Dune challenges in European context
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This document discusses challenges and opportunities for managing coastal sand dunes in Europe. It notes that while conservation projects have made progress in places like the Netherlands, the overall condition of European dunes remains poor according to EU reports. Key challenges include the large-scale loss of natural dune habitat, interference with natural dynamics, and a lack of integrated management approaches across countries. Opportunities exist to strengthen scientific collaboration, improve communication of dynamic management approaches, and build networks to share best practices. The document analyzes EU habitat reports and recommendations from workshops to identify priorities for increasing conservation efforts over the next decade.
Dune challenges in European context
- 1. 1 Dune challenges in a European context John Houston, UK Sand Dune and shingle Network, Liverpool Hope University A focus for workshop discussion will be where do we, as managers and scientists, go from here in increasing our efforts to secure habitat quality and in getting our message out to policy makers, funding bodies and the wider public? What tools and opportunities can we use and how can we strengthen our networks? Whilst each Member State is responsible for the management of its Natura 2000 network, there is also a responsibility to contribute to the target of achieving favourable conservation status for habitat and species at the biogeographical level. There is a need for a cooperative approach and there is a need to continue to link science and management. This note is set out in three sections 1. Background 2. Challenges 3. Opportunities 1. Background This conference celebrates the work of several Dutch projects providing daring solutions for Natura 2000 challenges. Over the last 15 years or so we have seen the scale of dune management projects increase coupled with a focus on scientific monitoring. As our understanding of geomorphology, hydrology and ecology has developed since the 1970s and 1980s our approach to dune management has shifted from ‘fixation’ to ‘working with nature’. We have come a long way, and this is certainly true for the Netherlands, and this in itself is something to celebrate. However, whilst the value of dune habitats is widely recognised, and conservation projects are underway throughout Europe, overall the condition of European dunes is still grave. This is the conclusion of the EU ‘State of Nature’ report1 published in 2015 using information submitted by Member States through the Habitats Directive Article 17 process. The Habitats Directive of 1992 introduced a common set of habitat types and a methodology for reporting on habitat quality at six year intervals (the Article 17 process). The dune habitats identified are a useful way of simplifying more complicated dune mosaics and allow comparison between sites within Member States and between Member States. The Habitats Directive is the driver for the projects presented at this conference (i.e. LIFE funding is designed to support the establishment of the Natura 2000 network) and so the ‘challenge’ in the workshop title is associated primarily with improving the quality of EU habitats. The Habitats Directive brought a new way of looking at nature across Biogeographical regions and introduced a 1 See link at http://www.eea.europa.eu/highlights/state-of-nature-in-the
- 2. 2 shared responsibility between Member States to work towards ‘favourable conservation status’ (FCS) of European habitats and species. The Article 17 reports, submitted every six years, and analysed by the European Environment Agency provide a snapshot of progress towards the EU target of favourable conservation status. What does the assessment for 2007-2012 show? To simplify presentation we will look at the trends noted in the key habitats 2120 shifting (mobile) dunes, 2130 grey (fixed) dunes and 2190 humid dune slacks. 2120 Shifting (mobile) dunes Only for Germany is the situation reported as favourable. In Belgium, Denmark and the UK the structure and function of the habitat (probably the most important parameter) is unfavourable-bad with a negative trend reported for the UK. The Dutch situation is that the ‘structure and function’ whilst unfavourable-inadequate shows a positive trend leading to a favourable score for ‘future prospects’. This more positive outlook for the Netherlands deserves some discussion. Across the habitats the assessment for the Netherlands gives favourable scores under ‘future prospects’ for coastal dune habitats with the exception of 2130 fixed dunes (unfavourable –bad) and 2190 humid dune slacks (unfavourable-inadequate but with improving trend). This stands out from other Member States assessments and is perhaps a reflection of confidence in the Netherlands that there is a ‘recipe for success’, along with good prospects of national, regional and European funding. If the Dutch are getting it right other Member States should take note.2 However, whilst most Member States report that the ‘range’ of the habitat is favourable (i.e. the area where the habitat can be expected to occur) in many cases the actual area is inadequate and in a few cases (e.g. Belgium) bad. The quality of mobile dune habitats is linked to two key issues raised in the Atlantic biogeographical seminar in 2012 (more below); large scale loss of natural habitat and interference with natural dynamics. Solutions to both issues required engagement with shoreline management (sea defence and coast protection) agencies. This remains a major area for the exchange of knowledge and coordination of national policy. 