Issues at stake at the COP16 to the Convention on Biological Diversity

Table of Contents

• thurs 1
• Issues at stake at the COP16 to the Convention on Biological Diversity 1
• 21 October – 1 November 2024 1
• in Cali, Colombia 1
• / 1
• Issues at stake at the COP16 to the Convention on Biological Diversity 3
• 21 October – 1 November 2024 3
• in Cali, Colombia 3
• Abstract 3
• The Kunming-Montreal Global Biodiversity Framework (GBF), adopted in 2022, aims to drive global biodiversity conservation through 23 targets and four overarching goals. 3
• As COP16 approaches in October 2024, the study looks at overall progress in implementation since COP15 and examines the major issues at stake, including a review of the state of implementation at national level, establishing a financial mechanism and adopting a multilateral agreement on digital sequence information. 3
• This document was provided by the Policy Department for Economic, Scientific and Quality of Life Policies at the request of the Committee on Environment, Public Health and Food Safety (ENVI). 3
• This document was requested by the European Parliament's committee on Environment, Public Health and Food Safety (ENVI). 4
• AUTHORS 4
• Gabrielle AUBERT, Institute for European Environmental Policy 4
• Nigel DUDLEY, Equilibrium Research 4
• ADMINISTRATORS RESPONSIBLE 4
• Christian KURRER 4
• Kristi POLLUVEER 4
• EDITORIAL ASSISTANT 4
• Irene VERNACOTOLA 4
• LINGUISTIC VERSIONS 4
• Original: EN 4
• ABOUT THE EDITOR 4
• Policy departments provide in-house and external expertise to support European Parliament committees and other parliamentary bodies in shaping legislation and exercising democratic scrutiny over EU internal policies. 4
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• Policy Department for Economic, Scientific and Quality of Life Policies 4
• European Parliament 4
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• Email: Poldep-Economy-Science@ep.europa.eu 4
• Manuscript completed: September 2024 4
• Date of publication: October 2024 4
• © European Union, 2024 4
• This document is available on the internet at: 4
• http://www.europarl.europa.eu/supporting-analyses 4
• DISCLAIMER AND COPYRIGHT 4
• The opinions expressed in this document are the sole responsibility of the authors and do not necessarily represent the official position of the European Parliament. 4
• Reproduction and translation for non-commercial purposes are authorised, provided the source is acknowledged and the European Parliament is given prior notice and sent a copy. 4
• For citation purposes, the publication should be referenced as: Aubert, G. and Dudley, N., 2024, Issues at stake at the COP16 to the Convention on Biological Diversity, Publication for the committee on Environment, Public Health and Food Safety (ENVI), Policy Department for Economic, Scientific and Quality of Life Policies, European Parliament, Luxembourg. 4
• © Cover image used under licence from Adobe Stock 4
• CONTENTS 5
• LIST OF BOXES 5 5
• LIST OF FIGURES 5 5
• LIST OF TABLES 5 5
• LIST OF ABBREVIATIONS 6 5
• EXECUTIVE SUMMARY 8 5
• 1. THE CONVENTION ON BIOLOGICAL DIVERSITY AND ITS PROTOCOLS 11 5
• 1.1. The Convention on Biological Diversity (CBD) 11 5
• 1.2. The Cartagena and Nagoya Protocols to the CBD 11 5
• 1.2.1. The Cartagena Protocol on Biosafety 11 5
• 1.2.2. The Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising from their Utilisation 12 5
• 1.3. The failure of the Aichi targets and emergence of the Kunming-Montreal Global Biodiversity Framework (GBF) 12 5
• 1.4. The Kunming-Montreal Global Biodiversity Framework (GBF) 13 5
• 1.4.1. The GBF’s goals and targets 13 5
• 1.4.2. Mechanisms for implementation 14 5
• 1.4.3. Timeline for implementation 15 5
• 1.4.4. Outstanding issues for COP16 16 5
• 2. PROGRESS IN IMPLEMENTING THE GLOBAL BIODIVERSITY FRAMEWORK AND THE CBD PROTOCOLS 17 5
• 2.1. Implementation of the Global Biodiversity Framework 17 5
• 2.1.1. Overall progress 17 5
• 2.1.2. Implementation in the EU 19 5
• 2.1.3. Implementation in China 22 5
• 2.1.4. Implementation in Brazil, Indonesia, Colombia and India 24 5
• 2.2. Progress in implementing the Cartagena and Nagoya Protocols 25 5
• 2.3. Progress in mobilising financial resources 26 5
• 2.3.1. Contributions towards Target 19 26 5
• 2.3.2. Funding solutions for GBF implementation 29 5
• 3. MAJOR ISSUES AT STAKE AT COP16 35 5
• 3.1. National implementation of the GBF targets 35 5
• 3.2. Implementation mechanisms 36 5
• 3.3. Multilateral agreement on the fair and equitable sharing of benefits from the use of DSI on genetic resources 37 5
• 3.4. Further priorities identified by the European Commission 39 5
• REFERENCES 40 6
• ANNEX 1 49 6
• ANNEX 2 50 6
• LIST OF BOXES 7
