Transport Biofuels and Biodiversity
JNCC Position Statement
Issued - November 2007
Key messages
1.
The production and use of biofuels must not be undertaken at the
expense of the environment and society of the EU or any other part
of the world.
2.
JNCC recognises the positive contribution biofuels could
potentially make to reducing greenhouse gas emissions, ensuring
energy security and supporting rural development. However, we are
concerned that without appropriate safeguards, the rapidly growing
biofuel industry and trade – incentivised by the European Union’s
biofuels target – will add another significant pressure to the
environment with damaging consequences for biodiversity, both
within the UK and globally.
3.
JNCC therefore believes that any biofuel policy should as a
minimum:
i. sit within
a policy context that improves energy efficiency and reduces total
energy and transport fuel demand;
ii. deliver
reductions in greenhouse gas emissions of at least 50% compared to
conventional fuels, based on a whole life-cycle carbon
assessment;
iii. fully assess
both the negative and positive environmental impacts of all
aspects of biofuel production and use;
iv. be consistent
with the existing environmental policy framework, and in particular
should not compromise the EU and global commitments to address
biodiversity loss by 2010, and where possible should provide
biodiversity and wider environmental benefits; and
v. consider the
impacts of biofuel production on ecosystem services, and ensure
that production is consistent with the long-term sustainable use of
natural resources and does not exacerbate poverty.
4.
Since the biofuel industry is developing so rapidly, and is moving
ahead of the regulatory framework and the ability to assess
environmental impacts, it is essential that decision-making is
based on the
Precautionary Approach.1
5.
International sustainability criteria must be developed which
encourage sustainably produced biofuels, whilst deterring
environmentally unsustainable production. Such criteria should be
developed ideally at a global level and applied to all biofuel
production and trade.
6.
JNCC supports the UK Government’s and the EU’s efforts to develop
sustainability mechanisms and criteria for
biofuel
production,2 building on existing initiatives for
palm oil, soya and sugarcane.
3
7.
The development of second-generation biofuel technology should be
further encouraged. There must be sufficient research investment to
enable a rapid move away from feedstocks based on food crops to a
broader feedstock base, which is environmentally more sustainable
and ensures greater reductions in greenhouse gas emissions.
Background
8.
Biofuels are defined as solid, liquid or gas fuels derived from
biomass, which can be used for energy generation in three sectors:
transport, electricity generation, and
heating and cooling.4 This position statement refers
solely to transport biofuels, defined as liquid or gaseous
transportation fuels derived from biomass.
5 Biofuels for
transport are a potential renewable alternative to
mineral-oil-based gasoline (petrol), diesel and liquefied petroleum
gas. Transport biofuels are principally bioethanol and biodiesel;
the former currently dominates in terms of global production.
Bioethanol is produced from starch- or sugar-rich crops, including
sugarcane, corn, sugar beet, wheat and sorghum. Biodiesel is made
from oil-rich seeds, such as rapeseed, sunflower, soya, palm,
coconut and jatropha.
6
9.
Although efforts to produce biofuels date back to the early days of
the automobile, they have only recently been recognised as a
serious alternative to fossil fuels. The main drivers behind the
recent interest in biofuels are the current high oil prices and the
desire to be less dependent on mineral oil, energy security,
climate change mitigation (through reduced carbon emissions
compared to conventional fuels), and the development of new
agricultural markets.
10.
Biofuel crops (feedstocks) can undergo various processing
techniques to make them a practical source of energy. The types of
feedstock and processing techniques used are currently understood
in the context of first- and second-generation biofuels. In
general, first-generation biofuels rely on harvestable food crops,
whereas second-generation technology broadens the feedstock base to
include all
plant material,7 from agriculture
(e.g. grasses) and forestry.
11. As a
result of subsidies in many parts of the world, production of
first-generation biofuels is already commercially available and
widely applied using well-established technologies.
Second-generation biofuels are either in development or are in
limited use pending further developments (technical, political or
economic) that will allow wider application and provide
environmental benefits. These benefits include generally greater
reductions in greenhouse gas emissions, reduced land area necessary
for growing the feedstocks, and potentially more extensive
agricultural production, with associated benefits for biodiversity,
and soil and water quality.
