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Sustainable Development The Government's approach - delivering UK sustainable development together |
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Chapter 8
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Major environmental and resource challenges which the UK faces are:
8.1 In the UK, increasing prosperity has meant that in many ways the environment has improved. The smogs of the 1950s are gone. River quality has risen in the last decade. The UK does not face the severe pollution problems found elsewhere, particularly in some developing countries. 8.2 But challenges remain. We have to work with others to address global problems, so that environmental limits are not breached and valuable resources are not destroyed: for example, avoiding dangerous climate change, or severe declines in fish stocks. Domestically, environmental damage still reduces quality of life: air pollution harms our health; and people are justifiably concerned over declines in wildlife, such as lower numbers of farmland birds. New challenges are emerging, such as the potential impacts of certain chemicals. An integrated approach8.3 The Government's approach is based on:
8.4 The Government's record on environmental protection is strong: this chapter refers to many initiatives already taken. But this Strategy is not the place to set out all of these in full - any more than it is the place for a comprehensive account of policies on health, transport or competitiveness. 8.5 We need to consider impacts on air, land and water, and ensure that solving one problem does not create another. The system of Integrated Pollution Control for industrial processes is based on this approach, and allows environmental impacts to be regulated in a way which is more efficient for industry and its regulators. Its forthcoming replacement by Integrated Pollution Prevention and Control will reinforce these benefits. For other decisions, the idea of 'Best Practicable Environmental Option' (BPEO), originally recommended by the Royal Commission on Environmental Pollution and introduced by the Government, can help to identify options.1 Key actions and commitments
IndicatorsConcentrations of persistent organic pollutants (to be developed) Dangerous substances in water Other indicators set out elsewhere in this chapter are also relevant 8.6 Pollutants can move between soil, air and water. Some are released as products are used: as car tyres wear out or as pesticides are applied. Such dispersed releases are especially important when pollutants build up in the environment, either because they accumulate in the bodies of people or animals or in plants, or because they persist for long periods. We must not store up problems for the future: the forthcoming chemicals strategy will set down guidelines on the place of precautionary action in controls on chemicals. It will outline the UK's view on how to improve and speed up the European programme of environmental risk assessments and encourage the chemical industries to take more responsibility for assessing and reducing environmental impact. 8.7 At present, there is a particular concern about 'endocrine disrupters' - chemicals which mimic hormones. The UK is working with other countries to gauge the extent of any problems. Particular global attention has also focused on persistent organic pollutants, on which the UK is playing a leading role to secure a global treaty by 2000. Climate change and energy supply8.8 Climate change is a great threat to global sustainable development. Globally, 1998 was the hottest year since instrumental records began in 1860 and seven out of the last ten years have been the hottest on record. Some climate change is now inevitable, and we will have to adapt to that. But climate change must be kept within limits which global society can accommodate. Exactly what those may be needs to be defined, but action is likely to involve reducing global and UK greenhouse gas emissions, over time, to significantly below today's levels. 8.9 Achieving this as living standards rise, in the UK and globally, will require significant changes in the way energy is produced and used. It will require policies which meet the needs of people and businesses for affordable energy, warmth and mobility, and ensure secure and diverse energy supplies in environmentally-acceptable ways. REDUCING EMISSIONS8.10 In Kyoto in 1997, developed countries agreed to reduce their emissions of a 'basket' of six greenhouse gases by just over 5.2% below 1990 levels over the period 2008-2012. The EU agreed to an 8% reduction, which was subsequently shared between member states: the UK agreed to contribute a reduction of 12.5%. An action plan to agree the outstanding issues from Kyoto was agreed in Buenos Aires in November 1998. 8.11 In October 1998, the Government launched a consultation on how to meet the 12.5% target and how to move towards its domestic goal of a 20% reduction in carbon dioxide emissions by 2010, in ways which enhance competitiveness and promote social inclusion2. The Government intends to publish a draft UK Climate Change Programme later in 1999 and to put the final programme in place in good time for ratification of the Kyoto Protocol. Initiatives described elsewhere in this Strategy will contribute to the Programme: on transport policy; greater energy efficiency; improved technology; and sustainable forestry. Figure 8.1 Carbon dioxide emissions by end user