• Box 1: Definitions of biodiversity credits, certificates, offsets and net gain 32 7
• Box 2: Preparing and submitting ambitious NBSAPs aligned with the GBF 36 7
• Box 3: The principle of Digital Sequence Information (DSI) and its relevance to the GBF 38 7
• LIST OF FIGURES 7
• Figure 1: Timeline for the implementation of the GBF 17 7
• LIST OF TABLES 7
• Table 1: Funding tools and instruments relevant for biodiversity protection 21 7
• Table 2: Summary of the GBF targets 30 7
• Table 3: Overview of EU legislation implementing the GBF 75 7
• LIST OF ABBREVIATIONS 8
• ABS 8
• Access and Benefit-sharing 8
• ABSCH 8
• Access and Benefit-sharing Clearing House 8
• BCH 8
• Biosafety Clearing House 8
• BIOFIN 8
• Biodiversity Finance Initiative 8
• CBD 8
• Convention on Biological Diversity 8
• CHM 8
• Clearing House Mechanism 8
• COP 8
• Conference of the Parties 8
• CSRD 8
• Corporate Sustainability Reporting Directive 8
• CTF 8
• Conservation Trust Fund 8
• DSI 8
• Digital Sequence Information 8
• EIB 8
• European Investment Bank 8
• EU 8
• European Union 8
• EUDR 8
• European Union Deforestation Regulation 8
• GBF 8
• Kunming-Montreal Global Biodiversity Framework 8
• GBFF 8
• Global Biodiversity Framework Fund 8
• GEF 8
• Global Environment Facility 8
• GHG 8
• Greenhouse Gas 8
• GMO 8
• Genetically Modified Organism 8
• IAS 8
• Invasive Alien Species 8
• IP&LCs 8
• Indigenous Peoples and Local Communities 8
• KBF 8
• Kunming Biodiversity Fund 8
• LMO 8
• Living Modified Organism 8
• LULUCF 8
• Land Use, Land Use Change and Forestry 8
• MOP 9
• Meeting of the Parties 9
• MPA 9
• Marine Protected Area 9
• MSFD 9
• Marine Strategy Framework Directive 9
• MSPD 9
• Marine Spatial Planning Directive 9
• NBFP 9
• National Biodiversity Finance Plan 9
• NbS 9
• Nature-based Solution 9
• NBSAP 9
• National Biodiversity Strategy and Action Plan 9
• NGO 9
• Non-Governmental Organisation 9
• NRL 9
• Nature Restoration Law 9
• ODA 9
• Official Development Assistance 9
• OECM 9
• Other Effective Area-based Conservation Measure 9
• PES 9
• Payment for Ecosystem Services 9
• PFP 9
• Project Finance for Permanence 9
• SBI 9
• Subsidiary Body on Implementation 9
• SBSTTA 9
• Subsidiary Body on Scientific, Technical and Technological Advice 9
• SFDR 9
• Sustainable Finance Disclosure Regulation 9
• UN 9
• United Nations 9
• UNDP 9
• United Nations Development Programme 9
• UNEP 9
• United Nations Environment Programme 9
• WTO 9
• World Trade Organisation 9
• EXECUTIVE SUMMARY 10
• Background 10
• The Kunming-Montreal Global Biodiversity Framework (GBF), adopted at the 15th Conference of the Parties to the Convention on Biological Diversity (CBD) in December 2022 in Montreal, is a historic landmark agreement for global biodiversity conservation. It sets a vision for 2050 of a world living in harmony with nature through four goals and 23 action-oriented targets, which will try to drive better success than its predecessor, the Aichi targets. Unlike the Paris Agreement, the GBF is a voluntary agreement and therefore relies on the commitment of Parties to achieve its vision and targets. Through a more robust and comprehensive monitoring framework and mechanisms for monitoring, reporting and review, the GBF aims to surpass the shortcomings of its predecessors, the Aichi targets. 10
• Parties to the CBD meet at COP16, held in Cali, Colombia, from 21 October to 1 November 2024, to assess progress in implementation and address major underlying issues. 10
• Aim 10
• This paper provides an overview of the CBD and its Protocols, presents the GBF’s targets and implementation mechanisms, and reviews recent progress in implementation. It highlights the actions and challenges faced by major negotiating countries and groups, examines resource mobilisation efforts and sets the stage for key issues that will be addressed at COP16. These include: 10
•  Taking stock of progress made so far at national level in the form of National Biodiversity Strategies and Action Plans (NBSAPs) and national targets which were to be submitted by Parties by COP16 in order to obtain a global analysis of progress; 10
•  The finalisation of mechanisms for implementation, including a comprehensive monitoring framework made of indicators, mechanisms for planning, monitoring, reporting and reviewing progress in implementing the GBF, and a resource mobilisation mechanism; and 10
•  The adoption of a multilateral agreement on the fair and equitable sharing of benefits from the use of digital sequence information on genetic resources. 10
• Key Findings 10
