Biodiversity offsets in EIA: Getting the timing right

Major developments can result in significant impacts on biodiversity, which the mandated process of environmental impact assessment (EIA) aims to mitigate. There has been a recent move towards the application of biodiversity offsets as a last-resort, compensatory measure when options at the earlier stages in the mitigation hierarchy of avoidance, minimisation and restoration have been exhausted. Guidance on biodiversity offset planning available in different jurisdictions, however, demonstrates a lack of consensus about when biodiversity offsets should be formally introduced into the EIA process, and previous research has highlighted the perceived risks associated with commencing detailed offset planning too early as well as too late. Here we explore the implications of how and when offset considerations are introduced within EIA. We do this by reviewing and synthesising best practice principles for biodiversity offsets from the international literature, and then exploring how and when offsets were considered in a number of case studies that draw on documentary analysis and interviews with key role players. Our case studies are based in South Africa where regional guidance on offsets exists, supporting a body of practice. The research finds that the timing of involvement of biodiversity specialists is critical in determining whether considering offsets early will reap the combined benefits of: transparency and stakeholder engagement; guaranteeing the offset before development commences; and offset enforceability without jeopardising adherence to the mitigation hierarchy. Bypassing the mitigation hierarchy was perceived as allowing proponents to ‘buy’ approvals for developments that might otherwise be found unacceptable, although there was no evidence for this in any of the case studies evaluated. Although some of our findings may be specific to the South African context, the approach taken using international best practice principles for biodiversity offsets as a benchmark can equally be applied to evaluate practice in other EIA systems. We confirm the utility of this approach by evaluating the recently released South African Draft National Biodiversity Offset Policy for its potential to support best practice biodiversity offsets in EIA.     

Biodiversity and bird surveys in Finnish environmental impact assessments and follow-up monitoring

Environmental Impact Assessments (EIAs) that are applied in the planning phases of large land-use and construction projects are aimed at aiding decision-making and mitigating significant environmental impacts. In light of the global biodiversity crisis, conducting high-quality biodiversity impact assessments is important, as biodiversity information, among other factors, has the potential to influence how projects will be implemented in the end. We investigated the biodiversity and bird surveys conducted and the number of bird species of conservation concern in peat extraction and wind farm projects to which an EIA was applied to in 1995–2016 in Finland and compared whether these factors differed between the project types and between implemented and unimplemented projects. We also studied the availability of follow-up monitoring data of biodiversity impacts within the two project types. The number of nationally threatened breeding birds was significantly lower in implemented than in unimplemented peat extraction projects. The overall probability of being implemented was significantly negatively associated with the year the EIA began for both project types. All permitted peat extraction projects and 22% of wind farm projects conducted post-construction biodiversity monitoring; however, only some projects enabled before-after comparisons. Our results are in line with earlier findings that demonstrate the difficulty of showing the direct impacts of biodiversity information on EIA decision-making and to what extent it is related to project approval or rejection. The role of follow-up monitoring in the EIA and project development could also be strengthened.     

The effectiveness of the mitigation hierarchy in environmental impact studies on marine ecosystems: A case study in France

While the development of maritime economic activity is increasingly encouraged, the consideration of its impacts constitutes a real challenge. The limitations of the implementation of the mitigation hierarchy have been widely discussed in scientific literature, yet data on marine biodiversity offset practices remains scarce. In this study, we investigated the use of Environmental Impact Assessments (EIAs) as suitable instruments to achieve the No Net Loss objective. Drawing on a French approach developed for the initial assessment of the European Marine Strategy Framework Directive, we examined the pressures and impacts related to various marine development projects and the effectiveness of the mitigation hierarchy in limiting these. An analysis of 55 recent French environmental impact studies showed that only 7% of the proposed measures had the aim of offsetting predicted degradation of sites of remarkable biodiversity. This can be partly explained by the lack of a clear definition of ‘significant impact’, which varies greatly depending on what is impacted, in turn allowing socio-economic activities to benefit more easily from offset. Furthermore, offsetting does not always constitute the final step of the mitigation hierarchy, highlighting the need to reinforce avoidance and reduction steps. Although we acknowledge the role of EIA in mitigating the negative impacts of development projects, synergies with other European marine environmental policies such as the Marine Strategy Framework Directive (MSFD) and the Maritime Spatial Planning directive (MSP) should be developed in order to improve current practices.     

