BirdLife Policy Brief for CBD COP-10, Nagoya
Revised and updated Strategic Plan for the post-2010 period BirdLife calls on all Parties to recognise the immediate need for hugely scaled up, effective and concerted efforts to overcome the obstacles that prevented the 2010 target from being met. Urgent action is essential to ensure nature’s resilience and underpin human well-being. BirdLife urges Parties to seize this moment and agree and implement an ambitious, strong and robust Strategic Plan, as a framework to guide and inspire new levels of broad-based action for biodiversity. The future not just of the Convention, but of humanity itself, may be at stake. This policy brief relates to UNEP/CBD/COP/10/1/ADD2/REV1 (item 4.2) and UNEP/CBD/COP/10/9. Over a two-year period, Parties to the CBD have worked hard with the CBD Secretariat to develop the Convention’s draft Strategic Plan for the post-2010 period. There has been an exhaustive process of regional and multi-stakeholder consultation, and detailed debate and further refinement at the14th meeting of SBSTTA and the 3rd meeting of WGRI. The result of these deliberations is a clear, sound and comprehensive draft Strategic Plan. The draft plan addresses the pressing needs for both an immediate scaling-up of action to conserve biodiversity, and for fundamental changes in how biodiversity considerations are integrated in decisionmaking. The plan is ambitious, reflecting the urgency for a step change in our investment and action to achieve the Convention’s objectives. It is also realistic, with 20 draft targets for 2020 that are robust and underpinned by sound science and careful rationale. Decisions remain to be taken on the wording of key elements of the plan, and on adoption of the plan itself. BirdLife International urges Parties to adopt an ambitious, strong and robust Strategic Plan. This will form an effective framework to inspire and guide greatly increased efforts to achieve all three objectives of the CBD. Biodiversity loss is continuing at unprecedented rates, and our failure to meet
the 2010 biodiversity target clearly shows that ‘business as usual’ is deeply inadequate. Urgent and concerted action is needed to ensure the resilience of nature and underpin the future well-being of humanity. In BirdLife’s view, the Strategic Plan must be short, focused and action-oriented. As a framework for concerted action, it should include an ambitious long-term Vision (for 2050), a stretching overall biodiversity target (the Mission) for 2020, and a set of 20 concise, ambitious, complementary and achievable Targets for 2020, organised into a set of Goals that reflect the logic of Drivers-Pressures-State-Benefits-Response. It is critical that the Strategic Plan clearly and fully tackles the underlying causes of biodiversity loss through integrating biodiversity considerations across all sectoral policies, and into personal and corporate decision-making. There is a paramount need for new and additional finance, both through mobilising public and private resources at national and local levels, and through significantly increased international financial transfers. The Strategic Plan must respond to the urgent need for biodiversity conservation and ecosystem management to contribute to climate change mitigation and adaptation. Agreement at COP-10 on an international regime for Access and Benefit-sharing (ABS) is also a vital step for agreeing and implementing an effective Strategic Plan.
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2050 Vision The timeline of 2050 is appropriate for the Vision of the Revised Strategic Plan. BirdLife supports the proposed Vision, “Living in harmony with nature” where “By 2050 biodiversity is valued, conserved, restored and wisely used, sustaining a healthy planet and delivering benefits essential for all people.”
2020 Target (the Mission) BirdLife believes that the 2020 Target must show clearly the need for a step-change, a radical transformation of our effectiveness in achieving the conservation, sustainable use and sharing of benefits of biodiversity.
Strategic goal A. Address the underlying causes of biodiversity loss by mainstreaming biodiversity across government and society Target 1* By 2020, at the latest, awareness has substantially increased among the public and representatives of business, mass media, and decision-makers of the values of biodiversity and the steps they can take to conserve and use it sustainably. Rationale: The reformulated target focuses on a realistic and measurable goal for the next ten years, an increase in the understanding and awareness of priority audiences – those who influence public opinion and motivate behavioural change (including as producers and consumers). The formulation in the draft decision, that ‘all people are aware’, is too broad and intrinsically unachievable.