12. In
March 2007, European Heads of State and Governments agreed a
conditional minimum target of 10% for the share of biofuels in
overall EU petrol and diesel consumption by 2020, subject to
sustainability of production and commercial availability of
second-generation biofuels.8 The
rapid development of the biofuel industry, the global trade in
biofuels/biomass, and national target setting are currently moving
ahead of the regulatory framework and the ability to assess
environmental impacts. It is therefore essential that there is
debate and sufficient research investment to establish a sound
scientific base to determine how best to use the available biomass
potential, and which energy crops provide the best energy yield to
the least detriment of the environment.
Environmental and social risks
13. JNCC
is concerned that, without appropriate safeguards, the negative
effects on the environment and especially on biodiversity could
outweigh any positive benefits derived from the production and use
of biofuels.
Recent evidence9 demonstrates that
the growing biofuel industry and trade adds another considerable
pressure to the environment, with direct and indirect negative
consequences for biodiversity.
14.
Environmental degradation through biofuel production in the UK,
Europe and globally may occur (and is already occurring in some
parts of the world) through:
i. land use
changes to accommodate energy crop plantations which result in
loss, fragmentation and degradation of valuable habitats
(especially grasslands, forests, wetlands and extensive
agricultural areas) and negative impacts on associated biodiversity
and ecosystem services;
ii.
intensification of agricultural production, i.e. increased use of
agro-chemicals and water resources which leads to biodiversity
loss, water shortages, increased water pollution and
eutrophication, and soil degradation and erosion;
iii. the release of
carbon from natural carbon sinks, such as peatlands and forests,
through land use changes, negating any carbon savings made through
the use of biofuels whilst at the same time increasing overall
global greenhouse gas emissions;
iv. displaced food
production encroaching on valuable habitats (land leakage);
and
v. the unregulated
use of genetically modified feedstocks (outside the EU), which may
be damaging to wildlife, competitively displace native species or
lead to gene flow with native species.
15. There
is considerable variation in the greenhouse gas emissions
associated with different biofuels. Some biofuels even have a
negative greenhouse gas balance when their
full
life-cycle is analysed.10 For example, biodiesel
produced from south-east Asian palm oil grown on drained peatlands
emits five times as much carbon along its
life-cycle as conventional
diesel.11
16. The
draining of tropical peatlands and the clearance of tropical
rainforests is a major source of greenhouse gas emissions. In terms
of climate change mitigation it would be more effective to conserve
and restore forests, peatlands and grasslands. Research has shown
that, for instance, afforestation of an equivalent area of land to
one set aside for energy crop cultivation would sequester two to
nine times more carbon over a 30-year period than the emissions
avoided by the use of
biofuels.12 Thus, some biofuels do
not provide effective climate change mitigation.
17. While
certain forms of biofuel production may provide economic and social
benefits, potential negative consequences include:
i.
displacement of indigenous communities and small-holder farmers who
are dependent on natural resources for their livelihoods;
iii. poor labour
conditions and health and safety risks.
Sustainable production and use of biofuels
18. JNCC
believes that sustainable biofuel production can and must be
achieved by taking into account environmental and social
considerations. It is important that bioenergy production does not
exacerbate existing pressures on biodiversity and on water and soil
resources. National and international biofuel targets must be met
in an environmentally sustainable and socially equitable way, and
incentives to encourage this should be set at levels that will
prevent unsustainable practices.
19. JNCC
recommends that, as a minimum, any measures to support biofuel
production and use should be based on the following
principles:
i. biofuel
policy should be set within an energy framework which as a first
priority seeks to reduce energy and transport fuel demand, and
improves energy efficiency;
ii. the
production and use of biofuels should deliver reductions in
greenhouse gas emissions of at least 50% compared to conventional
fuels, based on a whole life-cycle carbon assessment;
iv. biofuel
production should not lead to the degradation of ecosystem services
and consequent negative impacts on human well-being and the fight
against poverty;
v. further research
should be encouraged into biofuel technology (such as
second-generation) which leads to more efficient production and use
with lower environmental impacts;
vii. biofuel production
should be considered in the context of landscape/ecosystem-scale
land use planning, supported by Strategic Environmental Assessment,
Environmental Impact Assessment and other similar mechanisms at
appropriate scales; and
viii.
the World Trade Organisation should be encouraged to apply
sustainability criteria under its agreements.