8.12 Further cuts in emissions will be needed in the longer term. Meeting the challenges beyond 2010 is likely to entail:
CHANGES IN ENERGY SUPPLY8.13 In the 1990s, primarily due to market liberalisation, the UK shifted from carbon-intensive fuels such as coal and oil towards less carbon-intensive fuels such as gas and nuclear energy. This reduced carbon dioxide emissions, but the changes were caused in part by market distortions which also failed to reflect wider economic and social impacts. Following its Review of Energy Sources for Power Generation, the Government is removing these distortions.3 As a result, in the short term, the shift towards lower emission fuels will be less pronounced. Figure 8.2 Electricity generated by renewable sources
8.14 In the longer term, more energy will have to come from energy sources which emit little or no carbon dioxide, in particular from new and renewable sources. In September 1998, the Government launched the largest ever package of support under the Non-Fossil Fuel Obligation for renewable electricity sources. These measures should lead to 5% of UK electricity being supplied by renewables by 2003, up from 2% now. Earlier this year the Government published a consultation document on future renewable energy policy.4 The Government intends working towards a target of 10% of UK electricity being supplied by renewable energy, cost effectively, as soon as possible. It hopes to achieve this by 2010. 8.15 All forms of electricity generation have some environmental impacts. So a shift towards renewables does not mean halting the search for energy efficiency. Nor does it mean ceasing to use the UK's fossil fuel resources, provided exploitation is managed in an environmentally acceptable way. Fossil fuels are bound to play a large part in energy generation for many years to come as we move towards new forms of energy production, and managing the UK's resources can help to ensure security of supply, as well as economic and social benefits. 8.16 Nuclear energy is generated without direct production of carbon dioxide. But the cost of building nuclear power stations is high and there is no strong economic case for new build. Radioactive waste also has to be disposed of safely. There is presently no disposal route for intermediate and high level radioactive waste and so it has to be stored. The Government will issue a consultation paper on radioactive waste management towards the end of 1999. It is likely that nuclear power's contribution to reducing emissions will decrease in the first decades of the 21st century as existing capacity is retired. ADAPTING TO CLIMATE CHANGE8.17 The world already faces temperature increases which will result in changed weather patterns and higher sea levels - affecting food and water supplies for millions of people, threatening coastal settlements, and allowing diseases like malaria to spread. In the UK, there may be more droughts in the south and east, more flooding in the north and west, more storm damage, threats to the coast and agricultural land, and changes in wildlife and habitats. The UK Climate Impacts Programme has been set up to help the public and private sectors assess their vulnerability to such changes and to develop adaptation strategies. Climate change scenarios for the UK were published in October 1998 and are available to help decision makers assess their vulnerability to climate change. HELPING DEVELOPING COUNTRIES8.18 As developing countries' economies grow, they will need to develop ways to curb their own emissions. The Government will help them do so, for instance through promotion of energy management practices and low emission technologies. Since 1992, the UK has committed £670 million to such projects: examples are restructuring the state-owned power sector in India, stimulating a market for wind-pumps in China, and promoting energy efficient woodstoves. It has also contributed £215 million to the Global Environment Facility, which helps developing countries to meet the extra initial capital costs of reducing emissions. Key actions and commitments