Recent studies make increasingly clear the grave consequences of the ongoing loss of biodiversity for human well-being, and the danger of rapidly reaching irretrievable ecological tipping points. The damaging effects of continued biodiversity loss mean that continuing on this trajectory is not a realistic option: soon, we have to reach an inflexion point where we start to restore and add to our natural capital overall, rather than destroying it. The year 2020 is an appropriate target date for this to be achieved, as a major step towards achieving the 2050 Vision thirty years on.
Target 2* By 2020, at the latest, the values of biodiversity are integrated into national accounts, national and local development, and poverty reduction strategies and planning processes.
Thus, it is appropriate that the 2020 Target calls for biodiversity loss to be halted. The increasing pressures of human population and consumption, combined with climate change, may make this appear impossible. This is not the case: with will, resources and science, an end to the net erosion of natural capital is eminently achievable. This requires the safeguarding of irreplaceable biodiversity, combined with efforts to manage and restore, and where possible recreate, habitats to compensate for losses elsewhere.
Target 3* By 2020, at the latest, incentives, including subsidies harmful to biodiversity, are eliminated or reformed, and incentives for the conservation and sustainable use of biodiversity are developed and applied.
Of all components of the Strategic Plan, the 2020 Target is likely to be the one that is most commonly cited and communicated. It must therefore be (at least in an agreed, short version) concise and clear, and set out resonantly the Strategic Plans overall approach and purpose. BirdLife supports the following wording for the 2020 Target: “By 2020, biodiversity loss is halted, ecosystems are restored and the values and benefits of biodiversity and ecosystems are shared equitably and fully integrated into all aspects of development, with all Parties having the means to do so.”
Strategic Goals, Targets, Milestones and Indicators Framework and Strategic Goals The arrangement of Targets in a Driver-Pressure-StateBenefits-Response framework represents a great improvement on the previous Strategic Plan. The framework is sufficiently broad and comprehensive, and covers well both the need for immediate measures to safeguard biodiversity, and for longer-term structural changes. It also conveys an appropriate sense of urgency. Specific Targets BirdLife’s suggested formulations for specific targets are set out below. Targets without an asterisk are the same as in the draft decisions for COP-10 while those asterisked have proposed changes with the key changes highlighted in bold. Rationale for proposed changes is also provided: elsewhere, BirdLife endorses the technical rationale set out in UNEP/ CBD/COP/10/9. BirdLife proposes that the text ‘at the latest’ be included at the beginning of all relevant targets, to highlight the sense of urgency appropriate to this Strategic Plan.
Rationale: Including biodiversity measures in national accounts is essential, as this puts biodiversity into the same decision framework as other goods and services and provides the basis for policy-makers to ’mainstream’ biodiversity issues in decision-making processes.
