Version rev:150705
Minutes of the ad hoc Working group on Wind energy and biodiversity
31st of May 2005
Venue: DG ENV. Avenue de Beaulieu. Brussels
Chairpersons: Micheal O’Briain DG ENV.B.2; Paul Hodson DG TREN D.1.
Attendance: A list of participating experts is appended (Annex I)
- Introduction by DG ENV & DG TREN of the European Commission
This ad-hoc group has been jointly set up by DG TREN and DG ENV to assist the Commission services in producing a guidance document to help ensure that wind energy developments are compatible with the nature conservation requirements of the EU and other relevant international nature legislation applicable in Europe. The aim is to provide guidance for use at both EU level (clarity on how the relevant EU Directives should be applied) and Pan-European levels (in the context of relevant Conventions). The development of guidelines must also be seen in the context of clear commitments and targets to increase the contribution of renewable energy sources to overall energy consumption in the EU as part of the strategy to combat climate change[1]. The guide would set the policy context, examine the species and habitat types that are vulnerable to such developments, look at the evidence to support such concerns, identify the processes that needed to be followed and present examples of good practice.
This first meeting was meant to be a brainstorm session preceding the Green week talks which have a climate change focus this year. The objectives of this brainstorming session was to discuss what are the important issues related to wind power development and nature conservation, and to discuss what guidance is needed, in view of what guidance already exists. Another meeting of this group will be set up later in the year.
The views expressed were those of the experts in an open discussion forum and do not necessarily represent official positions of the bodies that they represent.
- Perspective of international conventions and agreements (including introductory comments on Berne Convention draft recommendation on wind energy and nature conservation[2])
The Bern Convention
Fully supports the policy directed towards mitigation of climate change. The problem is not wind energy as such but the approach towards putting in place the infrastructure. The general public is concerned that wind energy is unregulated. In 2003, a draft recommendation was prepared by BirdLife and submitted to the Berne Convention. A year later, the Standing Committee (recommendation No. 109 (2004)) has asked the Secretariat to prepare guidelines. Therefore, there is a full support to the process started by the Commission. Work of the extended Ad-Hoc working group should serve as a good example of cooperation for benefit of nature. The Secretariat welcomes wide consultation with stakeholders and involvement of experts with knowledge in different fields (e.g. birds, bats, cetaceans).
Bonn Convention (UNEP/CMS)
There has been a resolution to the Bonn Convention adopted (No.7.5., 2002). The resolution includes recognition of the need for renewable energy sources. Assessment is shown as needing improvements especially with regards to migratory species such as birds, bats and cetaceans. Environmental Impact Assessments also lead to a better dialogue between stakeholders but, unfortunately EIAs are not implemented in many cases. Monitoring at all stages is also identified as a key issue in particular for good assessment. The initiative to establish the Ad-Hoc Working group with the aim to elaborate a guidance document was welcomed. It was suggested that the guidelines arising from this Ad Hoc Group should also address landscape degradation issues. However, the ad hoc group agreed that this was a much broader topic and that the group should focus on biodiversity related issues.
The Agreement on the Conservation of Populations of European Bats (UNEP/EUROBATS)
In 2003 a resolution was adopted by the Meeting of the Parties (No 4.7. Wind Turbines and Bat Populations). This resolution is considered by some to be probably still too moderate. The Advisory Committee is assessing the impact of turbines on bats. A working group was set up in 2004 to develop guidelines for the planning process and assessment of sites, long term monitoring and a set of standardised methods for long term monitoring and research by standard methods.
An important issue raised was the use of mitigation measures to minimise the impact of wind generators, for example stopping turbines during critical times of the year. Such a measure could deliver benefits to wildlife and result only in a relatively minor decrease in energy production. Also, the location of wind farms is crucial. For example, proximity to a forest increases the number of bat collisions. There are 35 bat species in Europe of which 20 are considered vulnerable to wind generators.
African Eurasian Waterbird Agreement (UNEP/AEWA)
The Agreement is quite young (from 1995) and covers 117 countries. It is not very advanced on this issue. There are no resolutions or recommendations so far. The next 3rd Meeting of the Parties (MOP3) takes place in October 2005 in Senegal. The issue of wind farms is one of high concern. Warning signals have been received from NGOs especially eastern European ones. A major aspect that is usually overlooked is the possible impact of wind farms at flyway level. Usually impact assessments are site-specific and concern only the location of the wind farm. However, from conservation point of view it is crucial to know the cumulative effect of threats that exist along bird flyways and what would be the overall impact on populations not on individual birds. So far any such survey is lacking. Some species are highly threatened already and unregulated development of wind farms will add more pressure. Even in some EU accession countries, such as Bulgaria and probably Romania, it appears that wind farms are being developed without EIAs in biodiversity sensitive areas or to very poor standards. Hopefully, these issues will be brought up at the meeting in Senegal, where the organization of a side event during the MOP3 is being considered.
