Countries urged to ramp up “insufficient” nature policies at COP17

A first set of biodiversity plans filed by countries to reverse nature loss are “insufficient” to meet this decade’s global targets, including a landmark goal to protect at least 30% of the world’s land and marine ecosystems by 2030, a landmark UN report warned on Thursday.

The State of Biodiversity Action, put together by a panel of technical experts for the UN Convention on Biological Diversity (CBD), was released in Yerevan, ahead of the COP17 nature talks starting on Monday in the Armenian capital.

Over the next two weeks, governments will for the first time take stock of progress towards the Global Biodiversity Framework (GBF) agreed in 2022 – a set of 23 targets also known as the “Paris Agreement for nature” – and will decide on policy guidelines for ramping up ambition before the 2030 deadline. The UN report will be the main basis for these negotiations.

At a press conference in Armenia, UN Secretary-General António Guterres highlighted that, while there has been some progress on the GBF, the “bad news” is that less than half of country plans are on track to meet its targets.

If current commitments are met by the end of the decade, only 26% of land ecosystems and 12% of marine ecosystems will be protected – falling “real short” of the 30% target agreed in Montreal in 2022, Guterres said. “The war on nature has not yet ended,” he added.

UN Environment chief Inger Andersen said the report “sets the tone for the focus, ambition and urgent action we need to deliver” in Armenia, including by reducing subsidies that harm nature and mobilising new finance for biodiversity. “All leaders and all negotiators must respond to these findings,” she emphasised.

Andersen added that climate change amplifies threats to biodiversity, which makes protection all the more important as global warming is now almost certain to rise above a key threshold. “Exceedence of 1.5C increases the likelihood of forest diebacks, phenological shifts, warming oceans that become more inhospitable to species, irreversible tipping points and so much more,” she said.

Progress on land but ocean lags behind

The report shows that if countries meet all the biodiversity targets in their plans, this would protect about 27% of the world’s land and sea by 2030, a fivefold increase in the span of ten years.

Progress has been uneven, with most conservation efforts focused on terrestrial ecosystems. The report suggests that currently about 19% of land ecosystems are protected, up two percentage points from 2020, which UN authorities welcomed but said is not a fast enough pace.

However, the real gap is at sea, where only about 10% of the global ocean has some sort of protection. Coastal areas under national jurisdiction have done better, as currently 23% of this marine territory is protected, but the report shows most of the deep ocean is not.

Brian O’Donnell, director of Campaign for Nature, an advocacy group, said the new High Seas Treaty – which entered into force this year and will allow for the creation of Marine Protected Areas in the deep ocean – represents an opportunity, as only about 1.5% is under protection so far.

A group of environmental NGOs including WWF and Bloomberg Philanthropies has issued a call for governments to scale up ocean conservation and to designate $16 billion annually for marine protection measures, up from $1.8bn now.

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Some countries did not set a conservation target at all for both land and sea, the report says, blaming technical challenges like how to account for overlapping protected areas, difficulty recognising protections for private land and land-accounting methodologies changing over time.

A separate report by Campaign for Nature suggests that the 30×30 goal could still be met with “increased ambition and commitment”, and says that around 50 countries have already protected about 30% of their land.

A group of environmental NGOs has warned that, beyond the 30% headline figure, protected areas need to be “high integrity” and recognise the stewardship of local communities and Indigenous peoples.

Developing countries call for finance

Rich countries will arrive at COP17 with shrinking aid budgets and geopolitical preoccupations – yet they will likely hear the same plea they’ve heard for the past few years: stepping up commitments will require finance.

A submission by African countries in August said the “implementation gap” has at its core a shortfall in the provision of funds, and that bridging it will require predictable and accessible finance. 

Pacific island nations launched a similar call, arguing there is “a treaty obligation” that developing countries, including themselves, will effectively implement commitments depending on the finance and technology made available by developed nations.

To close this gap, the EU made a proposal at preliminary talks in Nairobi in August to expand the base of donors so that richer developing countries could voluntarily assume donor responsibilities. Saudi Arabia and Qatar rejected the idea, while China said this should not weaken the responsibility of developed nations.

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So far, wealthy governments have missed a target to provide $20bn per year in international public finance for nature protection by 2025, reaching only about $16bn per year from 2023 to 2025, according to an OECD report. By 2030, the GBF aims for developed countries to directly transfer $30bn per year, and mobilise $200bn from all sources.

The UN report released on Thursday shows even slower progress in redirecting harmful subsidies such as those which encourage the overuse of fertilisers and the production and consumption of new fossil fuels, and below-market fees that encourage overfishing. UN Environment estimates that for every dollar spent protecting nature, $30 goes on destroying it.

UN biodiversity chief Astrid Schomaker told journalists in Yerevan that “if you hear there is no finance, please do not believe it” because economies are continuing to grow. “It is being spent on activities that harm the economy rather than those that work with nature and sustain life on this planet,” she said.

Guterres said developed countries tend to say they are grappling with budget constraints due to increased defence expenditure, which “in my view does not justify a reduction” in international aid. He added that existing resources can be multiplied if they are used to mobilise private capital.

Campaigners, companies and the Armenian government want to shift the needle on this situation at COP17 by highlighting how positive subsidies help restore biodiversity. They will launch a flagship call to action that will be taken forward by countries and groups working to reform damaging incentives.

Global review: the main act

The Global Review of Collective Progress – a bit like the Global Stocktake for climate action – is set to be the most important outcome from COP17, and it will be the first time this process unfolds at the biodiversity talks. The actions decided in Yerevan will respond to the gaps outlined in the State of Biodiversity Action report and determine whether countries can turn the tide of biodiversity loss this decade.

Overall, the report shows that while countries have taken action to address all 23 targets in the GBF, none “present a fully positive picture”. A target to strengthen the resilience of ecosystems to climate impacts is the only one with high relative progress, the report says, as government have already made effective interventions that show “a positive trend”.

The report assessed each country’s national targets, which define their contribution to the global goals, as well as their separate National Biodiversity Strategy and Action Plans (NBSAPs) outlining how they will achieve the national targets.

But it does not paint a complete picture, since at the cut-off date, only 89 NBSAPs and national targets from 162 countries had been submitted, leaving out a couple of dozen plans that arrived late. Pacific island nations said this might undercount commitments.

Many of those lacking an NBSAP are biodiversity-rich developing countries, which say they need financial and technical support to fully develop these plans. Some large nations pending an NBSAP include South Africa, Bolivia and Russia.

Since the GBF was agreed in 2022, governments have mostly focused on developing their biodiversity targets and plans, while the lion’s share of implementation is expected to happen towards the end of the decade, according to UN biodiversity chief Schomaker.

But O’Donnell said “accelerated political ambition” is still needed to improve commitments and translate them into effective protection on the ground or at sea. 

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