Rationale: As UNEP/CBD/COP/10/9 points out, ending or reforming harmful subsides is essential to achieve the mission of the Strategic Plan. ‘Subsidies’ should be explicitly referred to in the target so that its meaning and intent are not in doubt. Under the principle of common but differentiated responsibilities, this would not necessarily require that developing countries remove subsidies that are essential for poverty-reduction programmes – although the overall socio-economic impacts of these should be carefully assessed. Target 4 By 2020, at the latest, Governments, business and stakeholders at all levels have taken steps to achieve or have implemented plans for sustainable production and consumption and have kept the impacts of use of natural resources well within safe ecological limits. Strategic goal B. Reduce the direct pressures on biodiversity and promote sustainable use Target 5* By 2020, at the latest, net loss and degradation and fragmentation of natural habitats, including forests, is halted. Rationale: Although this target applies to all natural habitats, it is appropriate that forests should be highlighted because of (a) their special significance for terrestrial biodiversity (they are thought to shelter at least half of all terrestrial species), (b) the Millennium Development Goals indicator(for MDG 7) of the proportion of land area covered by forest, (c) synergy with the United Nations Framework Convention on Climate Change, which has acknowledged the need to reduce carbon emissions from deforestation and forest degradation (REDD), (d) the objective of the United Nations Forum on Forests to reverse the loss of forest cover worldwide by 2015. There are two aspects to measurement of natural habitat loss: the area of habitat remaining and the rate at which it is being lost. Results of the Millennium Ecosystem Assessment and Global Biodiversity
Outlook 3 suggest that the area of remaining undegraded natural habitats is already so small as to threaten to undermine vital ecosystem services. For this reason, halving the rate of loss by 2020 is an inadequate objective, while aiming to bring the rate of loss ‘close to zero’ is vague and open to different interpretations. In BirdLife’s view it is essential that we aim to stop the overall loss and degradation of habitat by 2020. The emphasis should be on preventing ALL loss of intact, high biodiversity-value habitats, including primary forests. Some conversion of other habitats may be unavoidable, but should be fully compensated (in quantity, quality and carbon-density) by the restoration and creation of natural habitat elsewhere, resulting in no net loss. Target 6* By 2020, at the latest, overfishing is ended, destructive fishing practices are eliminated, and all fisheries are managed sustainably. Rationale: While it is desirable to ensure that all harvesting of wild living resources is sustainable, fisheries are so significant a pressure in biodiversity loss that a specific fisheries-focused target is justified. The global fishing fleet is two and a half times larger than the oceans can sustainably support. The consequences of this for biodiversity, for food security and for livelihoods are very serious. Of the two draft options, BirdLife prefers the one above as it is clearer and more succinct. Target 7 By 2020, at the latest, areas under agriculture, aquaculture and forestry are managed sustainably, ensuring conservation of biodiversity. Target 8 By 2020, at the latest, pollution, including from excess nutrients has been brought to levels that are not detrimental to ecosystem function and biodiversity. Target 9 By 2020, at the latest, invasive alien species are identified, prioritised and controlled or eradicated and measures are in place to control pathways for the introduction and establishment of invasive alien species. Target 10* By 2020, at the latest, to have minimised the multiple pressures on coral reefs, and other vulnerable ecosystems impacted by climate change or ocean acidification, so as to increase the resilience of biodiversity and ecosystem services. Rationale: The wording in bold is suggested so as to frame the target explicitly in terms of resilience (without altering its intent), aligning the language with that commonly used by the UNFCCC. Strategic goal C: To improve the status of biodiversity by safeguarding ecosystems, species and genetic diversity Target 11* By 2020, at the latest, at least 20% of terrestrial, inlandwater and coastal and marine areas, especially areas of particular importance for biodiversity, are conserved through comprehensive, ecologically representative and well-connected systems of effectively managed and wellgoverned protected areas and other means, and integrated into the wider land- and seascape. Rationale: Major gaps exist in the protected area system on both land and sea. Many sites of global significance for biodiversity conservation remain unprotected, and these must be the top priority for expansion of protected area systems. For land (including inland waters) worldwide identification of a major component of this set of key sites, Important Bird Areas (IBAs), is nearly complete. Recent analyses (based on all countries with data in the World Bird Database in late 2009) found that 10,993 IBAs covered an area of 9.1 million km2. Only 26% of IBAs are