20.
Further sustainability safeguards could be achieved through a
pragmatic approach to prioritising support for particular sources
of biofuels:
i. existing
waste sources (e.g. used cooking oil and forestry
by-products);
ii. sources
that will provide a clear net benefit to biodiversity and natural
resources (e.g. extensive cereal production and high-diversity
cropping); and
iii. sources that
will have a net neutral impact on biodiversity and natural
resources (e.g. farming in accordance with minimum environmental
standards).
21. An
assessment must be made as to whether sufficient biofuel feedstocks
to meet current obligations could be sustainably grown within
existing cultivated (forest and agricultural) areas. Other areas
for cultivation must be subject to environmental assessment, and
natural and semi-natural habitat should not be considered for
biofuel production.
JNCC’s role
22. JNCC
is the Government’s statutory adviser on UK and international
biodiversity issues and has an important role in respect of biofuel
production and sustainability. We will provide advice to the UK
Government, the European Commission and to multilateral
environmental agreements (especially the Convention on Biological
Diversity and the UN Framework Convention on Climate Change)
on:
i. the
possible positive and negative impacts of biofuel production on the
environment;
ii. the
effects of transport biofuel obligations on the ability of the UK,
and the wider international community, to meet international
commitments such as significantly reducing the rate of
biodiversity loss by 2010 and other World Summit on
Sustainable Development targets, and achieving the Millennium
Development Goals; and
iii. potential
measures for addressing unsustainable impacts and promoting
sustainable practices, by providing information on environmentally,
socially and economically beneficial solutions to national and
international biofuel production through the development of
internationally applicable sustainability criteria.
23. JNCC
will work with the nature and landscape conservation and
environmental agencies across the UK to develop strong advocacy to
the UK Government and European institutions on the implications of
increased biofuel production on land use in the UK, the EU and
globally. In particular, we will consider the impacts on protected
areas and other features of nature conservation importance (e.g. UK
Biodiversity Action Plan priority habitats and species).
24. We
will support the development of methods and models to assess where
biofuel production is most suited geographically and
environmentally. We will draw on our considerable expertise in the
collection and dissemination of data and information on UK habitats
and species, and on our developing work to collate
biodiversity-relevant information on selected countries beyond the
EU as well as the UK’s ecological ‘footprint’ overseas.
25. JNCC
has long-established and diverse links with multiple partners in
the UK and internationally. We will continue to work with them to
encourage a holistic approach to energy policy and to ensure
climate adaptation and mitigation measures are scientifically sound
and sustainable.
November 2007
For further information, please
contact:
Jessica Magnus
EU Policy Adviser
Tel: 0044 (0) 1733 866 856
Email:
Joint Nature Conservation Committee
The Joint Nature Conservation Committee (JNCC) is the
statutory adviser to Government on UK and international nature
conservation. Its work contributes to maintaining and enriching
biological diversity, conserving geological features and sustaining
natural systems. JNCC delivers the UK and international
responsibilities of the Council for Nature Conservation and
the Countryside (Northern Ireland), the Countryside Council for
Wales, Natural England and Scottish Natural Heritage.
Endnotes
1. The Precautionary Approach was adopted by the UN Conference
on the Environment and Development in Rio de Janeiro in 1992, and
stipulates that in order to protect the environment, a
precautionary approach should be widely applied, meaning that where
there are threats of serious or irreversible damage to the
environment, lack of full scientific certainty should not be used
as a reason for postponing cost-effective measures to prevent
environmental degradation.
2. JNCC in particular supports the UK Government’s
efforts to develop international sustainability criteria through
the Global Bioenergy Partnership (GBEP).
3. Initiatives include the international Roundtable on
Sustainable Palm Oil production (RSPO), the Better Sugarcane
Initiative (Basel initiative), the Roundtable on Responsible Soy
(RTRS) and existing regulatory frameworks such as the Convention on
International Trade in Endangered Species (CITES) and the Forest
Law Enforcement Governance and Trade initiative (FLEGT).