Application of network method as a tool for integrating biodiversity values in Environmental Impact Assessment

Highway construction or expansion projects are among major activities of economic development especially in developing countries. However, road development consistently can lead to major damages to the environment, including habitat fragmentation and ecological instabilities and a considerable threat to fauna and flora. At this point, Environmental Impact Assessment (EIA) in road developments is needed to address and evaluate the ecological issues in decision-making. The object of this study is to strengthen the consideration of ecological issues, i.e., biodiversity in the existing EIA tools. This paper regards a network method as a means to make informed planning decisions by the lessons from a case study. The results indicate that network method is well suited to be applied in ecological impacts assessment. However, some limitations such as complexity and time consumed make casual networks unpopular. Also, impact of traffic noise on acoustic communication (wildlife and human) was performed. It has been shown that sound level for human is much higher than admissible standards. Finally, the study expresses some mitigation measures to improve the acquisition for environmental impact assessment process.     

Taking an environmental ethics perspective to understand what we should expect from EIA in terms of biodiversity protection

As a globally mandated decision-support tool, Environmental Impact Assessment (EIA) has the potential to contribute to the protection of biodiversity, which is increasingly under threat because of human activities. Concern over its ability to do this, however, has led to the addition of trade-off rules, Ecosystem Services Assessment (ESA), and biodiversity offsets. But given that EIA is set in a political decision-making context, what is reasonable to expect of EIA? In this paper we seek to explore what level of biodiversity protection we can expect EIA to support (and therefore whether these additions are worthwhile). Our point of departure is that EIA supports its political context and associated societal goals, and those goals typically (explicitly or implicitly) reflect some form of sustainable development. Given that the appropriate level of biodiversity protection is a moral consideration, we take an environmental ethics perspective to explain how different levels of protection are associated with different ethical positions on a spectrum from anthropocentrism (where only humans have intrinsic rights) through to ecocentrism (where all individuals of all species have intrinsic rights). We then investigate how different sustainable development discourses, one economic (on a spectrum from weak to strong sustainability) and one ecological (on a spectrum from shallow to deep ecology) map against the environmental ethics spectrum. We find that the economic discourse on sustainable development, which tends to prevail in political decision-making, is heavily anthropocentric, whereas an ecological discourse has some potential to deliver ecocentrism, but only where a deep ecology interpretation is adopted. We then show that the practise of EIA (with or without the addition of other approaches) maps against, and is bounded by, an economic discourse on sustainable development. The reality is, therefore, that EIA can do no more than contribute to delaying incremental biodiversity loss. If EIA were legislated to protect biodiversity using a deep ecology discourse, then only brownfield development would be possible.     

Guidelines for the analysis of the inclusion of biodiversity in Environmental Impact Statements

Article 14 of the Convention on Biological Diversity (CBD) calls for the inclusion of impacts on biodiversity in Environmental Impact Assessment (EIA), which is a significant instrument for site-specific impact prediction. In view of the shortcomings reported for Environmental Impact Statements (EISs), guidelines with indicators could improve the consideration of biological diversity in EISs. This study aims to establish guidelines for the analysis of the inclusion of biodiversity in EISs using a systematic approach based on scientific papers, CBD, and a survey with 43 EIA practitioners from universities, government agencies, environmental consulting companies, business segment, and the third sector. The guidelines comprise 60 indicators arranged into eight categories about the project's characteristics, methods, baseline, impact assessment, alternatives, as well as mitigation, compensation, and monitoring measures. The guidelines also include the levels of biological diversity (ecosystem, species, and genetic diversity), the three elements of biodiversity (composition, structure, and key processes), and the main anthropogenic threats. Thus, the guidelines represent a methodological contribution to EIA that could support decision making and future systematic reviews of EISs.     