2130 Fixed coastal dunes Across the region this is the dry dune habitat requiring most attention. In Belgium, Denmark, Ireland, Netherlands and UK it is in unfavourable-bad condition. In Belgium there is a noted lack of total area of habitat (only 670 ha) although structure and function is unfavourable inadequate. The status of the habitat in the Netherlands shows no change (perhaps indicating that the situation has been stabilised- an increase in area is noted) whereas the trend in the UK is further decline. The main pressure on the habitat in the Netherlands is succession and the main measures to be applied are mowing and grazing with one-off restoration works (i.e. similar to the LIFE projects). For the UK a much wider set of pressures is identified. 2190 Humid dune slacks 2 Further information on the delivery of nature conservation in the Netherlands can be found in the response to the EU Fitness Check of the Directives. http://ec.europa.eu/environment/nature/legislation/fitness_check/index_en.htm
- 3. 3 Humid dune slacks are the wetland features requiring most attention. However, in Belgium and the Netherlands, despite being rated as ‘bad’ and ‘inadequate’ positive trends are noted. In the UK and Ireland, however, declines in structure and function are reported. The Article 17 reports are perhaps rather crude snapshots of the status at Member State level and caution is necessary if trying to compare results country by country. Definitions of favourable conservation status and the rigour of assessment may vary from country to country. The success of LIFE projects is often masked because, compared to the total areas of habitat, they are small interventions. The value of LIFE projects, however, is in attracting additional funding for developing and disseminating best practice, for communication and for networking. The (new) Biogeographical Process A characteristic feature of the Atlantic region from northern Portugal to northern Denmark is the chain of dune systems and estuaries. In reinvigorating the delivery of the Habitats Directive through the New Biogeographical Process3 , dunes and estuaries were selected as a special topic for a workshop held in The Hague in 2012. The workshop was designed to identify common problems, potential solutions and opportunities for cooperation. For dunes the discussion focused on 2120 mobile dunes, 2130 fixed dunes and 2190 dune slacks. The workshop, co-chaired by Jean Louis Herrier, identified, as priorities, the large scale loss of natural habitat, interference with natural dynamics and the lack of an integrated approach. These priorities were endorsed at the Atlantic Seminar held in Bergen in December 2012. Several recommendations were set down as conclusions from the Atlantic workshop and seminar discussions on dunes. Communication and awareness raising activities were identified with a proposal to create a new expert network of government agencies responsible for conservation policy and management of dune sites in all EU Member States. 2. Challenges The challenges to be discussed in the workshop are linked at the high level to the EU Biodiversity Strategy 20204 Target 1 ‘full implementation of the nature directives to protect biodiversity’. Whilst the situation in the Netherlands is looking more positive with biodiversity loss generally halted, an 18 year Integrated Approach to Nitrogen set to begin in 2015 and a €3 billion funding programme outlined for 2014-2021, the situation in other Member States continues to decline. Meeting challenges for Science, Communication and Best Practice all depend on effective networking. What are the key issues we should address in the next 10 years? Science There is a need for more cross-boundary exchange on Member State definitions of FCS, survey methodologies and N-thresholds. There seems to be little common knowledge between Member States, yet we are all bound together in the Atlantic region and at EU level. 3 http://ec.europa.eu/environment/nature/natura2000/seminars_en.htm 4 http://ec.europa.eu/environment/nature/biodiversity/comm2006/2020.htm