Oslo and Paris Convention (OSPAR)
Attention was drawn to the fact that draft guidelines have been prepared under this convention. This draft has been discussed but not adopted. Since the interest to place wind farms in the marine environment is growing, the issue of suitable location is rising as a priority question. It was agreed that the experience in OSPAR should be taken into account in the work of this group.
International Whaling Commission (IWC)
The IWC Scientific Committee regarded the rapid development of marine
windfarms to be of potential concern and recommended that full independent
and publicly accessible environmental impact assessments be conducted
wherever they are planned. The Working Group noted that biological surveys
might be needed in many regions to adequately inform the EIA process.
- Perspective and issues of concern to industry
European Wind Energy Association (EWEA)
We are living in a society that has obligations under the Kyoto Protocol to reduce CO2 emissions while at the same time are becoming increasingly dependent on energy and promoting growth. These conflicting challenges can be addressed with renewable energy such as wind energy. Kyoto targets can be reached if a certain amount of energy production comes from wind energy. The benefits of wind energy should be looked at especially in comparison to alternative forms of energy.
Developers are taking biodiversity issues very seriously and EIAs are rigorous. Early consultation between developers and nature conservationists is very important. The problem is that when sites are awaiting designation, wind farms cannot be built and this process causes a large amount of delay. This delay in setting up wind farms and thus implementing urgent mitigation measures may have a more serious impact on climate change than on the effects which may be inflicted on wildlife by wind turbines. It is difficult for industry to operate when faced with such uncertainty. They consider that there is a disproportionate focus on possible negative impacts of wind energy developments in comparison to the consequences for biodiversity of other forms of energy. There is also a need for proportionality. Furthermore, we need to more clearly factor in the biodiversity benefits arising from wind energy.
EWEA has agreed to provide case studies of good and bad practices.
Airticity
Wind farms and biodiversity can co-exist. Wind farms can in fact bring benefits to biodiversity conservation. For example, a closed area in the marine/offshore environment for wind farms is likely to also preserve fish stocks.
It is expected that technological development will allow for wind power production further and further out into the offshore environment, but for the moment this is very expensive. The industry also hopes for the development of floating structures which would have little impacts on the sand banks/seabed.
It was also referred to uncertainty in relation to the developments in the marine environment, specifically where developers can end up in identifying environmentally sensitive areas.
It was made clear that assessment processes should not be discriminatory towards wind farms. Other uses of land, such as infrastructure developments and other power plants etc should have the same level of assessment.
Will also contact their members for examples of good and bad practice.
Associación Empresarial Eólica (AEE), Spain
There have not been many complaints about wind farms and complaints are usually related to the visual aspect of turbines. Spain has a very high diversity of bird species, but it seems that the impacts are not significant as there have not been many problematic cases. One of the great advantages of wind farms is that it is clean and unlike coal or nuclear power, it can even be dismantled if an important negative impact arises. Guidelines will be helpful. There is a great need for monitoring to be improved and to be carried out independently.
- Perspective and issues of concern to conservation NGOs
SEO BirdLife Spain
SEO BirdLife is in favour of clean energy. It seems that many wind farms are being developed in Natura 2000 protected areas which accounts for about 20% of the Spanish territory. This is considered to be a problem.
In considering the potential impact of wind farm developments consideration should not only be given to the wind turbines but to related infrastructures as well. (e.g. power lines/cables).
Royal Society for the Protection of Birds (RSPB - BirdLife UK)
There is a need to balance the risks and benefits of renewables. There is relatively little knowledge on impacts. Location is considered to be a very important issue, and there is a need to identify locations of least impact. Mitigation measures can be taken, but, monitoring should always be carried out. It was commented that the offshore environment is more difficult to assess than the onshore environment.
A mapping project on sensitive bird species (vulnerability and susceptibility) distributions has been initiated in Scotland.
It was commented that baseline studies in the UK are usually one year long, but two to three years’ duration when there is limited existing information and so that inter-annual variation can be taken into account. Offshore studies should last at least 2 years because of the paucity of existing information.
There is a lack of evidence on various issues related to wind power and impacts on wildlife. When and if birds change their migratory route, is this likely to be a temporary or permanent adaptation? The cumulative effects of this sort of displacement could be highly significant. It is important to use improved knowledge in order to identify suitable sites and ways of collecting data (using standardized methodologies). Identification of migratory bottlenecks should be high on research priorities.