Evaluating the effectiveness of integrating the environmental impact assessment and mine closure planning processes

Integration of environmental assessment tools has long been promoted as best practice with the potential to bring environmental benefits. In this research, we set out to evaluate the effectiveness of integration of environmental impact assessment (EIA) and mine closure planning using a simple effectiveness criteria framework, applied to current regulatory provisions and practices in Western Australia. The effectiveness criteria for the integration of EIA and mine closure planning, compiled from existing reviews of integration and effectiveness concepts in the impact assessment literature, considers procedural, transactive, substantive effectiveness and overall process legitimacy. Data analysis consisted of a literature review, examination of regulatory and guidance material and interviews with 12 experienced EIA and/or mine closure practitioners with an industry or regulatory focus. The results provide strong, positive examples of procedural, transactive and substantive effectiveness due to the integrated framework. These include behavioural changes, improved knowledge and learning and better provision for closure at an early stage of mine planning. A trajectory of improvement was noted by everybody interviewed. However, a key driver for effectiveness is the enthusiasm of key facilitations, and tension exists due to the different motivations of the two lead regulatory agencies which poses a challenge for the integrated framework. While it can reasonably be argued that the effectiveness of early mine closure planning cannot yet be realised, due to a paucity of completely closed mines in Australia this study nevertheless demonstrates clear benefits and opportunities result from early stage integration of EIA with mine closure planning.     

Biodiversity and ecosystem services in strategic environmental assessment: An evaluation of six Australian cases

Strategic environmental assessment (SEA) aims to provide a sound theoretical basis on which to plan for biodiversity and ecosystem services (ES). With the multi-purpose and increasing use of SEA worldwide, it is timely to evaluate the effectiveness of SEA practice in integrating biodiversity and ES considerations. Here, we derive criteria from the International Best Practice Principles on Biodiversity and Ecosystem Services in Impact Assessment to evaluate six Australian SEAs conducted for urban development plans. We use qualitative and quantitative content analysis to examine the endorsed SEA reports. We identify and analyse text references related to the evaluation criteria and use word counting of keywords to supplement and cross-check the validity of our findings. Four significant results emerge from our analysis. First, while goals to achieve no net loss (NNL) or net gain outcomes for biodiversity are mentioned in all case studies, their poor specification may limit their effectiveness. Second, there is limited integration of ES considerations into the SEA reports, limiting the potential advantages that such an approach could provide. Third, offsetting is the most documented type of mitigation measure, potentially signalling a lack of evidence in implementing early steps of the mitigation hierarchy, including avoidance. This could be explained by the low level of integration of biodiversity and ES considerations from the early stages in the planning process, where there is more flexibility to apply such steps. Fourth, biodiversity management systems and follow-up activities lack detailed information to judge whether they will be useful to demonstrate NNL outcomes. Based on these findings, we present recommendations for enhancing the integration of biodiversity and ES considerations in SEAs. Our approach provides a general framework that can be applied to evaluate SEAs elsewhere in the world from a biodiversity and ES conservation perspective.     