IndicatorsEmissions of greenhouse gases (headline) Rise in global temperature Sea level rise Carbon dioxide emissions by end user Depletion of fossil fuels Electricity from renewable sources Discharges from the nuclear industry Radioactive waste stocks Air and Atmosphere8.19 The Government's air quality policy aims to ensure that polluting emissions do not cause harm to human health or the environment. Such harm brings social and economic costs, with burdens often falling on inner city residents who face general problems of degraded local environments. But people in rural areas are also affected, as well as forests, lakes, crops, wildlife and buildings. LOCAL AIR QUALITY8.20 The headline indicator of air quality measures the days on which air pollution exceeds levels at which, experts advise, there could be harm to human health. On average, these levels are exceeded on more than one day in ten. This is too often, and the Government has set demanding 5-10 year objectives for a range of pollutants which will reduce the number of exceedences. 8.21 The specific pollutants responsible for problems vary. In towns and cities, air pollution is a mixture of gases and particles; in rural areas it is often low-level ozone. Transport and industry are a major cause of both. 8.22 The Government is consulting on proposals to tighten objectives for five of the eight pollutants in the National Air Quality Strategy: benzene, 1,3-butadiene, carbon monoxide, lead and nitrogen dioxide (hourly objective only).5 The Government proposes to leave the annual nitrogen dioxide objective unchanged and review in 2000 the measures needed and the feasibility of achieving both the annual and the hourly objectives. The objectives for ozone and sulphur dioxide are to remain as they are; that for particles is to be replaced with provisional limit values in EU legislation. The review is assisted by the Air Quality Forum, whose members come from local government, business, the voluntary sector and health groups. Figure 8.3 Sulphur dioxide and nitrogen oxides emissions
8.23 Action by everyone is important:
8.24 The Government's integrated transport policy has a big part to play. Measures to reduce emissions from individual vehicles are also important. So are integrated pollution control policies and planning policies which minimise industrial pollution and avoid damage to sensitive locations, and which use planning conditions to reduce pollution or its effects. As a result emissions from road transport in urban areas are set to fall by half in the ten years to 2005. Emissions from industry are also set to fall. For instance, emissions of sulphur dioxide from the electricity supply industry are expected to fall by more than half from 1998 to 2005. 8.25 The analysis of existing and proposed measures suggests that action already taken or proposed to improve air quality in the UK will generate significant health and non-health benefits. For example, the total number of deaths brought forward by air pollution in the UK is expected to fall by approximately 18,500 between 1996 and 2005. Key measures to reduce pollution from transport
INTERNATIONAL ACTION8.26 In the EU and internationally, the Government presses for emission reductions based on sound science and a thorough assessment of all the costs and benefits. The Government supports the long term EU goal of not exceeding 'critical loads' for acidification - levels of pollutant deposition below which significant harmful effects to the environment do not occur. 8.27 The Government supports a gradual movement towards this goal, which could not be achieved quickly without unacceptable social or economic impacts, in this country and elsewhere. Current commitments will reduce significantly the areas of the UK at risk from acid rain by 2010, and the Government is pressing for further development of ambitious, but achievable, international agreements. Levels of sulphur dioxide and nitrogen oxides are already falling. OZONE LAYER8.28 The Government supports a proposed EU regulation which will introduce more stringent controls on ozone depleting substances. For example, it will impose a general ban on the supply and use of chlorofluorocarbons with only a few limited exceptions. Significant progress has already been made to protect the ozone layer under the Montreal Protocol, the international agreement which controls the production and consumption of ozone depleting substances. If all countries meet their obligations, the ozone layer is expected to recover fully by the middle of the 21st century. Key actions and commitments
IndicatorsDays when air pollution is moderate or high (headline) Concentrations and emissions of selected air pollutants Sulphur dioxide and nitrogen oxides emissions Acidification in the UK Ozone depletion Freshwater8.29 Water is a renewable resource, vital for public health and the environment. Safeguarding resources and ensuring affordable supplies are essential for sustainable development. The UK does not face severe problems of water availability and quality but there are marked regional variations and many pressures. Demand is likely to grow, largely due to increased household use. Parts of the country, notably the south and east, already appear to be experiencing changed weather patterns. New development and urbanisation increase demand and create further pollution pressures. Diffuse inputs, such as run off and leaching from roads, agricultural land and urban areas, loss of habitats and pressure on groundwaters all present substantial challenges. 8.30 The Government's policy response to these challenges started with the Water Summit it held in May 1997. It includes:
