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Nature-Based Solutions: Policy Options for Climate and Biodiversity

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Nature-Based Solutions: Policy Options for Climate and Biodiversity NATURE-BASED SOLUTIONS: POLICY OPTIONS FOR CLIMATE AND BIODIVERSITY FEBRUARY 2020 About Smart Prosperity Institute Smart Prosperity Institute (formerly Sustainable Prosperity) is a national research network and policy think tank based at the University of Ottawa. We deliver world-class research and work with public and private partners – all to advance practical policies and market solutions for a stronger, cleaner economy. institute.smartprosperity.ca Written by Katherine Monahan, Ben Filewod, John McNally and Shabnam Khalaj February 2020 CONTENTS Key Messages 1 Infographic: Policymaker’s Guide to Integrating Biodiversity into Climate Policy 2 Introduction: The Biggest Bang for the Buck 3 Outline 5 Section 1: Policy Options for Nature-Based Climate Solutions: Integrating Biodiversity 7 Chapter 1 – Public Funding 7 1.1 Establishing Guiding Principles for Project and Policy Selection 9 1.2 Reverse Auctions – A Market-Based Solution to Minimize Costs 12 1.2.1 Challenges and Design Options for Reverse Auctions 13 Chapter 2 – Achieving Multiple Objectives through Carbon Offsets 15 2.1 Integrating Biodiversity into Carbon Offset Protocols 15 Option A - Regulatory Compliance 15 Option B - Top Up Funding for Biodiversity Benefits (Hybrid: Public-Private Approach) 17 2.2 Biodiversity, Conservation and Carbon Offset Credit Stacking 17 Barriers to Credit Stacking in Canada 18 Chapter 3 – Carbon Pricing & Regulations 19 Section 1 Key Points 21 Infographic: The Multiple Benefits of Canada’s Nature 22 Section 2: Evidence-Based Criteria for Project Selection 23 1. Comparing Projects 25 2. Collapsing Dimensions: How Can we Compare Co-Benefits in a Common Unit? 25 The Options for Monetary Valuation 25 • Direct Valuation 25 • Indirect Valuation 25 3. The Options for Non-Economic ‘Common Unit’ Comparisons 25 4. Multidimensional Comparisons: Can we Compare Co-Benefits Without a Common Unit? 27 4.1 Qualitative Evaluation: Purely Ordinal Concepts 27 4.2 “Efficiency” Concepts 28 Section 2 Key Points 30 Annex 1: Reverse Auctions in Practice 31 Annex 2: NBS Related Carbon Offset Protocols – Canadian Compliance Markets 32 References 34 End Notes 35 This research was supported with funding from Key Messages: 1 Canada’s nature is a fundamental piece of the puzzle for fighting climate change. However, policies that harness nature-based climate solutions (NCS), without considering 2 biodiversity - and the other important ecosystem services that nature provides - risk undermining Canada’s broader goals to protect nature. Governments need to consider climate benefits and benefits to nature through a single 3 policy lens. Using a single policy lens can: (1) eliminate negative and inadvertent impacts on nature, (2) lead to 4 better measurement and optimization of benefits for both climate and nature, and (3) lower costs and maximize value through efficient project selection. Policy tools for advancing NCS include direct public funding, carbon offsets, regulations and 5 pricing mechanisms. Optimizing outcomes using these tools requires a holistic approach to policy development. Direct public funding needs to ensure that actions result in real, additional, permanent and 6 verifiable GHG mitigation outcomes, and also seek to avoid leakage. It should also require positive biodiversity outcomes through improvements in pre-selected criteria. Projects should be chosen based on best value for cost, which can be achieved through frameworks such as “reverse auctions”. Carbon offset frameworks can explicitly value carbon within forests and lands, thereby leveraging 7 private sector investment. Biodiversity outcomes can be secured, at a minimum, by developing strong safeguards. Incentives or mandatory compliance obligations for offsets that offer biodiversity benefits are also an option. Offset stacking (the ability of one project to generate credits in more than one market) could, in theory, provide more appropriate compensation to projects that offer both climate and biodiversity benefits if and when these parallel markets are developed or strengthened. Regulation or carbon pricing would require better tracking and reporting of land-based emissions to 8 develop stronger accountability frameworks. Developing evidence-based criteria for project selection could stem from economic valuation 9 (though not recommended for programs that must evaluate many small projects), rule-based common unit comparisons, or continuous-improvement metrics that are compared based on their efficiency. Nature-Based Solutions: Policy options for Climate and Biodiversity | 1 Policymaker’s Guide to Integrating Biodiversity into Climate Policy Have you Developed Have Conservation and Does