NATURA 2000 AND FORESTS: QUESTIONS AND ANSWERS
DRAFT DOCUMENT (03/03/2014) – Version 2
INTRODUCTION 1
What is this guidance for? 1
Who is this guidance for? 1
What can you find in this document? 1
1. THE PRINCIPLES AND OBJECTIVES OF THE BIRDS AND HABITATS DIRECTIVES AND NATURA 2000 1
1.1 The Birds Directive and the Habitats Directives 1
1.2 The Natura 2000 network 1
1.2.1 Establishment of the Natura 2000 network – site selection 1
1.2.2 Protection and management requirements for Natura 2000 sites (Article 6 of the Habitats Directive) 1
1.2.3 Setting conservation objectives 1
1.2.4 Establishing the necessary conservation measures (Article 6.1 of the Habitats Directive) 1
1.2.5 Identifying the resources needed for managing Natura 2000 sites (Article 8 of the Habitats Directive) 1
1.2.6 Improving the connectivity of the Natura 2000 network (Article 10 of the Habitats Directive) 1
1.3 Species protection over their whole range (Article 12 of the Habitats Directive, Article 5 of the Birds Directive) 1
1.4 Assessing conservation status for habitats and species of EU interest (Article 17 of the habitats Directive) 1
1.5 Assessing conservation status for bird species (Article 12 of the Birds Directive) 1
1.6 Introduction of non native species 1
2. FORESTS IN EUROPE AND PRINCIPLES OF FOREST MANAGEMENT 1
2.1 Forests in Europe. Policy and legal context 1
2.2 History and ecological context of European forests and their importance for biodiversity 1
2.3 Goods and ecosystems services provided by forests 1
2.4 Forests in Natura 2000, forest habitat and species of EU interest 1
2.4.1 Forests in Natura 2000 1
2.4.2 Forest habitats and other habitats linked to forests in the Natura 2000 network 1
2.4.3 orest species of Community interest 1
2.4.4 onservation status of forest habitats and species of Community Interest 1
2.4.5 Main pressures and threats to forest habitats and species of Community Interest 1
3. NATURA 2000 AND FORESTS: QUESTIONS AND ANSWERS 1
3.1 Conservation objectives and measures in Natura 2000 forests 1
3.2. Assessing and monitoring conservation status and measures in Natura 2000 forests 1
3.3 Forest management in Natura 2000 1
3.4 Management plans in Natura 2000 1
3.5 Communication, co-operation and involvement of stakeholders 1
3.6 Financing conservation measures in Natura 2000 forests 1
3.7 Forest management and the species protection regime under the Habitats and the Birds directive. 1
ANNEX 1 - Glossary 1
ANNEX 2 - Examples / Case studies 1
ANNEX 3 - Forest habitats included in annex ii of the Habitats Directive 1
ANNEX 4 - Species of community interest associated to forests 1
ANNEX 5 - Conservation status of forest habitats
ANNEX 6 - Forest ecosystem services according with CICES classification 1
INTRODUCTION
· What is this guidance for?
The goal of this guidance document is to assist Member State administrations and key partners and stakeholder groups, who are responsible for forest management and nature conservation, in developing and promoting forestry systems and practices, especially within Natura 2000 areas, that will help maintain and improve the conservation status of rare and threatened habitats and species of EU importance.
The objectives of this guide are:
i. Improving understanding of the provisions of the Habitats and Birds Directive in relation to forests
ii. Facilitating and guiding the implementation of the Directives, in particular on forest Natura 2000 sites (answering to the most frequent implementation questions)
iii. Addressing the integration of forestry/silvicultural activities and nature conservation objectives in Natura 2000
iv. Highlighting some of the benefits of Natura 2000 in forests and the importance of involving stakeholders
v. Sharing best practices
The guide provides an overview of the main issues to consider as regards the relationship between forests and Natura 2000 and offers a range of practical ideas, examples and recommendations on managing forests in Natura 2000 sites, based on good practice experiences from across the EU.
The guidelines have been prepared through an active dialogue with relevant stakeholders (forest and environmental authorities, forests’ organisations, environmental NGOs..) in order to find ways to encourage a more integrated approach to the management of forests in Natura 2000 areas, and to strengthen in particular the partnership approach.