fully included in protected areas, while 49% are completely unprotected. The total area protected is 4.5 million km2, leaving 4.6 million km2 unprotected. Expansion of protected areas to cover unprotected IBAs would increase terrestrial protected area coverage from 11.6% to 16.2% of land area. In 12 countries in which additional globally significant sites, Key Biodiversity Areas (KBAs), for non-avian taxa have been identified, IBAs represent 71 ± 5.4% (mean ± SE) of the number and 80 ± 5.4% of the area of KBAs for all taxa. Assuming that these rations are representative, an additional 0.9 million km2 of non-avian KBAs are likely to require protection. The addition of this area would increases terrestrial coverage from 13% to 17% of land area. This analysis excluded the USA, Argentina, Papua New Guinea and a number of additional smaller countries, as data were incomplete or missing at the time. Hence, to a first approximation, and taking a precautionary approach, an increase of percentage of land surface protected to 20% is required to ensure the protection of globally significant sites for biodiversity conservation. Currently, protected area coverage in the marine realm lags far behind the land. Only 5% of coastal areas is protected, and only 0.7% of the oceans overall is included in marine protected areas. This presents both a challenge and an opportunity, especially in areas beyond national jurisdiction where there is great potential for sizeable no-take zones to be established. There is need for a major effort to expand marine protected areas to better cover marine key biodiversity areas (within exclusive economic zones) and ecologically and biologically sensitive areas (on the high seas). Particular emphasis is needed to protect critical ecosystems and the abundance and diversity of habitats and species such as tropical coral reefs, sea-grass beds, deepwater cold coral reefs, seamounts and coastal wetlands. A 20% target is called for by 2020 based on (a) similar considerations for protecting areas of global importance for biodiversity as on land and (b) scientific recommendations for marine reserves to minimise risks from overexploitation of harvested resources and consequent ecosystem effects. Such recommendations generally range from 20-40%, so (considering the existing low baseline) this target establishes a figure at the lower end of the range of what is considered necessary to secure a healthy ocean. Protected areas should be integrated into the wider land- and seascape, taking into account ecological connectivity and the concept of ecological networks. Many forms of governance are recognised for protected areas, including private and shared governance, as well as governance by indigenous peoples and local communities. Greater consideration of governance and equity issues (in relation to all governance types) is critical to this target because well governed and effectively and equitably managed protected areas are a proven method for safeguarding habitats and species, and for delivering ecosystem services. There is also a need to ensure that men and women from local and indigenous communities realise the benefits of enhanced biodiversity conservation, including food security and poverty reduction, without bearing inequitable costs. Target 12* By 2020, at the latest, the extinction and decline of known threatened species has been prevented and improvement in the conservation status for at least 10% of them has been achieved. Rationale: Current rates of extinction are estimated at two or three orders of magnitude more than the natural background extinction rate. In the longer term, reducing the threat of human-induced extinction requires action to address the direct and indirect drivers of change. However, imminent extinctions of known threatened species (mostly vertebrates and higher plants) can be prevented by focused conservation measures, in many cases by protecting the sites (including Alliance for Zero Extinction sites) where they occur. Such protection brings about many additional biodiversity and economic benefits. Ex situ measures may be needed in some cases to complement in situ protection. As amply demonstrated in the last ten years, the task
of halting extinction is possible from a scientific perspective by 2020 through targeted and adequately resourced conservation measures, combining site-focused initiatives, combating specific threats, and ex situ conservation. The aim is not simply to save species from extinction but to set them on a more promising trajectory towards recovery. Hence a specific target for improvement of threatened species conservation status is important. Expert judgement suggests that 10% of threatened species recovering by 2020 is feasible and not by any means over-ambitious, though it is much better than what is being achieved at the moment. Success in this target will contribute substantively to achieving other 2020 targets, including Target 13. Target 13 By 2020, at the latest, the loss of genetic diversity of cultivated plants and domestic farm animals in agricultural ecosystems and of wild relatives is halted and strategies have been developed and implemented for safeguarding the genetic diversity of other priority socio-economically valuable species as well as selected wild species of plants and animals. Strategic goal D: Enhance the benefits to all from biodiversity and ecosystem services Target 14 By 2020, at the latest, ecosystems that provide essential services and contribute to health, livelihoods and well-being, are safeguarded and/or restored and equitable access to ecosystem services is ensured for all, taking into account the needs of women, indigenous and local communities and the poor and vulnerable. Target 15 By 2020, at the