 1990 levels
by 2050 and by at least 34% in the period 2018–2022;
19
http://ukclimateprojections.defra.gov.uk/
20
http://www.legislation.gov.uk/ukpga/2008/27/contents
24• compliance with a system of five-year carbon budgets, set up to 15 years
in advance, to deliver the emission reductions required to achieve the
2018–2022 and 2050 targets; and
• setting up a Committee on Climate Change to advise government on the
level of the carbon budgets and how they might be met and report
annually on progress.
Though the 2008 Act extends to Northern Ireland, the targets set are at a UK-
level and there are no specific Northern Ireland targets.
Recognising the importance of climate change to Northern Ireland, the
current Executive has, in its Programme for Government (2011–2015), set a
new, more ambitious, target of continuing to work towards a reduction in GHG
emissions by at least 35% on 1990 levels by 2025.
In addition to climate change mitigation, adaption to the impacts of climate
change is also very important and is all about how we alter our behaviour to
respond to those impacts. It means not only protecting against negative
impacts but also making us better able to take advantage of possible benefits.
Under the 2008 Act, Northern Ireland departments are required to prepare an
adaptation programme to address the climate change risks to Northern
Ireland and to review them no later than every five years. It is also a
requirement of the 2008 Act that reports on the adaptation programme and
subsequent progress are required to be made to the Northern Ireland
Assembly.
Significant progress has been made already through the CDWGCC
established by the Executive in 2010 and chaired by the Environment
Minister. It was set up to:
• review cross-departmental action on climate change on an annual basis to
ensure we remain on target to deliver the greenhouse gas emissions
reduction target set out in the PfG and to meet the requirements of the UK
Climate Change Act 2008;
• support the preparation of an assessment of the risks to the United
Kingdom of the current and predicted impact of climate change;
• prepare and deliver a cross-departmental adaptation programme on
climate change;
25• report to the Executive annually on performance; and
• make recommendations and/or take decisions on wider climate change
mitigation and adaptation issues as appropriate.
The CDWGCC is supported by three sub-groups (Mitigation, Adaptation and
Analyst) that report to the main group on their areas of responsibility.
The CDWGCC developed a greenhouse mitigation action plan which sets out
the actions each department will take to reduce GHG emissions. Progress on
the most recent Northern Ireland Greenhouse Gas Emissions Reduction
Action Plan was reported to the Executive in May 2013 21.
The CDWGCC is also inputting to the Northern Ireland Climate Change
Adaptation Programme due to be published by the Department in autumn
2013. The Adaptation Programme is the first five-year programme (covering
the period 2013–2018) and sets the objectives for government in relation to
adaptation to climate change. It also includes the proposals and policies by
each department for meeting those objectives and the associated timescales.
Role of landscape and the built environment in promoting biodiversity
While it may not be obvious at first, the built environment plays a significant
role in promoting biodiversity. The design and construction of many older
buildings encourages certain species in a way that modern structures do not.
For example, some summer migrants, such as swifts and swallows find
nesting sites more easily in older buildings, while the decline of the old-
fashioned farmyard and the move to more industrial-style units is considered
to be a factor in the decline of the barn owl. Other species, such as bats, also
demonstrate a preference for the old rather than the new. Thus, by preserving
our built heritage we are also preserving valuable habitats.
However, it is often the landscape settings of historic buildings which
arguably have the greatest impact on biodiversity. NIEA’s Heritage Gardens
Inventory lists over 700 historic parks, gardens and demesnes. While some
of these no longer exist, many more remain and are havens for a wide variety
of plants, birds, insects and other creatures. A number, such as Stormont
Estate, allow public access. Others do not, but they are no less important as
havens for biodiversity, sometimes acting as green islands in the midst of
urban sprawl. Indeed, those which are maintained to their original design
21
http://www.doeni.gov.uk/northern_ireland_action_plan_on_greenhouse_gas_emissions_reductions.pdf
26may offer greater opportunities for biodiversity than some modern
counterparts which may be designed to be low maintenance.
There is also a Register of Historic Parks, Gardens and Demesnes that lists
154 sites of exceptional importance, together with an appendix of 150
supplementary sites. Sites on the Register receive protection under PPS6,
adding a further level of protection to places that make a significant
contribution to biodiversity.
NIEA also works closely with DARD in considering applications from owners
of historic parks, gardens and demesnes for assistance under the NICMS.
Under the Scheme, some of these places may be eligible for contributions
towards tree maintenance and the replanting of stands or shelter belts.
Similarly, NIEA liaises with the Forest Service in the awarding of grants under
the WGS to ensure appropriate planting within sites, thus supporting
biodiversity.
The Department’s capacity to encourage biodiversity is enhanced by its
management – either directly or in partnership with other bodies – of some
260 sites across Northern Ireland. These include State Care monuments and
their settings, nature reserves and country parks. Twenty of these properties
have visitor centres providing opportunities not only to educate the public
about the context of the sites in question but also how they contribute more
widely to biodiversity.