Figure 8.4 Water leakage
8.31 To help developing countries, the Government will expand support for integrated water management which helps the poor, for work to deal with problems such as arsenic contamination and salinated water sources, and for international organisations such as the Global Water Partnership. It has strongly supported a new European agreement on water-borne diseases, to be signed at the World Health Organisation's European Environment and Health Ministerial meeting in June 1999. Key actions and commitments
IndicatorsRivers of good or fair quality (headline) Water demand and availability Water affordability Water leakage Abstractions by purpose Low flow in rivers (to be developed) Nutrients in water Seas, oceans and coasts8.32 Seas and oceans are the major part of the planet that supports life, and drive the climate and the hydrological cycle. The UN Convention on the Law of the Sea, to which the UK is a party, provides a comprehensive framework for management of the oceans. 8.33 Many activities such as shipping, fishing, offshore minerals exploitation, coastal zone development, and land based activities make use of our seas and shores. We have to manage these activities to conserve the marine environment, while allowing sustainable use of marine resources and the passage of shipping. 8.34 In recent decades, global pressures on the marine environment have increased dramatically. Urgent international action to stop further degradation, and where necessary and feasible to reverse existing damage, is a priority. The Second London Oceans Workshop in December 1998 concluded that the two major problems were unsustainable fishing practices and pollution and other degradation from land based activities. These conclusions have been fed into the 1999 meeting of the UN Commission for Sustainable Development, which has oceans as one of its main topics. QUALITY OF UK WATERS8.35 The quality of UK coastal waters is generally good, with levels of contaminants unlikely to be a threat to marine life. Inputs of hazardous substances and nutrients are generally declining although hotspots of poor water quality exist. The Government and its partners in the OSPAR Commission for the Protection of the Marine Environment of the North East Atlantic have adopted a precautionary approach which aims to reduce or eliminate inputs of hazardous and radioactive substances of most concern as far as practicable by 2020. They have also agreed a strategy to control inputs of nutrients which disturb the balance of the marine environment. A quality assessment of the OSPAR area will be published in 2000 to inform future action. 8.36 Measures to improve river quality and limit emissions to air have a big part to play in reducing inputs, alongside measures on direct discharges to the sea. Secondary treatment will be the normal requirement for all sewage works making significant discharges to coastal waters. 8.37 Following substantial investment, almost 90% of UK bathing waters now comply with the European Bathing Waters Directive but performance is still too low in a few areas. The Government target is to raise consistent compliance with the Directive's mandatory standards to at least 97% by 2005 and to achieve a significant increase in compliance with its tougher guideline standards, particularly at major holiday resorts. MANAGING MARINE ACTIVITIES8.38 Most of the UK's trade goes by sea, and our waters are among the world's busiest. The Government has published a new strategy for sustainable shipping, which aims to increase skills, employment, and the UK's attractiveness to shipping enterprises. The Government is working to tighten international safety and environmental standards, where necessary, and to enhance compliance with these standards: for example, it has co-ordinated work within the International Maritime Organisation leading to a ban on discharges of oil from ships in north-west Europe. The dumping of sewage sludge at sea ended in 1998 and now only dredged material is routinely licensed for dumping. The Government continues to seek beneficial uses for dredged material to minimise the amount disposed at sea. 8.39 The UK is leading OSPAR work on a strategy to manage the environmental impacts of offshore oil and gas production. Environmental impact assessments are now required for all significant new UK oil and gas developments. In 1998, the Government agreed to an OSPAR ban on sea dumping of all steel off-shore oil and gas installations, thus promoting their reuse and recycling. CONSERVING MARINE BIODIVERSITY8.40 Protection of marine habitats and species is being given more attention. Under the UK Biodiversity Action Plan, plans for twelve marine habitats and sixteen marine species will be published by summer 1999. New measures to protect marine biodiversity were agreed in 1998 under the OSPAR Convention. 