latest, ecosystem resilience and the contribution of biodiversity to carbon stocks has been enhanced, through conservation and restoration, including restoration of at least 15% of degraded ecosystems, thereby contributing to climate change mitigation and adaptation and to combating desertification Target 16* By 2020, at the latest, the international regime on Access and Benefit Sharing (ABS) is in force and operational, sustainable access to genetic resources and associated traditional knowledge is enhanced, and equitable benefits are shared nationally and internationally consistent with the relevant legal regimes. Rationale: It is essential for the Convention that the tenth meeting of the Conference of the Parties adopts an international protocol on access and benefit-sharing. The third objective of the Convention provides for “the fair and equitable sharing of the benefits arising out of the utilisation of genetic resources”. This objective is intrinsically linked to the other two pillars of the Convention – conservation and sustainable use of biodiversity. Through contractual benefit sharing arrangements ABS is designed to allow for the direct as well as indirect flow of financial resources and non-monetary benefits from users of genetic resources and/or traditional knowledge associated with genetic resources, particularly private companies and research institutions, to providers of such resources and/or knowledge, including where appropriate men and women from indigenous and local communities. Such benefit-sharing has the potential to enable States as well as their indigenous and local communities to continue conserving and sustainably using their biological diversity and at the same time to be rewarded for such efforts. It is appropriate that Target 16 should focus on implementation of an international regime on ABS, as well as stressing the need for improved access and benefit sharing arrangements at national level. The proposed wording is, in BirdLife’s view, clearer and more precise than the current (bracketed) draft.
Strategic goal E. Enhance implementation through participatory planning, knowledge management and capacity-building Target 17* By 2020, at the latest, each Party has developed, adopted as a policy instrument, and implemented, an effective, participatory, gender-sensitive and updated national biodiversity strategy and action plan. Rationale: gender issues and the role of women are important considerations in biodiversity conservation, and the Target should take this into account in its description of appropriate national biodiversity strategies and action plans. Target 18* By 2020, at the latest, traditional knowledge, and related innovations and practices, and the rights of women and men from indigenous peoples and local communities over these, are respected, maintained and legally protected, and their contribution to the sustainable management of biodiversity is recognised and enhanced. Rationale: This target is in line with Articles 8(j) and 10(c) of the Convention. The proposed wording is, BirdLife believes, clearer and more precise than the (bracketed) draft. Target 19 By 2020, at the latest, knowledge, the science base and technologies relating to biodiversity, its values, functioning, status and trends, and the consequences of its loss, are improved, widely shared and transferred, and applied. Target 20* By 2020, at the latest, capacity (human resources and financing) for achieving the three objectives of the Convention has increased to at least tenfold. Rationale: A step change is urgently needed in the resources made available to implement the Convention, to deal with a persistent and critical shortage of financial and human resources. Achieving the targets of the 2020 Strategic Plan will depend upon the level of available funding in all relevant sectors and from global to local levels. Provision of adequate and predictable funding is particularly crucial for developing countries. A number of measures are needed to finance such a significant increase in funding. These include the mobilisation of funds at national level and globally from innovative sources (such as enhanced international regimes for Reduced Emissions from Deforestation and Degradation – REDD++), and a very significant increase in biodiversity-related development assistance. Re-orienting perverse incentives (target 3) has the potential to make considerable sums available, though there will be other calls on these than for biodiversity conservation. It is essential that Parties urgently identify and put in place policies supporting innovative financial mechanisms, including systems of payment for ecosystem services and related tax regimes, and mobilise private financing measures. Estimates of the necessary increases in resourcing needed vary. While a tenfold increase is unlikely to be fully adequate, it provides momentum for further increases beyond 2020 and an ambitious but realistic target for 2020 itself (representing approximately a 26% increase year-on-year for ten years). A tenfold increase is a global figure. The gap between what is currently being invested and what is needed is proportionately greater in many biodiversity-rich developing countries than in the developed world. A larger percentage increase (from a very low baseline) is thus needed in these countries. Much, though not all, of this increase will need to come from new international flows of resources. BirdLife contact in Nagoya: Leon Bennun, Director – Science, Policy and Information Management leon.bennun@birdlife.org