Biodiversity and conservation: International commitments and UK government policy

Approximate read time: 20 minutes

This briefing has been prepared for the 13 March 2025 question for short debate in the House of Lords:

Lord Grayling (Conservative) to ask His Majesty’s Government what is their strategy for biodiversity and conservation.

1. Global biodiversity

Biodiversity refers to the “variety of life on Earth at all its levels, from genes to ecosystems, and can encompass the evolutionary, ecological, and cultural processes that sustain life”.^[1] The World Wide Fund for Nature (WWF) and the Zoological Society of London (ZSL) describe it as the “heartbeat of our planet”. They explain that biodiversity is crucial to human life:

[Biodiversity] directly and indirectly, sustains human life—from the food we eat to the fuel and medicines we need for survival, from clean air and water to a stable climate. Our economies, our societies, our civilizations: biodiversity underpins them all.^[2]

The organisations have warned of increasing global biodiversity loss, primarily driven by human food systems (for example, through intensive farming and the expansion of agricultural land).^[3] Other threats to biodiversity include the overexploitation of natural resources, human population trends, invasive species, disease, governance issues, pollution and climate change.^[4]

The International Union for Conservation of Nature (IUCN) estimates that “80% of ecological processes that form the foundation for life on Earth are impacted by climate change”.^[5]

The Royal Society has highlighted that increasing temperatures impact sea and land life. Also, it says climate change has contributed to worsening extreme weather events, causing wildfires or flooding, for example, and damage to the natural environment.^[6]

The WWF and ZSL’s 2024 ‘Living planet report’ attempted to measure the scale of biodiversity and nature loss.^[7] It found substantial losses in wildlife populations over the last 50 years (up to 2020), with the impact particularly bad in Latin America and the Caribbean, Africa, and Asia and the Pacific. Losses were less bad in Europe and North America; however, the report put this down to the impact having previously been felt in these regions, as well as more recent conservation efforts:

Over the past 50 years (1970–2020), the average size of monitored wildlife populations has shrunk by 73%, as measured by the Living Planet Index (LPI). This is based on almost 35,000 population trends and 5,495 species of amphibians, birds, fish, mammals and reptiles. Freshwater populations have suffered the heaviest declines, falling by 85%, followed by terrestrial (69%) and marine populations (56%).^[8]

The report stressed that these declines threaten the resilience and functioning of ecosystems, undermining the benefits these ecosystems bring to humans.^[9]

The report also warned that the world is nearing certain “tipping points” beyond which “the change becomes self-perpetuating, resulting in substantial, often abrupt and potentially irreversible change”. Examples include:

• mass die-off of coral reefs which would destroy fisheries and storm protection for hundreds of millions of people living on the coasts
• the Amazon rainforest tipping point which would release tonnes of carbon into the atmosphere and disrupt global weather patterns
• the melting of the Greenland and West Antarctic ice sheets which would cause many metres of sea level rise, while large-scale thawing of permafrost would trigger vast emissions of carbon dioxide and methane^[10]

2. UK biodiversity

The 2023 ‘State of nature report’ described the UK as one of the most nature-depleted countries in the world, based on declines since the 1970s.^[11] The report was published by the State of Nature Partnership, made up of nature organisations including Natural England, the WWF and ZSL. The report provides information across many species, with some showing increases and other declines. However, on average, the report found an overall drop in biodiversity, shown in figures 1 and 2.

Figure 1. Species abundance in the UK from 1970 to 2021

Figure 2. Overall decline in abundance 1970 to 2021

The report said:

• The abundance of 753 terrestrial and freshwater species has on average fallen by 19% across the UK since 1970. Within this average figure, 290 species have declined in abundance (38%) and 205 species have increased (27%).
• Since 1970, the distributions of 54% of flowering plant species and 59% of bryophytes (mosses and liverworts) have decreased across Great Britain. By comparison, only 15% and 26% of flowering plants and bryophytes, respectively, have increased.
• 10,008 species were assessed using [IUCN] red list criteria. 2% (151 species) are extinct in Great Britain and a further 16% (almost 1,500 species) are now threatened with extinction.^[12]