•  The Global Biodiversity Framework (GBF) is a voluntary agreement, unlike legally binding climate agreements. It does not include a ratcheting mechanism to increase ambition (like the Nationally Determined Contributions under the Paris Agreement), placing added importance on strong national commitments and effective implementation mechanisms. 10
•  There is widespread recognition that the Aichi targets failed to deliver to the extent hoped, but the GBF has been designed in ways that will hopefully drive better success. Indeed, monitoring, resource mobilisation and capacity-building are crucial components of the GBF’s success, and it is important they are finalised at COP16, as currently many targets have no indicators or only partial indicators for measuring success. 10
•  Several significant initiatives have been undertaken at the international, regional and national levels in support of the GBF’s implementation. A number of countries have announced commitments to protect 30% of their land and sea by 2030 (Target 3 of the GBF), with the goal of ensuring the participation and contribution of Indigenous Peoples and Local Communities (IP&LCs). 10
• The adoption of the High Seas Treaty, which provides a legal framework for the designation of Marine Protected Areas (MPAs) in areas beyond national jurisdiction, once ratified, will be an important stepping stone in the implementation of Target 3. 11
•  Progress has also been recorded toward other GBF targets, as evidenced by global initiatives like the Amazon Summit, which brought together Amazon nations to prevent an environmental tipping point caused by forest loss. Similarly, the Three Basins Summit resulted in the first global coalition to restore 350 million hectares of terrestrial and aquatic ecosystems. 11
•  The EU plays a significant role in GBF implementation through a broad range of legislation covering biodiversity, climate action, pollution reduction, waste management and international trade. It has also passed new laws to strengthen its commitment to the GBF, with the Nature Restoration Law standing out as a key milestone, likely unmatched in other countries. The EU submitted its Biodiversity Strategy for 2030 as its updated NBSAP, along with national targets aligned with all GBF objectives. 11
•  Major negotiating countries have also made progress. China submitted its NBSAP which includes 27 prioritised actions in January 2024, while Indonesia submitted its own in September 2024. Although Brazil, Colombia, and India have yet to submit their NBSAPs, India has submitted national targets for all GBF targets, and Colombia has submitted two. 11
•  Financial resource mobilisation has also advanced, with funding from both public international and domestic sources and private sources. In 2021, the EU pledged to double its external biodiversity financing, particularly for most vulnerable countries, committing €7 billion for the 2021-2027 period. This funding will be allocated through the Neighbourhood Development and International Cooperation Instrument (NDICI) and the Instrument for Pre-Accession Assistance (IPA III). 11
•  Various existing and innovative funding solutions are being employed to support biodiversity and GBF targets. These include blended finance, conservation trust funds, debt-for-nature swaps, and emerging mechanisms like biodiversity credits and certificates, among others. 11
•  There is only limited progress on National Biodiversity Strategies and Action Plans. While NBSAPs are essential for translating global commitments into actionable national strategies, only a handful of countries have completed the exercise so far. The EU and nine of its Member States had submitted their revised NBSAPs as of September 2024 (Spain, Luxembourg, Hungary, France, Ireland, Austria, Italy, Malta and Slovenia). 11
•  Parties disagree on the structure and modalities regarding the financial mechanism of the GBF, a crucial aspect of the GBF’s success. At COP15, the Global Biodiversity Framework Fund (GBFF) was established as part of the Global Environment Facility (GEF). While it has received contributions of US$245 million from Canada, Germany, the United Kingdom, New Zealand and Spain, it is contested by countries of the Global South who criticise its legitimacy and ability to channel the necessary funds for implementing the GBF. 11
• There will be three options for discussion in Cali: 11
• 1) creating an entirely new fund at COP16, an option supported by the African group and Brazil, 2) launching negotiations to resolve the issue at COP17, and 3) maintaining the existing agreement with the GBFF administered by the GEF, an option supported by the EU and countries of the Global North; 11
