Biodiversity Programme Advisory Group - nature restoration target topic recommendations: final advice

4. Recommendations and justifications

In total, the PAG recommended seven target topics. In some instances, target topics from the original long list were merged and in other cases more specific topic targets were recommended. The derived list also reflects the two different workshop questions asked. Recommendations 1-3 (see below) reflect target topics that will help demonstrate that the 2030 halting biodiversity milestone and 2045 restoring and regenerating biodiversity vision have been met. Target topic recommendations 5-7 will help drive the action needed to meet these milestones. Recommendation 4 was seen as both an outcome target - increased connection of people with nature - and also a target that will drive action through that wider participation.

There have also been some amendments to the recommended target topics from the PAG workshop following the SAC review (see annex 3). This section therefore outlines the final recommended target topics from both the PAG workshop and SAC review.

The seven recommendations are (note – the order they appear does not reflect any prioritisation):

1. Ecosystem integrity and health

2. Habitat condition and extent

3. Threatened species status

4. Civil society understanding, benefitting from and contributing to nature

5. Investment in nature

6. Enhancing environmental conditions for nature

7. Positive outcomes for biodiversity in public sector and government policy

4.1 Ecosystem Integrity and Health

4.1.1 Description:

Ecosystem integrity is a measure of the completeness and functionality of an ecosystem and its ecological processes, and the resilience of the ecosystem in response to human pressures. The Convention on Biological Diversity (CBD) states that an ecosystem has integrity when: “… dominant ecological characteristics (e.g. elements of composition, structure, function, and ecological processes) occur within their natural ranges of variation and can withstand and recover from most perturbations”. It is recommended that the CBD definition is followed to align with the Global Biodiversity Framework (GBF) Targets.

4.1.2 Justification:

Ecosystem integrity was seen as a high-level target topic that is scalable, able to cover a wide array of factors relating to the overall ‘health’ of biodiversity and can be applied to ‘modified’ or productive ecosystems. It would allow us to assess whether we have met the key text in the vision of the SBS that states: “Our natural environment, our habitats, ecosystems and species, will be diverse, thriving, resilient and adapting to climate change”. Ecosystem integrity also makes a direct connection to provision of ecosystem services – and so highlights that high integrity ecosystems deliver healthy air, water and soils for society, and hence sustain us.

4.1.3 Potential issues:

There was broad agreement that we do not currently have a way of measuring ‘ecosystem integrity’. Work will be needed to determine which indicators best represent the target topic, with some development of new indicators possibly required, utilising newly available technologies. In addition, it was recognised that there will be lag time effects meaning that this target topic may be better suited to a longer target date.

4.1.4 Related external targets:

GBF Goal A and targets 1 and 2, proposed EU restoration law targets on marine, forest, agriculture and urban ecosystems.

4.2 Habitat condition and extent

4.2.1 Description:

Habitat condition and extent includes the quality and extent of habitat types of importance to Scotland, including protected habitats.

4.2.2 Justification:

Habitat condition and habitat extent target topics were merged on the basis that neither extent nor condition alone would demonstrate whether SBS outcomes have been achieved. The focus would be on habitats that are of importance to Scotland and internationally, and habitats that are important to society but historically underrepresented in policy e.g. urban and peri-urban habitats. For some habitats (e.g. peatlands) the focus needs to be on habitat quality as the extent is less likely to change. Whereas for others (e.g. native woodland) both the extent and condition need to be improved. Within this target topic the condition of protected areas will also be included.

4.2.3 Potential issues:

There will need to be a consideration as to which habitats are included within this target topic as by their broadest definition habitat extent and quality could be all encompassing which has implications for measurement and assessment. There was clear agreement from the PAG that it should not only focus on protected habitat sites.

4.2.4 Related external targets:

GBF Goal A and targets 1 and 2, proposed EU restoration law targets on marine, forest, agriculture and urban ecosystems and UK Environment Act.

4.3 Threatened species status

4.3.1 Description:

The term ‘threatened species’ comprises species that are under threat now, species that have populations that are declining and species that may potentially be under threat in the future. It combines the target topics of species at threat of extinction, species abundance and distribution, and population size of exploited species. This target topic would also consider genetic diversity.

4.3.2 Justification:

Focusing on threatened species allows for an assessment of how well targets on habitat restoration and ecosystem integrity are performing. While the assessment of threatened species incorporates species abundance, species distribution and exploited species population target topics, it does so in a way that removes the inherent risk of bias associated with these target topics when considered as a whole due to varying levels of data availability across different taxonomic groups.

For this reason, the PAG recognises that there is a need for a selection of species to be considered, to ensure informed and sustainable allocation of resources. Criteria that could be used to select species within this target topic include: species endemic to Scotland that are in real trouble (i.e. at extinction risk), species that provide a ‘litmus test’ for the performance of habitat restoration, species that Scotland hold significant populations of that are at threat globally, and finally, species that may be common but under severe threat of decline.