There is a need for guidance at several levels. These should consider suitable locations, provide standard methods for data collection, recognize that each site is different (depending on location, habitats etc.), and also address the issue of cumulative effects. The BirdLife report to Council of Europe contains guidance in terms of site selection (see sections 3 and 7).
RSPB agreed to provide some information and also a link to an organization (COWRIE, led by the Crown Estate) in the UK which provides a good exchange between stakeholders.
Whale and Dolphin Conservation Society (WDCS)
WDCS believes that alternative sources of energy are critical, but that
with this new and rapidly developing technology the incorporation of
precautionary practice is critical, as is the international exchange of
information.
Generally, information about cetacean distribution and abundance is very
limited but this is particularly the case in the offshore environment.
The information regarding the impacts of wind farms on cetaceans is alsominimal. However evidence has shown that cetaceans are vulnerable to windfarms, and particularly to noise pollution and habitat displacement.
Environmental impact assessment should be thorough and transparent.
Management and mitigation should include early evaluation and avoidance ofareas of known critical habitat; monitoring and evaluation of outcomes ofimpact studies; dedicated long term research; assessment of cumulativeimpacts; as well as measurements of the sounds produced.
Members of the working group offered to provide existing and relevant
reports and publications on marine mammals.
World Wide Fund for Nature (WWF)
Tackling climate change is a key element of WWF policy, and reducing emissions and climate change is considered to be as important as and interconnected with conserving biodiversity. Increasing the share of renewable energy (among which wind power has a primary role) is one of the key measures to cut CO2 emissions substantially: wind energy has massive potential worldwide and is a cost-effective and easily accessible source of energy. Environmental impacts during operation are negligible, since no carbon dioxide or other atmospheric pollutants are emitted and no dangerous waste is left once dismantled. Noise pollution can be avoided, wind turbine should respect local noise limits and be built according to the world’s best practices. . The location of a site is also considered to be very important and appropriateness must be checked by good EIA/SEA. Careful siting, identification of no-go areas and operation can ensure that impacts on biodiversity are minimised. The positive long-term benefits of wind energy must be taken into account.
- Examples of experiences in different Member States
Denmark
In connection with the establishment of the two offshore windfarms (80 turbines) environmental studies are to be carried out in the period 1999 - 2006. The installation of wind turbines was finished in 2002/3. Several invistigations and surveys of the marine life have been conducted and monitoring programmes have been established to monitor aspects such as coastal processes, benthic communities, hard bottom introduction, fish, porpoise, seals and disturbance effects and collision risk on birds. Ther results of the individual annual status reports can be found at the homepages: and
Concerning birds models have been used to assess the potential impacts of turbines on wildlife and use of monitoring equipment. This looks in detail at 3 main categories of hazard factors: visual stimulus – avoidance response; physical habitat loss/modification; collision mortality. Approaches are being developed to determine the number of collisions, although it will always depend on the species. The impacts have to be assessed at the population level so, the size of the affected population needs to be monitoring closely in order to assess whether the impact is significant. Data should be collected at two levels, the local (EIA) and national level (SEA).
With a radar system they monitored the movement of birds around the wind farm. Generally the majority of birds avoid the windfarms and appeared to make a detour and fly around the entire wind farm. The cumulative effects are unknown and this should be regarded as an international issue.
The light from wind turbines which are lit up at night may attract birds. Studies are needed to assess the actual impact of lighting. Lighting at night are particularly bothering for the local people.
Netherlands
The good news is that for once industry and NGOs are working together on renewable energy. These guidelines will be important.
The Netherlands under its EU-presidency in 2004 organized an international workshop on offshore wind farms. It resulted in a Policy declaration in which issues of market development, environment and grid issues were addressed. The biggest challenge is grid development. As to environment, it was good to see that industry and NGOs are prepared to work together on renewable energy. After the Bilund Conference on the first Danish experiences on offshore wind and environment, the impression may be that if wind has an adverse environmental impact, it will mainly be related to birds and then probably to the accumulation (barrier) effect. The present Danish research is therefore consideredimportant. Further, it should not be forgotten that the importance of wind energy in the energy mix is related to concerns on climate change; proportionality may therefore be an issue. It may be that once there is a resolution on site selection issues, public perception of other environmental issues may be addressed more easily.For on-shorewind farm locations,predictive mappingof best locations and nature sensitive areas has taken place in The Netherlands; an assessmentframework for best sites on the North Sea is now being established.