•  There is hope that Parties will come to an agreement on the adoption of a multilateral agreement on the fair and equitable sharing of benefits from the use of digital sequence information (DSI) on genetic resources at COP16. Such an agreement would ensure that benefits from the use of DSI (referring to dematerialised genetic resources) are shared with the countries of origin of the genetic resources and that the financial benefits stemming from it can support financing the GBF targets. A tentative consensus emerged during negotiations in Montreal in August 2024 regarding monetary benefit-sharing contributions from all companies in sectors relying on DSI; 12
• Countries in the Global South, which are generally biodiversity-rich but have limited technological capacity to use such resources, advocate for expanding the current Access and Benefit-sharing of the Nagoya Protocol to DSI. They insist on a legally-binding instrument supported by a global fund which would be funded through a tax on the sale of products from the use of genetic resources, which could generate billions of dollars annually. The EU advocates for a level playing field for all DSI users and supports developing modalities for monetary benefit-sharing but is sceptical of creating a new fund; 12
•  The adoption of the GBF has provided fresh impetus to the Nagoya and Cartagena Protocols, on access to genetic resources and biosafety respectively, effectively renewing global attention on these processes and highlighting their importance in the broader biodiversity agenda; 12
•  Further priorities identified by the European Commission include strengthening the connection between climate change and biodiversity and operationalising work on biodiversity mainstreaming; 12
•  COP16 is a milestone in the timeline of the GBF’s implementation. Indeed, COP15 set the targets of the GBF, and Parties were then required to submit their updated NBSAPs and national targets aligned with the GBF. COP16 will focus on finalising mechanisms for implementation (the financial mechanism and the monitoring framework), as well as undertaking a global analysis of submitted NBSAPs and national targets. COP17 in 2026 will mark the first global review of progress under the GBF based on Parties’ national reports on implementation, followed by a second global review at COP19 in 2030. 12
• 1. THE CONVENTION ON BIOLOGICAL DIVERSITY AND ITS PROTOCOLS 13
• 1.1. The Convention on Biological Diversity (CBD) 13
• The Convention on Biological Diversity (CBD) is an international treaty with three key objectives: 13
•  the conservation of biological diversity; 13
•  the sustainable use of its components; and 13
•  the fair and equitable sharing of the benefits from the utilisation of genetic resources. 13
• Notably, its preamble acknowledges the intrinsic value of biological diversity and its ecological, social, economic and cultural significance, although issues of intrinsic value have featured less in CBD decisions since its adoption. 13
• Signed in June 1992 at the Rio Earth Summit, the CBD entered into force in December 1993 and has since been ratified by 193 Parties, with the United States being a notable exception. The European Economic Community formally adopted the CBD through a Council decision in 1993, confirming its commitment to the Convention’s objectives. 13
• Under the CBD, Parties must develop and enforce National Biodiversity Strategies and Action Plans (NBSAPs) to translate the CBD’s objectives into action at national level, incorporating biodiversity into national decision-making and relevant plans, programmes and policies. They must also take biodiversity conservation measures such as establishing and managing protected areas, restoring degraded ecosystems and preventing the introduction and spread of Invasive Alien Species (IAS). Additionally, the CBD encourages knowledge-sharing and technology transfer to support least-developed countries in their conservation efforts. 13
• Parties to the CBD meet every two years at the Conferences of the Parties (COPs) to assess progress, set priorities and develop strategies for implementing the Convention. The COP, as the governing body of the CBD, relies on the work of the Subsidiary Body on Scientific, Technical and Technological Advice (SBSTTA) for expert recommendations on scientific and technical issues, the Subsidiary Body on Implementation (SBI) for policy implementation, and working groups, such as those focused on traditional knowledge and the post-2020 GBF. The Clearing House Mechanism (CHM) facilitates cooperation and information exchange. The CBD Secretariat, in Montreal, assists Parties in implementing the Convention and coordinates organisational matters. 13
• 1.2. The Cartagena and Nagoya Protocols to the CBD 13
• 1.2.1. The Cartagena Protocol on Biosafety 13