The document is intended to provide a useful source of advice and ideas for Member States and stakeholders. As such it reflects only the views of the European Commission and is not of a legally binding nature. The Habitats and Birds Directives are enshrined in the principle of subsidiarity and it is for Member States to determine the measures to be taken to manage their Natura 2000 sites in accordance with Article 6.1, 6.2 and 6.3 of the Habitats Directive.
The present guidance is therefore not prescriptive in its intent, but rather aims to offer a useful source of information and advice to help Member States implement their obligations under the Habitats and Birds Directives.
· Who is this guidance for?
The target audience of this technical guidance document includes the main actors involved in the management of forest in Natura 2000, e.g. forest and nature conservation authorities and administrations, foresters, landowners, forest groups and unions, nature conservation advisors and site managers.
It is expected that the guidance document could also support Member States/regions in the elaboration of new or improved sets of Natura 2000 conservation oriented measures under the Common Agricultural Policy for the new programming period 2014-2020.
· What can you find in this document?
Chapter 1: presents the overall policy context and provides a brief introduction to the Natura 2000 network and the EU’s political commitments to stop the loss of biodiversity in Europe.
Chapter 2: describes the forest context in Europe, explains the importance of forest habitats and species of EU importance, identifies which Natura 2000 habitats and species are linked to forests…
Chapter 3: provides answers to answering to frequently asked questions about forest management and implementation of conservation measures in Natura 2000.
Annexes:
Annex 1: Glossary
Annex 2: presents examples that illustrate different experiences form Member States in implementing forest management in Natura 2000.
Annex 3: provides a list of forest habitats included in the Natura 2000 network, their surface and coverage in the network
Annex 4: provides a list of species of EU interest associated to forests
Annex 5: presents the Conservation Status of forest habitats of Community Interest by biogeographical region
Annex 6: presents an overview of ecosystems services provided by forests
1. THE PRINCIPLES AND OBJECTIVES OF THE BIRDS AND HABITATS DIRECTIVES AND NATURA 2000
1.1 The Birds Directive and the Habitats Directives
These two Nature Directives are the cornerstones of the EU’s biodiversity policy. They aim at protecting rare and endangered species across their entire natural range within the EU through a series of protection provisions.
The general objective of both Directives is to achieve favourable conservation status for the natural habitats and species of wild fauna and flora of Community interest[1] and to maintain the populations of naturally occurring wild bird species at a level which ensures their survival over the long term. Member States shall take the appropriate measures to attain this objective also taking account of economic, social and cultural requirements and regional and local characteristics.
The Habitats and Birds Directives require Member States, amongst others, to designate sites under the Natura 2000 Network to ensure the conservation of the habitat types and species of EU importance covered by the two Directives. It is important to recall that core areas for these species and habitats are included in Natura 2000. The sites designated under both Directives form a coherent network aimed at achieving favourable conservation status for those habitats and species at bio-geographical level. Each site has a contribution to make to that objective.
Other measures are foreseen within the two Directives for the protection and conservation of species and habitats of EU importance outside Natura 2000 (see section 1.4).
1.2 The Natura 2000 network
The Habitats Directive sets the rules for the creation of the Natura 2000 network, the designation of the relevant sites for the network, their legal protection and management regimes.
The Natura 2000 network is the centrepiece of the EU nature and biodiversity policy. It is a EU wide network of over 26,000 natural areas covering a surface of 949,910 km2 on land and on sea. The aim of the network is to assure the long-term survival of Europe's most valuable and threatened species and habitats. On land, Natura 2000 covers 17,5% of the EU’s surface. It is comprised of Special Areas of Conservation (SAC) designated by Member States under the Habitats Directive[2], and also incorporates Special Protection Areas (SPAs) which are designated under the Birds Directive[3]. Many sites have been designated according to both Nature Directives, either in their entirety or partially, so in many cases both protection status overlap.