8.41 Coral is a good indicator of the quality of the marine environment and the impacts of global warming. The UK will support conservation of coral reefs through the International Coral Reef Initiative and support for the Global Coral Reef Monitoring Network. FISHERIES8.42 Fish is a valuable food resource, and the fishing industry remains an important source of jobs, often in areas remote from other sources of employment. Managed well, fish is a renewable resource; but stocks can be threatened by pollution and over-fishing. The latter is a serious problem, and not just in the UK. World fish catches have increased four fold since 1950. Thirteen out of fifteen of the world's main fisheries and many localised fisheries are under pressure. In some cases, recovery of stocks to commercial levels will be difficult to secure. 8.43 Assessments have been made of the minimum level of fish stocks necessary to enable fish to reproduce themselves. Currently these are known as Minimum Biological Acceptable Levels (MBAL): in 1997, only 51% of stocks fished by EU fleets were above these levels. The International Council for the Exploration of the Sea is developing a new assessment framework, based on a precautionary approach. Figure 8.5 Fish stocks around the UK fished within safe limits1
1 Fish stocks above MBAL 8.44 The Government is committed to the sustainable management of fisheries through the European Union's Common Fisheries Policy (CFP). This means working to improve the management and conservation of fish stocks so that they are increasingly likely to be at levels above minimum safe limits. Unless we do that, we shall never provide a secure future for our fishing industry. To help the industry, the Government provides support through national and European grant schemes, including aid for processing and marketing, port facilities, vessel safety, fishery harbours, and restructuring and diversification of the industry in areas dependent on fisheries. 8.45 The Government will continue to press for improvements to the CFP. Its priorities include better enforcement, integrating environmental considerations more fully, effective controls on fishing effort, and improving the regional dimension of the CFP. 8.46 Over-fishing is a global problem. And some fishing vessels from the UK and other countries travel far afield for their catches. So action for sustainable fisheries needs international agreement. The UK will continue to work with other countries to achieve effective management and conservation of fish stocks, and to ensure that EU fisheries agreements with developing countries are consistent with this aim. It will press for early ratification by the EU of the UN Agreement on Straddling and Highly Migratory Fish Stocks, which will bolster the role of regional fisheries organisations and emphasise the precautionary approach in managing fish stocks on the high seas. The UK will help West African Countries to implement the UN Food and Agriculture Organisation's Code of Conduct for Responsible Fisheries. 8.47 Knowledge of what sustainable fisheries management entails is incomplete. The Government is promoting research on management measures and on the impact of fishing on the marine environment. Key actions and commitments
IndicatorsCoastal and estuarine water quality Inputs of contaminants into the sea Compliance with Bathing Water Directive Biodiversity in coastal/marine areas (to be developed) Fish stocks around the UK fished within safe limits State of the world's fisheries MANAGING COASTAL AREAS8.48 Many of the UK's coastal systems are subject to pressures such as urbanisation, recreation, agriculture and industrial activities. Sea level rise due to climate change will be a further factor in future. Integrated Coastal Zone Management (ICZM) is an approach to managing these pressures, usually involving local and regional authorities and other organisations producing a joint plan for a particular estuary or stretch of coast. These non-statutory plans cover issues such as recreation, conservation, flood and coastal defence, water quality, fisheries and landscape. The Government supports this approach and is closely involved in an EU Demonstration Programme on ICZM which expects to report in 1999. Soil8.49 Soil is an integral part of the environment. It is essential for the production of food and other crops, for maintaining biodiversity, for the landscape. It contains much archaeological evidence of our history. 8.50 Soil quality is not a major problem in the UK, although there are localised problems of erosion, acidification and other contamination. But there are long term pressures on soils. Minimising the loss of soils to new development presents a particular challenge. In the past, soil protection has received less attention than the protection of air and water. The Government will ensure that soil protection receives equal priority in future. A draft soil strategy for England and Wales will be available for public consultation shortly. Taking forward strategies for Scotland and Northern Ireland will be the responsibility of the devolved administrations. 8.51 The strategy will identify pressures on soils and set out objectives and measures for soil protection and include indicators of progress. It will also set out action to improve understanding of soil processes and to increase public awareness of the importance of soils. CONTAMINATED LAND8.52 Land contamination can cause harm to human health and the wider environment, including pollution of water resources. To deal with cases where contamination is causing unacceptable risks, later this year the Government will bring into force a new regulatory regime10 which will clarify local authority duties to identify problem sites and to require their remediation. Key actions and commitments