• The Cartagena Protocol on Biosafety (‘the Cartagena Protocol’) is a supplementary agreement to the Convention’s provisions on biosafety. Its goal is to ensure the safe handling, transport and use of Living Modified Organisms (LMOs), also referred to as Genetically Modified Organisms (GMOs), that are developed through modern biotechnology and could potentially have adverse effects on biological diversity. The Protocol relies on the ‘advance informed agreement’ procedure, which requires the exporting party to notify the importing country of any proposed international transboundary movement of LMOs intended for environmental release. The importing country has the right to assess the risk and either consent or reject the movement. 13
• Adopted in January 2000, it entered into force in September 2003 and has been agreed by 173 Parties, including the European Union (EU). The EU has integrated the Cartagena Protocol into its regulatory framework on GMOs by implementing a regulation on transboundary movements of GMOs, ensuring alignment with the Protocol’s objectives. 14
• 1.2.2. The Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising from their Utilisation 14
• The Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising from their Utilisation (‘the Nagoya Protocol’) is also a supplementary agreement to the CBD. It promotes the fair and equitable sharing of benefits arising from the utilisation of genetic resources, e.g., by ensuring the appropriate access to genetic resources and by appropriate transfer of relevant technologies. The Protocol established the Access and Benefit-sharing (ABS) mechanism, requiring that access to genetic resources and associated traditional knowledge is based on the prior informed consent of the provider country. Users must obtain such consent from the country in which the resource is located and agree on terms and conditions of access and use. The underlying rationale is that the utilisation of genetic resources should result in monetary or non-monetary benefits in the provider country and contribute to biodiversity conservation. 14
• The Nagoya Protocol was adopted in 2010 during COP10 and entered into force in October 2014. It currently has 141 Parties, including the EU. In line with the Protocol, the EU has adopted legislation to ensure that EU users of genetic resources and holders of traditional knowledge comply with the legislation of the providing countries. 14
• 1.3. The failure of the Aichi targets and emergence of the Kunming-Montreal Global Biodiversity Framework (GBF) 14
• In 2010, at COP10 in Nagoya, Aichi Prefecture, Japan, the Parties to the CBD adopted the ‘Strategic Plan for Biodiversity 2011-2020’, which included twenty Aichi targets. The targets were organised under five goals aimed at halting and reversing biodiversity loss and ensuring healthy and resilient ecosystems by 2020. The plan served as an overarching framework for biodiversity conservation across all sections of society, which was then translated into revised and updated NBSAPs. 14
• Some of the Aichi targets drew from an earlier Programme of Work on Protected Areas, which was agreed at COP7 in 2004. 15
• However, by 2020, an assessment by the CBD secretariat concluded that none of the Aichi targets had been fully achieved at the global level, though six were partially met. Insufficient progress was also noted in national implementation. Several factors contributed to the framework’s shortcomings, including vague targets that were difficult to measure, a lack of defined metrics, overly ambitious goals, limited country ambition, inadequate financing, and no mandatory reporting. In response, the CBD Secretariat called for a new framework to drive global conservation through 2030 and beyond. 15
• 1.4. The Kunming-Montreal Global Biodiversity Framework (GBF) 15
• 1.4.1. The GBF’s goals and targets 15
• The Global Biodiversity Framework was adopted at COP15, held in Montreal, Canada, in December 2022, following four years of negotiations which were delayed by the Covid-19 pandemic. The COP was originally supposed to take place in Kunming, China, but amid uncertainty linked to the pandemic, it was held in Montreal, Canada, hence the name of the agreement. The GBF is considered a landmark of global biodiversity conservation and was agreed upon by 195 countries. It sets an ambitious vision for achieving harmony between humanity and nature by 2050, building on four goals for 2050 and 23 action-oriented targets to halt and reverse biodiversity loss by 2030. 15
• Although a significant achievement, the GBF is not a legally binding treaty and has no mandatory ratcheting mechanism, unlike the Nationally Determined Contributions under the Paris Agreement. Parties are encouraged – but not required – to increase their ambition over time, maintaining discretion over the level of commitment. 15