Overall, the report stated that, despite recent policy work, more needed to be done to address biodiversity loss in the UK:

[…] despite progress in ecosystem restoration, conserving species, and moving towards nature-friendly land and sea use, the UK’s nature and wider environment continues, overall, to decline and degrade. The UK has set ambitious targets to address nature loss through the GBF [global biodiversity framework], and although our knowledge of how to do this is excellent, the size of the response and investment remains far from what is needed given the scale and pace of the crisis.^[13]

Director of science at Natural England, Pete Brotherton, noted some “glimmers of hope” in the report. For example, he noted increases in bat populations and some groups of freshwater insects. He made four recommendations to accelerate nature recovery:^[14]

• improve the quality of protected sites on land and at sea
• create more, bigger and messier places for wildlife (such as ponds and untrimmed hedgerows)
• reduce pollution on land (notably pesticides and excess fertilisers) and reduce pressure on marine environments
• targeted species recovery action

The Joint Nature Conservation Committee, which advises the government and devolved administrations on nature conservation, also publishes figures assessing biodiversity trends in the UK. It found that while around half of the assessed indicator measures are improving in the long term, in the short term, usually five years, more are either deteriorating or showing little or no change.^[15]

For example, most bird categories showed signs of deterioration in the short or long term. Butterflies showed little or no change or deterioration. The percentage of woodland defined as “sustainably managed” showed long term improvement, but little or no change in the short term.^[16]

3. International policy on biodiversity

The UN says climate change and biodiversity are inextricably linked and both must be tackled together to secure a viable future for the planet.^[17] It therefore highlighted the dual importance of nations’ involvement and adherence with the UN Framework Convention on Climate Change (UNFCCC) and the UN Convention on Biological Diversity (CBD), both established (along with the similarly linked UN Convention to Combat Desertification) at the 1992 Rio Earth Summit.

At the 2015 UN Climate Change Conference, 196 parties adopted the Paris Agreement.^[18] It set the goal of keeping average global temperature rises to well below 2°C above pre-industrial levels, and to pursue efforts to limit increases to 1.5°C. In recent years world leaders have increasingly stressed the need to achieve the 1.5°C target, as evidence suggests exceeding it would still likely lead to serious consequences such as severe droughts and heatwaves.^[19]

The Paris Agreement requires countries to work towards limiting temperatures and to set out national climate action plans every five years, known as nationally determined contributions (NDCs), for how they will do so. The Paris Agreement is legally binding.^[20]

Annual conferences are held to monitor and discuss progress on climate change, including countries’ responsibilities and actions under the Paris Agreement. The most recent was held in Azerbaijan in November 2024. Further information on this can be found in the following briefing:

• House of Commons Library, ‘What was agreed at COP29?’, 5 December 2024.

In December 2022 parties to the UN Convention on Biological Diversity (CBD) agreed a new ‘Global biodiversity framework’ (GBF). The GBF set four goals for 2050 focused on protecting and investing in nature in a sustainable and equitable way. It also contained 23 “urgent” global targets to be achieved by 2030, including restoring 30% of degraded ecosystems; conserving 30% of land, waters and sea (often referred to as 30 by 30); and minimising the impacts of climate change on biodiversity and building resilience.^[21] This framework is not legally binding.

At the Conference of the Parties to the Convention on Biological Diversity in October–November 2024, the parties adopted a “landmark decision” agreeing the need for greater coordination of climate and biodiversity policymaking, including increased collaboration between the presidents of the CBD and UNFCCC conferences.^[22]

The following material contains further information on the GBF and the biodiversity conferences:

• House of Lords Library, ‘COP15: Global biodiversity framework’, 6 January 2023
• Nature Conservancy, ‘COP16: What happened at the 2024 UN Biodiversity Conference?’, 5 November 2024

4. UK government policy on biodiversity

The UK is a party to both the CBD and UNFCCC, which shape the UK’s approach to its biodiversity and climate change policies.

