Development of guidance document on management of
farmland in Natura 2000 areas
Contract N° 07.0307/2010/580710/SER/B3
Description of the link between
Natura 2000 sites and agriculture/farmland
Draft report on Task 1
April 2011
THE N2K GROUP
European Economic Interest Group
Atecma / Comunità Ambiente / Daphne / EcosystemsLTD / Ecosphère
DRAFT REPORT – NOT TO BE QUOTED
Contents
1Introduction
2Background
2.1Species requiring protection through the Natura 2000 network
2.2The development of agricultural habitats in the EU and their biodiversity importance
2.2.1Habitat types
2.2.2Landscape scale influences on biodiversity
2.2.3High Natural Value Farmland
2.3Agricultural habitats of Community interest
2.4Species of Community interest associated with agricultural habitats in Natura 2000 sites
3Key agricultural species and habitats of Community interest that are of particular importance with respect to the Natura 2000 network
3.1Datasets and methods
3.1.1Key agricultural habitats
3.1.2Key agricultural species
3.2Results
3.2.1Key agricultural habitats
3.2.2Key agricultural species
4The importance of agriculture and agricultural land for the Natura 2000 network and its geographical cover
4.1Datasets and methods
4.2The general pattern of distribution of agricultural habitat types in the EU and Natura sites
4.2.1Natural and semi-natural habitats
5REFERENCES
6ANNEXES
6.1Agricultural habitats of Community importance and their ranked importance that are NOT listed as key Agricultural habitats [Update?]
LIST OF ACRONYMS
CAPCommon Agricultural Policy
ETC/BDEuropean Topic Centre on Biodiversity
FSSFarm Structure Survey
JRCJoint Research Centre
RDPRural Development Plan
SACSpecial Area of Conservation
SAPSSingle Area Payment Scheme
SPASpecial Protected Area
GUIDELINES ON THE MANAGEMENT OF FARMLAND IN NATURA 2000
1Introduction
The Birds Directive[1] and Habitats Directive[2] are the two cornerstones of the EU’s biodiversity policy. At the heart of the two Directives lies the establishment, protection and management of a coherent network of sites designated for selected species and habitats listed in the two Directives (plus most important sites of all migratory birds) – known as the Natura 2000 Network (cf Articles 3-6 of the Habitats Directive and Articles 3 and 4 of the Birds Directive).The aim of the network is to ensure that the species and habitat types that are protected by the two nature directives are maintained or restored to a favourable conservation status across their natural range.
The terrestrial components of EU wide network currently include over 26,000 sites and covers some 18% of the EU landmass. Agricultural practices have a particular influence on these sites as farmland covers almost 50% of the EU territory and agro-ecosystems represent almost 40% the surface of Natura 2000 sites. Therefore to help MemberStates and key economy sectors representing major land uses in Natura 2000, the European Commission has launched an initiative to develop guidelines on the management of farmland in Natura 2000 areas. The objectives of this project are:
- to contribute to the improvement of the conservation status of the habitats and species sensitive to, or dependent on, agricultural land management.
- to promote the integrated management of farmland in Natura 2000 areas, by strengthening the partnership approach through the involvement of the agricultural sector in proactive and participatory management of Natura 2000 network.
The first task in this project is to “on the basis of existing data, clearly identify, quantify, analyse and assess the link between Natura 2000 sites and agriculture/farmland;
- Elaborate and present a justified listing of the species and habitats of Community interest, under the Birds and Habitats Directives, that are of particular importance in terms of their relationship with agricultural land and/or agricultural practices. Focus especially on priority habitat types and priority species (including indicative list of priority bird species). This should also include a description of the dependence of the above habitats and species on agriculture and its practices.
- Provide a comprehensive picture and quantification of the importance of agriculture and agricultural land for the Natura 2000 network and its geographical cover.”