- 4. 4 Conservation of dune habitats is challenging the rigid approach of habitat definition in the Habitats Directive. The need to ensure that Natura 2000 policy can accommodate change was highlighted in the Atlantic seminar. Interdisciplinary science can help to address some of the issues (link between coastal policy and encouraging dune growth, dune mobility, processes etc). We need to know whether large scale dune habitat recreation is feasible? Is it sustainable? The recommendations of the Atlantic seminar were to encourage the creation of new dune areas through beach feeding and to encourage sand drift by removal of obsolete infrastructure including forests. Communication Managers need to ‘sell’ their approaches to dynamic dune management to politicians, land use and regulatory sectors and the wider public. Stressing ecosystem services and adaptation to climate change are important points in this communication. Communication is hampered by still well entrenched views about dune stabilisation. The ‘new’ approaches are far from accepted amongst dune managers. There is a need for communication within all dune management sectors (nature conservation, water companies, forestry, local authorities etc). A better understanding of impacts of recreation pressure is needed. In evaluating condition of sites some survey methodologies may still record bare sand as a negative feature whereas in many cases it should be a positive value. Dunes need champions. At present our voice seems relatively quiet. Whilst dunes feature as the habitat group with the lowest number of habitats in favourable condition political attention seems to focus on the larger issues, by area, of wetlands and grasslands. Best Practice There is a need to continue to share best practice through networks (e.g. the Natura 2000 platform) and through dissemination of case studies. As knowledge grows management guidance (e.g. the EC management models5 ) may need to be updated. Best practice should be used as a lever to demonstrate new approaches and solutions across the biogeographical region. A more directed approach to using best practice examples to argue for policy change could be adopted. Networking is essential to develop understanding and cooperation across the region. This will require a stepping up of existing networking activity to address issues which affect the overall target of Favourable Conservation Status at national and regional level. The goal remains valid (e.g. reiterated in the Dutch response to the REFIT consultation) but it may take a long time. To give an example there is a need to develop greater networking with colleagues in France. 5 http://ec.europa.eu/environment/nature/natura2000/management/habitats/models_en.htm
- 5. 5 The overall target of favourable conservation status can only be achieved by concerted efforts. About 75% of the area of habitat across the region would have to be in favourable conservation status to meet the targets. In the calculations the contribution by each Member State matters. For the habitats 2120, 2130 and 2190 France holds by far the greatest area and so efforts by, say Belgium and Netherlands, to reach favourable status would have little impact on the biogeographical region status unless matched by France and other Member States. The poor condition of these habitats in the UK, in particular, is a cause for concern. The table below shows how France has the greatest area of these habitat types. Discussions at the EUCC-France workshop in Merlimont in 2014 showed that there were quite significant differences in opinion about habitat management between France and the Netherlands. Member State Area of 2120 Area of 2130 Area of 2190 Belgium 534 ha 670 ha 47 ha France 10,000 ha 55,000 ha 6,200 ha Ireland 333 ha 7,280 ha 283 ha Netherlands 1,900 ha 16,300 ha 2,700 ha UK 2,225 ha 22,400 ha 1,796 ha A priority for work over the next decade would be to foster better understanding between Member States on the definition of favourable conservation status across the region and of the management approaches being employed. This was one of the actions proposed at the Atlantic seminar in 2102. 3. Opportunities To address the challenges in working towards favourable conservation status for dune habitats there are several routes and opportunities. Continue to engage with the biogeographic seminar process This is the high level route through to the European Commission through the Atlantic region workshops and seminars. Dune habitats were selected for discussion at the first series of meetings in 2012. We need to ensure that dunes remain on the agenda for the next series of meetings in 2016. Whilst the Netherlands hosted the meetings in 2012 it will probably be another Member State in 2016. For the seminars we need to engage with national authorities and to offer expertise and advice to the process. The recommendations and actions arising from the first meetings should be reviewed (volunteers?) and an update report compiled. Would Dutch/ Belgian authorities be willing to lead on this? Ensure that dune restoration and management is highlighted in the Prioritised Action Frameworks All Member States have prepared and submitted Prioritised Action Frameworks for Natura 2000. PAFs are a tool to link the needs of Natura 2000 delivery to national operational programmes. They are a way to unlock EU funding to support national priorities for nature. The prioritised approach should help to attract funding for work on priority habitats (e.g. 2130) or habitats with an unfavourable bad and declining status.