The UK’s climate policy also includes a legislative commitment to achieve net zero (total greenhouse gas emissions equal to the emissions removed from the atmosphere) by 2050.^[23]

4.1 Previous government

The Conservative government set a target to reduce greenhouse gas emissions by at least 68% by 2030, compared to 1990 levels, via the UK’s NDCs.^[24] The UK’s NDCs document also acknowledged the need for an integrated approach to tackle climate change and biodiversity loss.^[25]

The government set out policies to achieve these targets across a range of documents, but particularly in its 2021 ‘Net zero strategy’ and 2023 ‘Powering up Britain: The net zero growth plan’. As well as plans to decarbonise energy and transport sectors and mobilise investment in green technologies, the policies included increased investment for the ‘Nature for climate fund’, an initiative focused on reversing biodiversity loss.

The UK’s biodiversity strategies and targets are devolved across the four home nations. However, a joint biodiversity framework was published in May 2024 setting out some agreed objectives for cross-UK working on approaches to biodiversity.^[26] For example, it outlined the importance of coordinating and ensuring policy worked towards the UK’s international obligations. The paper also provides some details on each devolved nation’s approach to biodiversity.

In England, the Environment Act 2021 and connected regulations contain legally binding biodiversity targets connected to the UK’s international obligations under the CBD.^[27] Targets include:^[28]

• halting the decline in species abundance by 2030
• reversing the decline in species abundance and reducing the risk of species extinction by 2042
• restoring or creating in excess of 500,000 hectares of wildlife-rich habitat outside of current protected sites by 2042
• increasing tree and woodland cover to 16.5% of total land area in England by 2050

The previous Conservative government, then led by Boris Johnson, also committed the UK to the GBF’s target to protect 30% of the UK’s land by 2030 (the 30 by 30 target).^[29]

Policies to achieve these targets and to mitigate biodiversity loss were set out in several government papers. Key policy in this area was provided by 2018’s ‘25 year environment plan’ and 2023’s ‘Environmental improvement plan’ progress report. These set out 10 goals, including clean air, using resources from nature sustainably, and mitigating and adapting to climate change. Policies to achieve these goals, listed in 2023, included:^[30]

• funding for ‘species survival’ projects, focused on protecting vital habitats^[31]
• increasing the impetus and support for councils to improve air quality more quickly
• tackling nutrient pollution in England’s waters, including by upgrading wastewater facilities
• publishing a baseline map of soil health for England by 2028 and bringing at least 40% of England’s agricultural soil into sustainable management by 2028

In addition, in March 2023 the previous government published a strategic framework for international climate and nature action.^[32] This set out the UK’s approach for pushing forward international action on climate change and nature. Introducing the paper, the previous government said the threat of climate change and nature loss was clear and were the “two defining challenges of our time”, requiring urgent action. It committed to “increase protection, conservation and restoration of nature and tackle key drivers of nature loss”.

4.2 Concerns about the UK’s progress

Despite these targets and policies, some concerns have been raised about the UK’s progress towards net zero and tackling biodiversity loss.

For example, the Climate Change Committee (CCC), the UK’s statutory adviser for climate change, said in its 2024 progress report that the new government “would have to act fast to hit the country’s [net zero] commitments”.^[33] It said that, despite significant achievements over successive governments, recent years had seen a slowing in progress and the apparent reversal or delay of key policies.

The CCC found that many key indicators of progress were off track. It found that nature-based solutions like woodland creation and peatland restoration were “significantly off track”.

In its January 2022 report assessing the then government’s ambitions for nature-based solutions to support progress towards net zero, the House of Lords Science and Technology Committee declared them ambitious, but with a “severe risk of failure”.^[34] It feared this could then undermine the 2050 net zero target and the UK’s agricultural sector. It listed a number of reasons for its concerns, including:^[35]

• difficulties assessing carbon storage across all natural resources (for example, moving the focus beyond tree planting)
• the need for more skills and funding to fully utilise nature-based solutions
• competing demands on land
• the need to fully engage the farming community

Based on these concerns, it said:

We recommend that the government, as a matter of urgency, invests in research, skills training, and delivery of nature-based solutions. At the same time, the government needs to tell land managers how they will be paid for delivering nature-based solutions, to set out how competing demands on land will be balanced, and to facilitate private investment in high-quality nature-based solutions.^[36]

4.3 Current government

In its 2024 general election manifesto, Labour described the climate and nature crisis as the greatest long-term challenge the world faced.^[37] Among other things, the party committed to a clean energy transition and tackling the “nature emergency”, including pollution in the UK’s rivers and sea. It said it would improve access to nature, promote biodiversity and protect wildlife.