IndicatorsNet loss of greenfield soils to development Concentrations of organic matter in agricultural topsoils Landscape and wildlife8.53 The special natural, cultural and archaeological characteristics of our landscape are highly valued and must be retained. We must also reverse the decline in wildlife and habitats - our biodiversity. 8.54 Our aim should not be a landscape frozen in time. What we treasure today is the result of centuries of gradual change. The activities of our ancestors, in particular in agriculture, shaped the landscape; many landscape features are archaeological sites. Important wetland sites came from mineral workings. Many reservoirs provide valuable recreational and visual amenity. In urban areas, rich wildlife sites have grown up on land that was once derelict. 8.55 Some change is inevitable, allowing for activities such as local enterprise, agriculture, forestry and renewable energy production, or to meet housing needs. But change must be well-managed. The Government is undertaking 'Countryside Survey 2000', a national audit of habitats and landscape features to mark the Millennium. Its results will show how the British countryside has changed over the past ten years and will be used to help assess whether policies for a sustainable countryside are working. A parallel survey is taking place in Northern Ireland. PROTECTING THE WIDER LANDSCAPE8.56 The Government's approach to protecting the wider landscape includes:
PROTECTING AND ENHANCING WILDLIFE8.57 Wildlife protection has often focused on special reserves which contain habitats and species which must be maintained. But there is a risk that populations become smaller, fragmented and vulnerable to extinction. Their long-term survival, and overall enhancement of wildlife, depends on action in cities, towns and the countryside as a whole. This involves:
8.58 Measuring the success of policies for the countryside is not straightforward. The countryside is appreciated for its character, tranquillity and cultural values: these are difficult to measure, but the Government will seek to develop indicators which reflect these qualities. The headline indicator of wild birds provides a broad measure of the overall health of biodiversity. Key actions and commitments
IndicatorsPopulations of wild birds (headline) Landscape features - hedgerows, stonewalls and ponds Extent and management of SSSIs Access to the countryside (to be developed) Biodiversity action plans Native species at risk Trends in plant diversity Countryside quality (to be developed) Forests and woodlands8.59 Forests, woodlands and trees enhance our landscape and are habitats for wildlife. They are places for leisure and recreation and are an economic resource for timber production, tourism, and local development and regeneration. The Government will publish a statement on its policy for sustainable forest management later this year. 8.60 The Government's approach is based on better management of existing woodlands, and continuing expansion of our woodland area. The approach includes:
Sustainable ManagementIndicators of Sustainable Forestry in the UK Forestry Standard relate to all four sustainable development objectives. They cover forest soil condition, water quality, water yield, water discharge patterns, net carbon sequestration, air pollution, timber production, other production, nature conservation, workforce skills and safety, rural development, access and recreation, quality of life for local people, increased awareness and participation, community involvement, other land uses, conservation of heritage features and landscape quality.
Figure 8.6 Woodland area
Key actions and commitments
IndicatorsArea of woodland in the UK Ancient semi-natural woodland Sustainable management of woodland (to be developed) Number of countries with national forest programmes Minerals8.61 Minerals are a vital resource on which construction, manufacturing and energy industries depend. Aggregates dominate in tonnage and value but other minerals are also important, for instance:
8.62 The demand for minerals needs to be met as far as practicable at the least environmental cost and, as far as possible, without exporting environmental damage to other countries. This approach includes:
Key actions and commitments
IndicatorsAmount of secondary/recycled aggregates used compared with virgin aggregates (to be developed) Land covered by restoration and aftercare conditions
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Updated: 07 March 2005 |
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