• The four goals of the GBF are to: 15
•  protect and restore the integrity, connectivity and resilience of nature and halt human induced extinction of threatened species (Goal A); 15
•  promote the prosperity with nature through the sustainable use and management of nature’s contributions to people (Goal B); 15
•  ensure that the benefits from the utilisation of genetic resources and Digital Sequence Information (DSI) on genetic resources are shared fairly (Goal C); and 15
•  invest and collaborate to fully implement the GBF (Goal D). 15
• The 23 targets aim to address critical areas of biodiversity conservation as well as threats and pressures on biodiversity. Importantly: 16
•  Targets 2 and 3 aim to restore 30% of degraded ecosystems globally and to effectively conserve and manage 30% of land, inland water and marine and coastal areas by 2030 respectively; 16
•  Targets 4, 5, 9 and 10 aim for the reduction and prevention of species extinction, the sustainable management of wild species and of areas under agriculture, fisheries and forestry; and 16
•  Targets 6 and 7 centre on reducing the rates of introduction and establishment of IAS and of risks from pesticides and pollution. 16
• Some targets do not include specific, numerical or timebound objectives and instead focus on addressing broader, interlinked issues such as: 16
•  Target 8 and 11 on resilience to climate change and other environmental changes; 16
•  Target 14 on biodiversity mainstreaming; 16
•  Target 16 on reduction of food waste; and 16
•  Targets 20 to 23 on knowledge, data and technology transfer and sharing, the participation and recognition of rights of Indigenous Peoples and Local Communities (IP&LCs) and application of a gender responsive approach. 16
• The GBF also includes targets on financing for biodiversity and on the role of businesses: 16
•  A dedicated target on business disclosure of biodiversity dependencies, impacts and risks (Target 15); 16
•  numbered targets on financing and resource mobilisation aiming to reduce harmful incentives by US$500 billion per year (Target 18); and 16
•  The mobilisation of US$200 billion per year for biodiversity, including US$30 billion through international finance by 2030 with intermediate deadlines by 2050 (Target 19). 16
• The full list of targets is included in Annex I. The targets are also accompanied by a robust implementation framework, detailed below in Section 1.4.2. 16
• 1.4.2. Mechanisms for implementation 16
• Building on lessons learned from the shortcomings of the Strategic Plan for Biodiversity and the Aichi targets, the GBF is supported by a robust implementation mechanism to support better outcomes. The decisions made at COP15 provide the following measures: 16
•  A comprehensive monitoring framework comprised of mandatory headline indicators and more optional, detailed component and complementary indicators. The purpose of this monitoring framework is to track actions taken towards achieving the GBF’s targets. Finalisation is expected at COP16 (decision 15/5); 16
•  Mechanisms for planning, monitoring, reporting and reviewing progress in implementing the GBF, taking into account NBSAPs and national reports which will be submitted by each of the Parties. A global analysis of NBSAPs and a global review of collective progress will be conducted at COP16 and COP17 respectively (decision 15/6); 16
•  A resource mobilisation mechanism in the form of the Global Biodiversity Framework Fund (GBFF), administered by the Global Environment Facility (GEF), a multilateral fund which supports projects in climate change, biodiversity and other environmental issues, along with a resource mobilisation strategy to be developed and reviewed at COP16 in order to increase financing from all sources (decision 15/7); 17
•  Mechanisms for capacity-building and development to support countries in implementation (decision 15/8); and 17
•  A multilateral mechanism for benefit-sharing from the use of genetic sequences, including a global fund, which is to be finalised at COP16 (decision 15/9). 17
• 1.4.3. Timeline for implementation 17
• Parties to the GBF are responsible for its implementation at national level and are therefore required to undertake the following steps: 17
•  They must revise and update their National Biodiversity Strategies and Action Plans to reflect how they plan to fulfil the GBF and submit national targets aligned with the GBF ambition and targets by COP16; 17
•  The NBSAPs and national targets will then be compiled and assessed at COP16 and each subsequent COP to provide regular indications of progress. The 5th meeting of the Subsidiary Body on Implementation reviews and analyses progress in the submission of NBSAPs and national target setting and their alignment with the GBF right before the COP (16-18 October 2024); and 17