Quantifying impact reduction due to avoidance,minimization and restoration for a natural gas pipeline in the Peruvian Andes

We present monitoring methods and quantitative biodiversity data to document components of the mitigation hierarchy. We estimated avoidance, minimization, restoration and impact reduction in quality hectares for the 25 m wide right of way of a 408 km natural gas buried pipeline that crosses 14 Ecological Landscape Units (ELUs) in the tropical Andes of Peru. We found that applying the mitigation hierarchy as part of a comprehensive biodiversity action plan substantially reduced impacts on biodiversity in all habitats studied. Avoidance and right of way minimization contributed to significant impact reduction. We quantified impact reduction during construction and operation on the right of way of the pipeline over a five-year period and found that restoration was the greatest contributor to reducing impacts. We documented that most ELUs have a positive restoration trajectory. We also documented how monitoring over large scale spatial scales, in combination with site-specific monitoring, generated data for management to determine restoration priorities and impact mitigation. A biodiversity action plan that incorporated the mitigation hierarchy and a science-based biodiversity monitoring and assessment program contributed to biodiversity management of the project and played an important role in minimizing and managing impacts.     

To what extent are threatened plant species considered in impact assessment decision-making? Insights from southeastern Brazil

The world's declining plant biodiversity depends on the efficacy of many policy tools, including Environmental Impact Assessment (EIA). While scholars have long been trying to understand how biodiversity information affects EIA decision-making, very few studies have addressed the specific challenges associated with threatened plant species. Based on content analysis of 83 EIA processes that proposed vegetation removals in the southeastern Brazilian state of Minas Gerais, this study evaluated the extent to which threatened plant species were considered in decision-making. The study found that the developers of 31 projects (37% of the 83 analyzed EIA projects) disclosed the occurrence of threatened plant species in the potentially affected areas. The detailed content analysis of their respective Environmental Impact Statement (EIS) review reports revealed that the majority of the identified impacts and respective compensation programs targeted tree habits, and under a variety of rationales. Developers' proposed compensation rates of impacted tree species varied from 1:1 to 50:1. The reviewing process reported issues related mostly to the baseline conditions. Overall, the study found that EIA, in Minas Gerais state, has been functioning mainly as a diagnostic and compensation tool for the removal of tree species. The study calls for improvements in existing legislation and the development of technical guidance and capacity-building programs for EIA stakeholders.     

Regulators' perceptions of environmental impact assessment (EIA) benefits in a sustainable development context

The costs of conducting Environmental Impact Assessment (EIA) are well known. Yet the benefits of EIA are much more intangible, leading to a situation where some question its value as the tool of choice for informing decision makers of the sustainability consequences of their actions. Exponents of EIA have thus called for more research on the benefits of EIA in order to provide better evidence on its costs versus benefits, and therefore its value as a decision-making tool. This paper contributes to this evidence by exploring the perceived potential benefits and perceived realised benefits of EIA from a regulators' perspective in the context of sustainable development. Using South Africa as a case study, one third of all the officials responsible for EIA review and decision-making (referred to in this paper as the “regulator”) were surveyed to identify their perceptions of the benefits of EIA, and their ideas on how to bridge the gap between potential benefits and realised benefits. The paper contributes suggestions for the analysis of benefits in a sustainable development context, and identifies some additional benefits currently missing from the literature. In a South African context, the key potential and realised benefits as perceived by regulators are the protection of biodiversity, public participation, access to information, mitigation of environmental impacts, and legal compliance and enforcement.     

Current legal regime for environmental impact assessment in areas beyond national jurisdiction and its future approaches

In 2004, the United Nations launched an Ad Hoc Open-ended Informal Working Group to study issues relating to the conservation and sustainable use of marine biological diversity in areas beyond national jurisdiction. Since then, the topic of governing marine areas beyond national jurisdiction (ABNJ) has been widely discussed by politicians, policy makers and scholars. As one of management tools to protect marine biodiversity in ABNJ, environmental impact assessment (EIA) has been widely recognized and accepted by the international community, however, the biggest challenge is how to effectively implement the EIA regime in ABNJ. This paper explores the impacts of anthropogenic activities in ABNJ on marine ecosystems, reviews the existing legal regime for EIA in ABNJ and discusses possible measures to strengthen the implementation of EIA in ABNJ.     