Health, social well-being and outdoor recreation
An accessible environment is a significant resource for local people to
enhance their quality of life by enjoying the outdoors. There is clear evidence
which links the natural environment of green spaces to physical and mental
health and well-being. Many outdoor recreation activities develop
opportunities for people to work together in a non-competitive environment
pursuing common interests, thereby supporting community cohesion. These
links are shown in Figure 2.
27Figure 2: A health map for the local human habitat
Reference: Barton H., and Grant M.
Journal of the Royal Society for the Promotion of Health,126(6).
Northern Ireland has a combination of extremely varied land and seascapes
that provide beautiful scenery within a small geographical area. Mountains,
peatland, inland loughs and waterways, winding river valleys, spectacular
coastline, rolling landscapes, woodlands and forests all make up the Northern
Ireland environment. Even our towns and cities are relatively small and there
is often access to local hills, forests and parks that make the outdoors a place
that most people can use and enjoy.
With greater leisure time and the link between exercise and health, there are
increased numbers of people undertaking a variety of sports and activities.
Many outdoor enthusiasts feel a strong connection with wild landscapes and
coastlines and it is in the interests of the users themselves to ensure that
these areas are maintained for their benefit and for generations to come.
Engaging people, especially young people, with the natural environment is
crucial so that they feel a strong sense of ownership. It is therefore essential
that people are provided with opportunities to experience nature and to
develop a love of our natural environment which might then be harnessed to
help the work to halt biodiversity loss.
28The proposed Outdoor Recreation Action Plan is for a seven-year action plan
to 2020 to provide key recommendations for actions and challenges that need
to be addressed to lead to a culture of dynamic, sustainable outdoor
recreation in Northern Ireland. Co-ordinated by Sport NI, the aim is for
Northern Ireland to be a place where:
• people enjoy the outdoors and show a high degree of responsibility for
themselves, others and the environment they are using and play their part
in maintaining, supporting and enhancing our environment and heritage;
• there are increasing opportunities, improved access and infrastructure for
sustained increased participation for everyone in a broad range of outdoor
recreation activities; and
• there are accompanying benefits to local communities in terms of health,
social inclusion, cohesion and economic development.
Land use
One of our most important resources is land. We derive multiple benefits from
land but most importantly from food production. Land use and biodiversity are
inextricably linked. Consequently, there is a need to take account of
biodiversity and its relationship to the benefits we derive from land to achieve
sustainable land use and thus protect this important resource for future
generations. One way in which this can be accomplished is through
understanding the functioning of the ecosystems before land decisions are
taken. In that way, the benefits of the ecosystem and the services they
provide can be maintained.
Achieving sustainable land use does not mean stipulating how individual
fields, hills or plots of land should be used. Rather it is about highlighting what
needs to change in policies and behaviours to achieve sustainable goals. Any
change and all decisions would need to be in line with strategic planning
policies.
Planning controls
In 2010, OFMDFM published a Sustainable Development Strategy for
Northern Ireland 22 that included the vision of a Northern Ireland ‘with a
diverse, healthy and resilient natural environment’. Strategic Objective 5 of
22
http://www.sustainableni.org/sustainable-development/the-sd-strategy-2010/index.php
29that publication affirms the need to protect and enhance biodiversity, setting
key strategic targets for reducing and ultimately halting biodiversity loss.
PPSs contain policies on land use and other planning matters and apply to all
of Northern Ireland. They set out the main planning considerations that the
Department takes into account in assessing proposals for the various forms
of development and are relevant to the preparation of development plans.
They are also material to decisions on individual planning appeals. In
particular, PPS2 sets out the Department’s land use planning policies for the
conservation of Northern Ireland’s natural heritage. It embodies government’s
commitment to sustainable development and to conserving the diversity of
habitats and wildlife. The hierarchy of nature conservation sites –
international, national and local – is reflected in the tiered approach of the
new policies with the degree of protection afforded to sites increasing in
accordance with the importance of the site.
In Northern Ireland, development plans consist of area plans, local plans and
subject plans which apply the regional policies of the Department at the
appropriate level. They set out the detailed planning policies and specific
proposals for the development and use of land which guide most day-to-day
planning decisions and may include additional site-specific policies relevant to
designated sites. Countryside assessments are an integral part of the
development plan-making process. They are concerned with establishing and
evaluating the assets and resources of the countryside – for example,
important landscapes or features of the landscape, significant woodland,
wildlife habitats and archaeological and historic features. They play a key
role in protecting Natura 2000 sites through the prevention of inappropriate
developments at a strategic level. Development plans should take into
account the requirements of Natura 2000 sites and are subject to assessment
under the provisions of the Habitats Directive.
Strategic planning policy statement
A single SPPS is being developed to consolidate extant planning policy
provisions covering a range of land use topics. It will also contain the ‘Core
Principles’ of a reformed, two-tier planning system.
The SPPS signals a new approach to the preparation of regional planning
policy and is intended to provide a shorter, clearer and more focused regional
planning policy. The SPPS is being developed to coincide with the transfer of
planning powers to councils as part of the wider process of planning and local
government reform.
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