On 30 July 2024, shortly after coming into office, the government announced that it would carry out a rapid review of the previous administration’s ‘Environmental improvement plan’(EIP). It said this would lead to a new statutory plan to protect and rebuild the natural environment, based on Environment Act 2021 targets. It explained:

This will focus on cleaning up our waterways, reducing waste across the economy, planting millions more trees, improving air quality and halting the decline in species by 2030. The review will engage with stakeholders across environment and nature, farming, resources, waste and water sectors, working hand in glove with businesses, local authorities and civil society across the country to develop new ambitious plans to save nature.^[38]

The government provided an interim statement on the rapid review in January 2025. The statement said that while the new plan was still in development, the review had revealed areas for improvement, including evidence collection, prioritisation processes, engagement and funding.^[39]

In February 2025 the government published a national biodiversity strategy and action plan, in line with its CBD commitments.^[40] For England, the strategy emphasised the legally binding commitments under the Environment Act 2021 and looked ahead to the forthcoming revised environmental improvement plan. The document said:

The revised EIP will integrate and clarify key existing policies such as environmental land management schemes, the environmental principles policy statement, local nature recovery strategies and biodiversity net gain; and highlight how protecting and enhancing our natural capital supports wider societal outcomes including the government’s missions for clean energy and growth. It will be complemented by other specific plans and strategies to meet the government’s priorities, including for the circular economy, water, clean air and food security.^[41]

Other developments and announcements since Labour have come to office have included:

• publishing criteria and plans for how it will achieve the ‘30 by 30’ target for the COP16 biodiversity conference^[42]
• pledging £239mn at the COP29 climate conference to help countries tackle deforestations (it said that this would be in addition to pre-existing funding promises)^[43]
• appointing Ruth Davis, a long-time environment specialist and advisor, as the UK’s first special representative for nature^[44]

Speaking shortly after her appointment, Ruth Davis emphasised the importance of nature in achieving the world’s climate and development goals. She stated:

We need to put nature at the heart of our discussions on climate and development. A thriving natural environment is critical for building our resilience to face the demands of a changing climate. We know that our global network of peatlands, seas and forests act as carbon sinks, sequestering and holding carbon dioxide to regulate the Earth’s climate. It is not possible to reach our net zero or sustainable development goals without restoring nature.^[45]

In addition, in his first speech as foreign secretary, David Lammy said that climate and nature policy were too often considered in isolation. He therefore stated that “action on the climate and nature crisis will be central to all that the Foreign Office does”.^[46] He said the UK would work with countries around the world to mobilise increased climate and nature finances.

In January 2025 the government launched a consultation on a new approach to land use.^[47] Its goal is for a new land use framework to “provide the principles, advanced data and tools to support decision-making by local government, landowners, businesses, farmers, and nature groups” to “help deliver the different objectives we have for England’s finite land, including growing food, building 1.5mn homes this parliament, and restoring nature”. The framework is expected to be published later in 2025. The Conservative government had also committed to publishing a land use framework by 2023, but did not do so before the 2024 general election.^[48]

While some organisations, including the RSPB and Wildlife Trusts, have been positive about the consultation, farming groups cautioned that the framework should not be allowed to restrict farmers’ ability to produce food.^[49] At the same time, environmental groups have urged the government to prioritise nature and the climate, and not allow plans for growth, including house building and airport expansion, to have a negative impact on the natural world.^[50]

5. Read more

• Parliamentary Office of Science and Technology, ‘Addressing the links between climate change and nature loss’, 13 February 2025
• House of Lords Library, ‘Climate change: Supporting farmers and growers’, 20 January 2025
• House of Lords Library, ‘Biodiversity loss and climate change: Interdependent global challenges’, 9 January 2025
• Parliamentary Office of Science and Technology, ‘Balancing competing land uses: A multifunctional approach’, 1 November 2024

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