Natura 2000 / Terrestrial sites / Marine sitesTotal number of sites / 26 193 / 2 360
Total surface / 768 141.98 / 241 536.42
Source: Natura 2000 barometer. July 2013
1.2.1 Establishment of the Natura 2000 network – site selection
Sites are selected and designated as part of the Natura 2000 network because they include the most important areas for the conservation of habitats types and species protected under the two nature directives. The sites of the network therefore play a central role in relation to the conservation of European biodiversity. The selection of Natura 2000 sites under the Habitats Directive is made in accordance with a set of criteria specified in Annex III of the directive and has been assessed and agreed among Member States and the European Commission through a series of Biogeographical Seminars, taking into account the need to provide a sufficient coverage for each habitat type and species in the network and to ensure the coherence of the network. Under the Birds Directive, the most suitable areas for the conservation of species listed in annex I and for regularly occurring migratory species are designated, bearing in mind the need for protection of their breeding, moulting and wintering areas and staging posts along their migration routes.
1.2.2 Protection and management requirements for Natura 2000 sites (Article 6 of the Habitats Directive)
Once a site has been included in the Natura 2000 Network, Member States are required to manage and protect it in accordance with the terms of Article 6 of the Habitats Directive[4]. Article 6 contains three key provisions; it requires Member States to:
· Establish the necessary conservation measures, on each site, which correspond to the ecological requirements of the protected habitat types and species of Community interest present (Article 6.1);
· Prevent any damaging activities that could significantly disturb these species or deteriorate their habitats or protected habitat types present (Article 6.2)[5].
· Assess potential effects and protect the Natura 2000 sites from plans and projects likely to have a significant effect on the site by setting out a series of procedural and substantive safeguards (Article 6.3 and 6.4).
Within this structure, it can be seen that Natura 2000 sites are not strictly protected areas where all activities are systematically excluded. Human presence and activities are in principle recognised as an integral part of the sites. Natura 2000 supports the principle of sustainable development and use of natural resources. Its aim is not to exclude economic activities, but instead to set the parameters by which these can take place whilst safeguarding Europe’s most threatened and valuable species and habitats.
1.2.3 Setting conservation objectives
To ensure that each Natura 2000 contributes fully to reaching this overall target of FCS, it is important to set clear conservation objectives for each individual site. These should define the desired condition, within that particular site, of each of the species and habitat types for which the site was designated. This can be done quantitatively or qualitatively[6].
It is also advisable that each MS/region first defines conservation objectives at the national or regional level for all habitat types and species of Community interest present on their territory, taking into account their conservation status as assessed under article 17 of the Habitats Directive (at biogeographical level) and the need to contribute to achieving favourable conservation status for every habitat and species in each biogeographical region[7]. This provides a useful basis to set conservation objectives at site level while taking into account the contribution that each site can make to achieve favourable conservation status. For instance, the Wallon region has set general conservation objectives for all the habitats and species present in Wallonia and requests that these are taken into account when defining the corresponding objectives in every Natura 2000 site.
1.2.4 Establishing the necessary conservation measures (Article 6.1 of the Habitats Directive)
The Habitats Directive requires that the necessary conservation measures are established in every Natura 2000 site. They involve, if need be, appropriate management plans specifically designed for the sites or integrated into other development plans, and appropriate statutory, administrative or contractual measures which correspond to the ecological requirements of the natural habitat types in Annex I and the species in Annex II present on the sites. (art. 6.1). The conservation measures shall contribute to the maintenance or improvement of the condition of the habitats and species present on the site while taking into account the economic, social and cultural requirements and regional and local characteristics. Conservation measures are designed in order to achieve the conservation objectives of a site. They can include both active management and restoration works, as well as passive or ‘non-deterioration’ or preventive measures[8].
How these conservation measures are to be implemented will vary from site to site depending on the site-specific conditions (ecological factors, socio-economic context, etc.). Article 6.1 allows a large degree of flexibility in this respect, and leaves it up to each Member State to decide what are the best conservation measures and how they are to be implemented.
1.2.5 Identifying the resources needed for managing Natura 2000 sites (Article 8 of the Habitats Directive)
It is crucial to identify the financial needs for appropriate management of the Natura 2000 sites in order to optimise their contribution to the conservation of habitats and species of Community interest. The identification of the necessary conservation measures (eg. in management plans and other instruments) must be accompanied by the identification of their cost and the financial resources needed for their implementation. It may be necessary to properly estimate the cost of all the measures but also the consequences of their implementation, especially when some restrictions or adaptation of existing forest management are proposed, which may imply a loss of income that needs to be compensated. Transactions costs may also be considered as these can now be financed under some EU funds (eg. EAFRD).