The results of this task are presented in this report and will help to guide and focus the development of a guidance document (in Task 4) on management of farmland in Natura 2000 areas. This guidance will aim to identify suitable management approaches that can be applied, including integrated management, taking into account the multifunctional character of agriculture and of the ecosystem services provided by suitable management systems. It is expected that the guidance document will also support Member States and regions in the elaboration of Natura 2000 conservation oriented measures under the Common Agricultural Policy for the new programming period 2014-2020.
The project is performed with the assistance of the N2K Group and the Institute for European Environmental Policy (IEEP), which work in co-operation with DG ENV and DG AGRI, and the recently established Expert Group on management of Natura 2000 set up by the European Commission, which involves MemberStates and key stakeholder groups. An active dialogue with the relevant stakeholders (agricultural and environmental authorities of Member States, farmers organisations, environmental NGOs) is crucial to properly reflect the key interactions between agriculture and nature conservation and the key challenges in ensuring win-win co-existence between the species and habitats protected within the Natura 2000 network and the agricultural sector.
2Background
2.1Species requiring protection through the Natura 2000 network
Under the Habitats Directive, core sites need to be protected for 231 habitat types listed in Annex I and 911 species listed in Annex II. These sites, once adopted by the Commission, become Sites of Community Importance (SCIs) and form part of the Natura 2000 Network and are protected by Article 6. Once a site becomes an SCI, Member States have six years at most to designate it as a Special Area of Conservation (SAC) and establish the necessary conservation measures to maintain and restore the habitats and species at a favourable conservation status. At this stage practical management solutions that help integrate these conservation needs into other land use activities should be explored, where possible taking socio-economic issues into account.
Habitats listed in Annex I are considered to be of Community interest because they are:
(i)in danger of disappearance in their natural range; or
(ii)have a small natural range following their regression or by reason of their intrinsically restricted area; or
(iii)present outstanding examples of typical characteristics of one or more of the nine following biogeographical regions: Alpine, Atlantic, Black Sea, Boreal, Continental, Macaronesian, Mediterranean, Pannonian and Steppic.
Species are considered to be of Community interest if they are:
(i)endangered, except those species whose natural range is marginal in that territory and which are not endangered or vulnerable in the western palearctic region; or
(ii)vulnerable, i.e. believed likely to move into the endangered category in the near future if the causal factors continue operating; or
(iii)rare, i.e. with small populations that are not at present endangered or vulnerable, but are at risk. The species are located within restricted geographical areas or are thinly scattered over a more extensive range; or
(iv)endemic and requiring particular attention by reason of the specific nature of their habitat and/or the potential impact of their exploitation on their habitat and/or the potential impact of their exploitation on their conservation status.
Such species are listed or may be listed in Annex II and/or Annex IV (strictly protected species) or V (species whose taking / exploitation requires management measures).
The Habitats Directive identifies a subset of 72 Annex I habitats as being priority natural habitat types because they are in danger of disappearance and because the Community has a particular responsibility for them in view of the proportion of their natural range which falls within the EU. Similarly a subset of Annex II species are identified as priority species because the Community has particular responsibility for them.
Under the Birds Directive, special conservation measures shall be taken, in particular the protection of sites, to ensure the survival and reproduction in their area of distribution of 195 species and subspecies of birds listed in Annex I of the Directive. In this connection, account shall be taken of:
(i)species in danger of extinction;
(ii)species vulnerable to specific changes in their habitat;
(iii)species considered rare because of small populations or restricted local distribution;
(iv)other species requiring particular attention for reasons of the specific nature of their habitat.
Member States must also classify sites for other regularly occurring migratory bird species not listed in Annex I, bearing in mind the need to protect their breeding, moulting and wintering areas and staging posts along their migration routes, eg wetlands of international importance. These sites are called Special Protection Areas (SPAs) and since the Habitat Directive came into force are included in the Natura 2000 Network.