Limitations of habitats as biodiversity surrogates for conservation planning in estuaries

Increasing pressures on global biodiversity and lack of data on the number and abundance of species have motivated conservation planners and researchers to use more readily available information as proxies or surrogates for biodiversity. “Habitat” is one of the most frequently used surrogates but its assumed value in marine conservation planning is not often tested. The present study developed and tested three alternative habitat classification schemes of increasing complexity for a large estuary in south-east Australia and tested their effectiveness in predicting spatial variation in macroinvertebrate biodiversity and selecting estuarine protected areas to represent species. The three habitat classification schemes were: (1) broad-scale habitats (e.g., mangroves and seagrass), (2) subdivision of each broad-scale habitat by a suite of environmental variables that varied significantly throughout the estuary, and (3) subdivision of each broad-scale habitat by the subset of environmental variables that best explained spatial variation in macroinvertebrate biodiversity. Macroinvertebrate assemblages differed significantly among the habitats in each classification scheme. For each classification scheme, habitat richness was significantly correlated with species richness, total density of macroinvertebrates, assemblage dissimilarity, and summed irreplaceability. However, in a reserve selection process designed to represent examples of each habitat, no habitat classification scheme represented species significantly better than a random selection of sites. Habitat classification schemes may represent variation in estuarine biodiversity; however, the results of this study suggest they are inefficient in designing representative networks of estuarine protected areas.     

A multi-scale qualitative approach to assess the impact of urbanization on natural habitats and their connectivity

Habitat loss and fragmentation are often concurrent to land conversion and urbanization. Simple application of GIS-based landscape pattern indicators may be not sufficient to support meaningful biodiversity impact assessment. A review of the literature reveals that habitat definition and habitat fragmentation are frequently inadequately considered in environmental assessment, notwithstanding the increasing number of tools and approaches reported in the landscape ecology literature.This paper presents an approach for assessing impacts on habitats on a local scale, where availability of species data is often limited, developed for an alpine valley in northern Italy. The perspective of the methodology is multiple scale and species-oriented, and provides both qualitative and quantitative definitions of impact significance. A qualitative decision model is used to assess ecological values in order to support land-use decisions at the local level. Building on recent studies in the same region, the methodology integrates various approaches, such as landscape graphs, object-oriented rule-based habitat assessment and expert knowledge.The results provide insights into future habitat loss and fragmentation caused by land-use changes, and aim at supporting decision-making in planning and suggesting possible ecological compensation.     

A Systems Approach to Biodiversity Conservation Planning

With a recent media-fueled transition from a scientific to a political perspective, biodiversity has become an issue of ethics and ensuing values, beyond its traditional ecological roots. More fundamentally, the traditional perspective of biodiversity is being challenged by the emergence of a post-normal or systems-based approach to science. A systems-based perspective of living systems rests on the central tenets of complexity and uncertainty, and necessitates flexibility, anticipation and adaptation rather than prediction and control in conservation planning and management. What are the implications of this new perspective? This paper examines these challenges in the context of biodiversity conservation planning. The new perspectives of biodiversity are identified and explored, and the emergence of a new ecological context for biodiversity conservation is discussed. From the analysis, the challenges and implications for conservation planning are considered, and a systems-based or post-normal approach to conservation planning and management is proposed. In light of the new perspectives for biodiversity, conservation planning and management approaches should ultimately reflect the essence of living systems: they should be diverse, adaptive, and self-organizing, accepting the ecological realities of change.     

Designing a graph-based approach to landscape ecological assessment of linear infrastructures