your Climate YES YES Policy Impact Strong Safeguards For Prevention Policies Been Nature? Biodiversity? Considered? NO NO NO Carry on! Strong Safeguards are Consider Prevention a Minimum to Protect (eg. Address drivers to No Related conversion, Improve Considerations Nature forest management, Fire prevention, etc.) 1. Determine Criteria For YES Biodiversity Improvements 2. Use Markets to Ensure Lowest Cost 3. Offer Incentives or Regulate 2 | Smart Prosperity Institute INTRODUCTION: THE BIGGEST BANG FOR THE BUCK People often associate Canada with natural beauty and vast Canadians are familiar with the concept of offsetting GHG intact wilderness. Ten percent of the world’s forests are located emissions through programs that plant trees or protect forests in Canada and the country holds nearly a quarter of the world’s and lands. These carbon offsets are available to businesses remaining wetlands1. and individuals on a voluntary basis in Canada. The federal government will include carbon offsets as a compliance option This natural environment plays an important role in regulating for regulations governing large industrial emitters, while the climate. All types of lands, including forests, wetlands, provinces continue to develop offsets programs of their own. croplands, and grasslands, can produce large amounts of oxygen and store carbon, reducing atmospheric carbon dioxide. Governments can also improve net sequestration of GHGs in However, Canada’s forests and lands can also be a source of forests and lands through direct public funding. As part of its greenhouse gas (GHG) emissions in the atmosphere when land 2019 election platform, the Government of Canada pledged to and forests are burned, degraded or destroyed, for example plant two billion trees over ten years as part of a $3 billion fund through draining wetlands or deforestation. to better manage, conserve and restore forests, grasslands, Nature-Based Solutions: Policy options for Climate and Biodiversity | 3 agricultural lands, wetlands and coastal areas2. The overall A UN report in May 2019 stated that 1 million species worldwide objective is to deliver an ambitious 30 million tonnes of annual are at risk of extinction4, while other studies have discussed the net GHG sequestration in the year 2030 as part of Canada’s alarming bird and pollinator declines here in North America (for efforts towards achieving its 2030 Paris climate commitment3. example, bird populations have declined by 29% since 1970)5 These actions, along with other policies and measures at the As with climate change, Canada has commitments to improve subnational level, point to the increasing focus on nature’s role biodiversity conservation under the United Nations Convention in climate change policy, often called “Nature-Based Climate on Biological Diversity and under its Sustainable Development Solutions.” Goals6. In 2018, the federal government announced $1.3 billion to create new protected areas, and Canada recently committed And this is only the beginning. Nature-based climate solutions to protecting 25 percent of Canada’s land and 25 percent of will be fundamental to meeting deeper decarbonization our oceans by 2025 – with an ambition of 30 percent of each by objectives. Without further policies to protect, conserve and 20307. sustainably manage forests and lands, it will not be possible for Canada to achieve its pledge to have net-zero emissions As Nature-Based Climate Solutions are developed, there is an domestically by 2050. opportunity for a multi-pronged approach. Policy interventions can aim to enhance benefits beyond carbon, including But Canada’s forests and lands also provide a wealth of other biodiversity and other benefits such as climate resilience (i.e., free services to Canadians, including clean water, fertile soil, building adaptive capacity to the impacts of climate change) and fresh air, underpinning our society and quality of life. Natural or local community development. Likewise, when biodiversity landscapes protect biodiversity and species-at-risk, boost human action is taken, there is an opportunity to better measure and livelihoods and health, and sustain our resilience to climate optimize carbon benefits. change. This won’t be easy. Policymakers tend to work towards single The term Nature-Based Solutions (NBS) refers to the ways that objectives. Developing a holistic approach will require cross- natural systems can be managed to help reach objectives like cutting collaboration and multi-faceted analyses that consider a confronting climate change, reducing water pollution, and broader range of data. Likewise, a policy structure with multiple abating natural hazards. Nature-Based Climate Solutions (NCS) objectives can add costs and limit private-sector participation if are a narrower class of NBS, specifically looking at the land overly complex. sector’s
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