4.3.3 Potential issues:

There will likely have to be difficult conversations around probable losses of some species in the face of current climate projections (even if Net Zero is achieved). Although we are well set up for species monitoring there was a recognition that if monitoring is expanded to cover a wider range of species, this could be linked to the improved engagement from civil society in biodiversity outlined in target topic 4.

4.3.4 Related external targets:

GBF Goal A and targets 4, 5 and 9, proposed EU restoration law targets on pollinators, marine, forest, agriculture and urban ecosystems and UK Environment Act.

4.4 Civil society understanding, benefitting from and contributing to nature

4.4.1 Description:

Society and the communities therein are more informed about their impact on nature and what nature provides them. In turn, society contributes more to restoring nature and reaps the benefits of this restoration. This target topic will cover addressing education and skills gaps surrounding nature within society. Businesses include their interaction with nature within decision making.

4.4.2 Justification:

This target topic addresses some of the indirect drivers of biodiversity decline, specifically people’s disconnect with nature and the consequent lack of recognition of the value and importance of nature. This target topic covers both an outcome focus (with people having a better understanding of nature and their connection to it and impact on it) and an output focus (more contribution to restoration effort from society). It is widely recognised that for the biodiversity ambition set out in the vision and outcomes of the Scottish Biodiversity Strategy to be met it needs to be embedded within society. This target topic specifically addresses biodiversity and society.

4.4.3 Potential issues:

There may be challenges in quantifying and measuring against this target, meaning indicator development work may be required. Given the output and outcome split within the target topic there may be a requirement for multiple target dates when setting a target e.g. targets for communities contributing to nature restoration before 2045 and targets for society benefitting from restored nature by 2045.

4.4.4 Related external targets:

GBF targets 16, 21 and 22.

4.5 Investment in nature

4.5.1 Description:

Both public and private investment in nature (direct restoration, community and skills) to enable the delivery of targets relating to ecosystem integrity, habitats and threatened species. Investment should be outcome focused and is seen as a key enabler of the other six target topics.

4.5.2 Justification:

There is a recognition that there is a large deficit in resources available to meet the vision and outcomes of the SBS. Selecting a target to increase both financial and community investment in nature from both the public and private sector commits future resources to deliver for nature restoration.

4.5.3 Potential issues:

When setting this target, it may be difficult to agree on investment figures. This target may therefore need to be adaptive in the future to allow flexibility in allocating resources in response to the performance of the outcome targets; recognising that in-built flexibility cannot lead to scaling back resource commitments. In addition, setting and measuring targets around private sector investment may be difficult in quantitative terms. There is also an argument for incorporating this target topic within target topic 7 as ensuring positive outcomes for nature in public sector and government policy will likely drive increased investment. There are also risks around treating this target in purely financial input terms with respect to ‘green washing’.

4.5.4 Related external targets:

GBF goal D and target 19.

4.6 Enhancing environmental conditions for nature

4.6.1 Description:

The pressures that inhibit thriving biodiversity are relieved so that nature has the best conditions to recover. In broad terms this addresses the drivers of biodiversity decline not covered by the other target topics, including: direct exploitation, pollution, and Invasive Non-Native Species (INNS).

4.6.2 Justification:

There was recognition among the PAG that the target topics have not yet addressed many of the direct drivers of biodiversity loss in Scotland. While action to address the drivers may be implicit in outcome actions set on ecosystem integrity, habitat quality and extent, and threatened species, the PAG felt that a specific target on addressing the outstanding drivers (direct exploitation, pollution, and Invasive Non-Native Species (INNS) is required. Having a statutory target to this effect will strengthen the case for addressing the drivers of biodiversity decline.

4.6.3 Potential issues:

This outcome comprises a portfolio of factors and would require a potentially large number of indicators relating to the various pressures impacting on biodiversity. Some of these are already defined whereas others will need to be developed.

4.6.4 Related external targets:

GBF goal A and targets 5, 6, 7, 9.

4.7 Positive outcomes for biodiversity in public sector and government policy

4.7.1 Description:

Positive outcomes for nature are achieved across all areas of public sector and government policy.

4.7.2 Justification:

Embedding positive outcomes for nature across all aspects of local government, public sector and national government policy is deemed as a necessary target to drive action towards the outcome targets on ecosystem integrity, habitats and threatened species. In the same way that government policy must contribute to the Net Zero climate change targets, this target places a similar emphasis on contributing positively to nature restoration targets.

4.7.3 Potential issues:

The PAG recognises that this replicates to some extent the current biodiversity duty requirements that are already in place but considers that this could be strengthened and made more effective by including these requirements in a new statutory target.

4.7.4 Related external targets:

GBF targets 10, 14 and 18.

4.8 Additional considerations

The SAC review of the recommendations also outlined the following additional considerations to be accounted for across all target topics:

a) Inequalities should not be widened through any of the target topics, noting that diversity and Just Transition are important

b) Target topics should not lead to perverse outcomes relating to ‘offshoring’ biodiversity impacts

c) For the next stage in the process short baselines against a pattern of long term historic loss needs to be fundamentally considered.