The development of major linear infrastructures contributes to landscape fragmentation and impacts natural habitats and biodiversity in various ways. To anticipate and minimize such impacts, landscape planning needs to be capable of effective strategic environmental assessment (SEA) and of supporting environmental impact assessment (EIA) decisions. To this end, species distribution models (SDMs) are an effective way of making predictive maps of the presence of a given species. In this paper, we propose to combine SDMs and graph-based representation of landscape networks to integrate the potential long-distance effect of infrastructures on species distribution. A diachronic approach, comparing distribution before and after the linear infrastructure is constructed, leads to the design of a species distribution assessment (SDA), taking into account population isolation. The SDA makes it possible (1) to estimate the local variation in probability of presence and (2) to characterize the impact of the infrastructure in terms of global variation in presence and of distance of disturbance. The method is illustrated by assessing the impact of the construction of a high-speed railway line on the distribution of several virtual species in Franche-Comté (France). The study shows the capacity of the SDA to characterize the impact of a linear infrastructure either as a research concern or as a spatial planning challenge. SDAs could be helpful in deciding among several scenarios for linear infrastructure routes or for the location of mitigation measures.     

Ecosystem services inclusive strategic environmental assessment

A consistent framework to address biodiversity, ecosystem services and their societal values is now established with the MEA (Millennium Ecosystem Assessment) and the TEEB (The Economics of Ecosystems and Biodiversity). These and other studies point to the urgency in considering actions that can revert the process of degradation of biodiversity values and its supporting ecosystems. Safeguarding livelihoods is a common objective in ecosystem approaches as well as in strategic environmental assessment (SEA) effort to promote sustainability. Human activities, as direct and indirect development drivers, are crucial targets for SEA to have a strategic contribution in influencing priorities, by showing strategic reasons for change. Rather than keeping only a control and mitigation role on the assessment of effects and impacts of development on the environment, SEA has the capacity to understand the decisional and development context and to drive development opportunities into pathways that are inclusive of environmental and sustainability priorities. The development opportunities provided by ecosystem services can be explored in SEA through strategic approaches to enhance the value of the benefits and avoid the negative impact of human actions on ecosystem services. SENSU, a research team at IST-Portugal, advocates the strategic-based and collaborative oriented approach in SEA based on Partidario (2007) SEA framework of critical decision factors (CDF). A methodology to allow the consideration of ecosystem services in SEA is being developed and tested. This paper will share research advances on how ecosystem services can be incorporated into SEA as a fundamental component of strategic assessment in support of decision-making.     

EIA and green procurement: Opportunities for strengthening their coordination

EIA plays an important role in enhancing the environmental performance of the construction sector. In recent years, the construction sector has been developing green procurement practices. Green procurement is a process that involves the incorporation of environmental requirements during the procurement of services and products. However, discussion on green procurement is rarely seen during the EIA phase. This paper addresses possible opportunities for improving the coordination between EIA and green procurement within the construction sector. The linking of EIA and green procurement has been postulated in the paper as an aid to strengthen the coordination between project planning and implementation. The paper is based on a literature review and is an outcome of an on-going research project concerning EIA and green procurement. This study indicated that it would be appropriate to introduce green procurement during the pre-decision phase of an EIA. In the present study, the opportunities for integrating green procurement at the stage of EIA are associated with the integration of project planning and EIA. Future research should investigate the mechanism through which the link can be established.     

Environmental economic impact assessment in China: Problems and prospects

The use of economic valuation methods to assess environmental impacts of projects and policies has grown considerably in recent years. However, environmental valuation appears to have developed independently of regulations and practice of environmental impact assessment (EIA), despite its potential benefits to the EIA process. Environmental valuation may be useful in judging significance of impacts, determining mitigation level, comparing alternatives and generally enabling a more objective analysis of tradeoffs. In China, laws and regulations require the use of environmental valuation in EIA, but current practice lags far behind. This paper assesses the problems and prospects of introducing environmental valuation into the EIA process in China. We conduct four case studies of environmental economic impact assessment (EEIA), three of which are based on environmental impact statements of construction projects (a power plant, a wastewater treatment plant and a road construction project) and one for a regional pollution problem (wastewater irrigation). The paper demonstrates the potential usefulness of environmental valuation but also discusses several challenges to the introduction and wider use of EEIA, many of which are likely to be of relevance far beyond the Chinese context. The paper closes with suggesting some initial core elements of an EEIA guideline.