Althoughthe Birds Directive does not identify priority bird species, the Ornis Committee (which advises the Commission on the implementation of the Directive) has agreed a list of 51 species and subspecies that are considered as priority for the purpose of LIFE Nature funding and the development of action plans. These priority species include all globally threatened species that regularly occur in the European Union, as well as other some other species that are particularly threatened are a result of their rarity and/or rapidly declining populations.
2.2The development of agricultural habitats in the EU and their biodiversity importance
2.2.1Habitat types
To appreciate the conservation importance of agricultural habitats and their associated species it is necessary understand their historical origins and relationships with natural habitats. In fact the habitats that we now have in Europe are primarily a result of thousands of years of human modification of natural ecosystems. These developed along with their associated plant and animal communities after the last ice-age are now all but gone as a result of progressive forest clearances, increased fires, grazing by domesticated livestock, cultivation and eutrophication[3] (Figure 21 and Box 21). However, the legacy of the agricultural practices and their interactions with the varying climates, topography and soils of Europe created a rich diversity of landscapes and habitats. Although most agricultural habitats are man-made or highly modified, they remain highly influenced by abiotic factors such as climate, day length, soil topography and altitude. For example, the location of primary steppe is strongly determined by the ratio of precipitation to evaporation, while temperature and soil conditions (especially its fertility and capacity for water retention) determine the species composition of the dry grassland vegetation. The combination of climate and locality largely determines the type of agriculture that is practised in a region.
As agriculture spread and diversified natural elements in the landscape declined, but new ‘cultural’ habitats were created with novel species communities, which initially probably increased species richness across much of Europe (Kornas, 1983). Furthermore, some of the semi-natural cultural habitats that arose, such as wood pastures, steppic grasslands, hay meadows and heathlands that are dependent on livestock grazing for their maintenance are likely to be analogous to former habitats, that were dependent on grazing by natural herbivores.
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Figure 21The processes which lead to the formation and modification of agricultural and grassland habitats in Europe
Dashed lines indicate changes that are particularly slow by nature or that cannot be easily or quickly
Source: modified from Goriup (1988).
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Box21The historic development of agricultural habitats in EuropeBefore agriculture became widespread on the continent 7,500 – 4,500 years ago, forests covered most of Europe, except where tree-growth was inhibited by climate or soil conditions (Ellenberg, 1986; Goruip, 1988)). Natural grassland (primary steppe) would have been confined to areas of low rainfall and nutrient-poor soils, and been most extensive in south-east Europe, originally extending from the Danube basin eastwards through south east Ukraine and southern Russia to Kazakhstan and beyond Europe to Mongolia and China. Grassland would also have occurred in mountain ranges where conditions were too exposed for trees, i.e above the treeline (montane grassland), on saline soils and on particularly poor soils with dry conditions (e.g. the Rhine sands of the Mainz basin (Germany), calcareous grassland in the UK, and parts of the Mediterranean (Goruip, 1988; Wolikinger and Plank, 1981). In addition, small and patchy wet grasslands are likely to have occurred on the natural flood-plains of large rivers, wherever floods scoured away the tree-cover.
Although there is some debate over the original extent of natural grassland in western and central Europe (van Dijk, 1991), it is clear that apart from mires and ‘true’ steppe, the more-or-less treeless landscapes which now predominate Europe are the result of forest clearances (often by fire) for grazing, and later for crops.
Pastoralism has been practised in many montane grassland, e.g. the Alps, for at least 6,000 years (Bätzing, 1994; Lichtenberger, 1994). The opening-up of lowland woodland to provide grassland for livestock started in Neolithic times, at least in Britain (Rackham, 1986), and probably gave rise initially to extensive areas of pastoral woodland. By medieval times, pastoral woodlands were widespread in Europe (Ellenberg, 1986; Rackham, 1986). Further clearance for agriculture led to primarily open habitats in most areas of the continent, and now pastoral woodlands are mainly restricted to the Iberian peninsular.