- 6. 6 The inclusion of dune habitats as priorities should be checked across all PAFs for the Atlantic region. This could help develop information programmes targeted at Member States. Secure national and regional funding for conservation work EU funding is an important contribution to restoration and management programmes but, to take the example of the Netherlands it is only expected to contribute c. 10% to the total resource requirement. The funding expected for nature conservation work in the Netherlands for the period 2014-2021 is estimated at c. €3 billion. Of this c. €2.17 billion is from the Dutch government, €455 million from the provinces and €280 million from EU sources. Every effort should be made to secure funding from national and regional sources. National networks, site managers, NGOs etc should help to identify and cost actions. In England, for example, the ‘Improvement Programme for England’s Natura 2000 sites’ estimates that £1.7 billion is required to deliver the Natura 2000 programme identified from Site Improvement Plans. Develop an international scientific programme Opportunities through Horizon 2020 will need to be checked6 . Dune managers need to be guided by the work of dune scientists and it would be highly desirable for a Horizon 2020 project to be constructed to further develop joint research efforts on dune ecology, hydrology and rejuvenation projects. Are there already opportunities within the programme? There could perhaps be opportunities to develop projects within the climate change adaptation theme. But to do this Horizon 2020 may need to be aware of the ‘need’. How can the dune community put forward its case to help open the door for research funding? Do we already have a list of research needs? Prepare a LIFE governance and information project The need for knowledge exchange and communication within and between sectors and groups is highlighted in the report of the Atlantic seminar. LIFE projects in particular are expected to make efforts to disseminate experience and support the Natura 2000 communication platform. Going further, LIFE projects past and present could prepare a submission to the LIFE Governance and Information strand7 . The various ‘hooks’ needed for such an application are already in place, i.e. the needs can be demonstrated, and this meeting could provide a first step. Knowledge transfer was a cross cutting theme at the Atlantic seminar. Practitioners are encouraged to use the Natura 2000 Communication Platform8 (this conference, for example, was advertised on the platform). LIFE projects have a special responsibility should be using the platform to communicate their results for the benefit of all involved in Natura 2000 management. If existing tools are not being used it could weaken any submission for additional funding through LIFE. The Dutch are well placed to take the lead in any knowledge transfer, information and advocacy project. The conference will be an opportunity to see if it would be supported. Continue to deliver large scale restoration projects 6 http://ec.europa.eu/programmes/horizon2020/ 7 http://ec.europa.eu/environment/life/funding/life2014/#governance 8 http://ec.europa.eu/environment/nature/natura2000/platform/index_en.htm
- 7. 7 Traditional LIFE Nature projects should be encouraged where Member States have identified negative trends in habitat structure and function. With no new Dutch projects since 2011 has the run of LIFE projects dried up? The national position seems to be cooling off in relation to large scale restoration projects9 . If so, it is important to report on the work already underway. The four Dutch LIFE projects since 2005 have achieved a huge amount of work for a relatively small injection from the EU- €7.24 million. Large scale projects have started in Wales and opportunities should be assessed throughout the UK. Other Member States should look to Dutch experience in considering rejuvenation and restoration projects. LIFE is likely to increasingly prioritise funding to habitats and species with negative trends so those member States with ‘unfavourable bad and declining ‘ status may be at an advantage in the competition for scarce resources. Further develop the European Dune Network Liverpool Hope University, along with the Coastal & Marine Union (EUCC) has developed a website, newsletter and contact list for the European Dune Network10 . Networking is crucial to the issues addressed above and the current level of activity should be enhanced to develop a strong EU habitat network, in line with what the European Commission would encourage. Parties wishing to offer resources to enable the network(s) to grow need to work together, perhaps through EUCC. Whilst a pan-European network is a long term ambition, a first step might be to seek funding to establish the Atlantic network or the Atlantic/ Continental/ Boreal network (the ABC network) suggested by Luc Geelen. The Atlantic seminar proposed the establishment of an Atlantic platform for information exchange and also an expert-network of governmental agencies competent for conservation policy and the management of dunes in all Member States. There is perhaps now an opportunity to put some life (LIFE?) into these ideas. 9 The Dutch report on REFIT makes the following observation “In 2011, the decision was made to set the objectives in the first generation of management plans to restoration and/or enlargement (if indicated in the designation decision) only if feasible, otherwise the objective should be restricted to conservation”. 10 Existing networks www.eucc.net and http://coast.hope.ac.uk/