4. The Global Bioenergy Partnership. (2007). Bioenergy:
facts and figures, FAO, Italy. According to the UK’s
Biomass Strategy the use of transport biofuels is the least
cost-effective measure in terms of carbon savings, while biomass
for heating comes out at the top of the hierarchy. DTI/Defra/DfT.
(2007). UK Biomass Strategy, London, UK.
5. JNCC is in the process of developing its Position Statement
on renewable energy and biodiversity which will include a view on
the wider use of biomass.
6. Dufey, A (2006). Biofuels production, trade and
sustainable development: emerging issues, International
Institute for Environment and Development (IIED), London, UK;
Dufey, A., (2007). International trade in biofuels: Good for
development? And good for environment?, An IIED Briefing,
International Institute for Environment and Development (IIED),
London, UK.
7. Often referred to as lignocellulosic matter. This is the
biomass component of plants made up by lignin and cellulose – both
of which are organic compounds found in cell walls.
8. European Council Conclusions, 8-9 March 2007, 7224/1/07 REV
1.
9. See for example: European Environment Agency (EEA) (2007).
How much bioenergy can Europe produce without harming the
environment?, EEA Report No 7/2007; UNEP/WCMC/UNESCO. (2007).
The last stand of the orang-utan, state of emergency: Illegal
logging, fire and palm oil in Indonesia’s national parks,
Rapid Response Assessment, Norway; Friends of the Earth (2005).
The oil for ape scandal, how palm oil is threatening the
orang-utan, Research Report, London, UK.
10. Full life-cycle analyses take account of land use changes
associated with biofuel production, cultivation practices,
feedstock type, processing methods, transport of biofuels and their
feedstocks, and use in vehicles.
11. Global Canopy Programme (2007).
Forests first in the
fight against climate change, the VivoCarbon Initiative,
Oxford, UK; Hooijer, A.
et al (2006). PEAT-CO2,
Assessment of CO2 emissions from drained peatlands in SE
Asia, Delft Hydraulics Report Q3943, The Netherlands; see
also:
Biofuelswatch. (2007). Biofuels
threaten to accelerate global warming, Wetlands
International (2006).
Factsheet: Tropical peatswamp destruction
fuels climate change, The Netherlands.
Peatlands cover just over 3% of the world’s land area but are
the world’s largest terrestrial carbon sink. It has been estimated
that tropical peatlands in south-east Asia store approximately 42
billion tonnes of carbon. When peatlands are drained, cleared and
burned for cultivation, there are two sources of emissions; firstly
from peat oxidation; and secondly from fire. Recent research
estimates that 27% of palm oil plantations in Indonesia are planted
on drained tropical peatlands. The drainage, clearing and burning
of tropical peatlands in south-east Asia causes the emission of 2
billion tonnes of CO2 annually, which equates to 8% of global
annual greenhouse gas emissions. Currently only approximately 3% of
imported palm oil is used for biodiesel production in Europe (the
remaining 97% is used in the food and chemical industry). However,
this new market has the potential to dramatically increase global
demand for palm oil, which will further fuel the destruction of
valuable habitats in the countries in which it is produced.
12. Righelato R. and Spracklen, D V (2007). Carbon
mitigation by biofuels or saving and restoring forests?
Science, Vol. 317, 17 August 2007, p. 902.
13. A joint OECD/FAO report predicts that food prices for
cereals, sugar, oilseeds and vegetable oils will rise between 20%
and 50% by 2016. OECD-FAO (2007). Agricultural outlook
2007-2016, Paris, France.
14. The existing EU environmental policy framework also
includes: achieving favourable conservation status according to the
Habitats Directive, achieving good ecological status according to
the Water Framework Directive, and the targets and actions of the
Biodiversity Communication and Action Plan.
15. The EU target agreed by EU Heads of State and Governments
at the Göteborg European Council (15/16 June 2001) is ‘that
biodiversity decline should be halted with the aim of reaching this
objective by 2010’(see Presidency Conclusions). The international
target was adopted by governments at the World Summit on
Sustainable Development in Johannesburg in 2002, who agreed on
‘achievement by 2010 of a significant reduction in the current rate
of loss of biological diversity’.