Primary steppe would originally have been grazed by an abundance of large, wild herbivores such as Wild Horse and Saiga Antelope (Goruip, 1988). These are now globally extinct or extinct in Europe, and have been replaced by domestic livestock, but the density and biomass of the latter are probably considerably greater than those of the original wild ungulates. Consequently, pastoral agriculture on these primary and steppe habitats has generally caused impoverishment of the habitat, and has led to land degradation where grazing is particularly intense.
The advent of arable agriculture in Europe also led to widespread ploughing of primary steppe and secondary grassland. Until recently, such arable systems were usually non-intensive over much of Europe, with low fertiliser inputs, and incorporated into crop rotations, often including several years as a grass to maintain fertility. This led to mixed habitats of grass, cereals, fodder crops and fallow land, termed ‘mixed farming’ in temperate areas and ‘pseudo-steppe’ in drier, more Mediterranean climates. In northern and Western Europe, in particular, such arable systems have now mostly been intensified through the use of pesticides, artificial fertilisers and irrigation, but areas remain in parts of the Iberian Peninsula and Eastern Europe.
Source: IEEP in prep.
Over the last hundred years and particularly since the 1950s, drivers of agricultural development (such as increasing commodity markets and prices, technological advances and market measures and support under the CAP) have led to widespread agricultural improvements and the intensification of management. This has led to significant changes in agricultural habitats, such that many of the natural and semi-natural elements that remained have been lost, resulting in highly modified and simplified agricultural systems. These systems are hostile to many species (eg as a result of frequent cultivations, the use of toxic agrochemicals and presence of highly competitive plant cultivars) and provide insufficient food resources for species that would otherwise tolerate the conditions.
Numerous studies have shown that the key factor that determines the biodiversity value of agricultural habitats, is the degree to which they been modified as a result of grazing, agricultural improvements (e.g. drainage and reseeding) and intensive management, such as the use of fertilisers and pesticides etc. In general, biodiversity value (e.g. the diversity of characteristic species and rare species) declines with increasing agricultural improvement and intensification (Aebischer, 1991; Billeter et al, 2007; Donald, 1998; Donald et al, 2001)(Stoate et al, 2009).
Although modifications of agricultural ecosystems are often gradual and vary considerably across Europe, from a biodiversity perspective eleven broad types of agricultural habitat can be defined at a field-scale, as summarised in the typology outlined in Table 21. The typology has been developed as part of a current study for DG Agriculture on CAP and Biodiversity and reflects typical progressive stages in agricultural improvement and intensification, from natural habitats (such as steppes, montane grasslands, bogs and tundra) through grass dominated livestock grazing systems, which retain some natural elements, to artificial croplands.
Croplands vary considerably and can be most obviously divided into those that are regularly cultivated and those that are rarely cultivated and replanted. Cultivated croplands, such as in typical arable farmland, are dynamic and simple ecosystems compared to natural ecosystems. They tend to have a similar structure to early successional habitats, which are initially dominated by bare soil and then fast growing grasses (including cereals) and herbaceous species (eg root crops, legumes and brassicas). In contrast permanent croplands develop relatively stable shrub and tree dominated habitats that are more analogous to natural and semi-natural shrublands, scrub and woodlands. Both types of cropland can be further divided into the typical and modern highly intensive systems, organic systems (which differ in their avoidance of artificial fertilisers, reduced used of pesticides and high use of livestock manure and crop rotations) and the much rarer extensive systems (ie with low inputs and management intensity). Such extensive dryland arable systems can still be found in parts of Spain and, although they are not listed in Annex I of the Habitats Directive, they are of very high conservation importance, as they hold large proportions of some globally threatened birds, including Great Bustard (Otis tarda) and Lesser Kestrel (Falco naumanni) (Bota et al, 2005; Suárez et al, 1997; Tucker and Evans, 1997).
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Table 21A broad field-scale typology of agricultural habitats according to the main links between farming practices and biodiversity in the EU