•  After COP16, Parties will again have to submit national reports on implementation by February 2026 and June 2029 to allow for the global review on implementation at COPs 17 and 19. 17
• Figure 1: Timeline for the implementation of the GBF 17
• / 17
• Source: Aubert, G. and Dudley, N., 2023, Progress on implementing the Kunming-Montreal Global Biodiversity Framework, Publication for the Committee on Environment, Policy Department for Economic, Scientific and Quality of Life Policies, European Parliament, Luxembourg. Available at: https://www.europarl.europa.eu/thinktank/en/document/IPOL_IDA(2024)754196. 17
• 1.4.4. Outstanding issues for COP16 18
• Several key issues outlined in the COP15 decisions are to be addressed or finalised at COP16. These include: 18
•  The finalisation of the monitoring framework, following a scientific and technical review by the SBSTTA; 18
•  A global review of the revised and updated National Biodiversity Strategies and Action Plans (NBSAPs) and national targets to reflect the level of alignment of Parties’ ambition and contribution plan to fulfil the GBF; 18
•  A potential agreement on the GBF’s financial mechanism, and the future of the GBFF fund which is put into question by some Parties who advocate for alternatives options (see Section 3.2.); 18
•  The review and update of the strategy for resource mobilisation at COP16 in alignment with the review of the GBF. Solutions to bridge the biodiversity finance gap will also be explored; and 18
•  The finalisation of the multilateral mechanism for benefit-sharing from the use of Digital Sequence information (DSI) on genetic resources, including a global fund (see Section 3.3.). 18
• Additional matters to be discussed at COP16 include internal matters such as the establishment of a new programme of work on Article 8(j) on traditional knowledge, the strategic review of the CBD’s programmes of work, strategies for the Clearing House Mechanism (CHM) – the knowledge management component of the GBF – and the modalities of the global review planned at COP17. In addition, COP16 is expected to lead to the adoption of modalities for designating and modifying ecologically or biologically significant marine areas. 18
• 2. PROGRESS IN IMPLEMENTING THE GLOBAL BIODIVERSITY FRAMEWORK AND THE CBD PROTOCOLS 19
• Since COP15, some initial progress has been made in implementing the GBF targets, with a bigger focus on quantified targets such as Target 3 (Section 2.1.), the Cartagena and Nagoya Protocols (Section 2.2.) and in mobilising financial resources (Section 2.3.). 19
• 2.1. Implementation of the Global Biodiversity Framework 19
• 2.1.1. Overall progress 19
• It is too soon for a global assessment of progress in implementing the GBF, with a fuller picture likely to emerge after COP16. Nonetheless, several significant initiatives at both international and national levels can be identified. The CBD Secretariat has published guidance notes for all GBF targets, helping Parties understand their relevance, guide national target setting and providing a list of indicators to monitor their progress. Some targets, such as Target 3 (protecting 30% of land and sea by 2030) and Target 2 (restoring 30% of degraded ecosystems by 2030), have gained more attention, advancing further in implementation. In contrast, other targets that lack numerical or timebound goals, or require transformative changes, have seen slower advancement. This disparity may stem from the fact that certain targets are more aspirational and therefore harder to track progress against, and that others are still awaiting the development of measurable indicators to assess progress effectively. 19
• Globally, several initiatives have advanced the aims of the GBF, with particular focus on Target 3. A major milestone is the adoption of the High Seas Treaty by over 80 countries, aimed at designating Marine Protected Areas (MPAs) in the high seas. It requires ratification by at least 60 countries to come into force, and progress has been slow, with only eight ratifications to date. 19
• In further support to Target 3 – commonly known as ’30 x 30’ due to its goal of protecting 30% of land and sea by 2030 – the High Ambition Coalition for Nature and People, which advocated for the inclusion of this target prior to the GBF’s adoption, has now grown to 119 countries, including 22 Member States and the European Commission and has established a secretariat. Additionally, the Global Environment Facility (GEF) and Non-Governmental Organisations (NGOs) have collaborated on a guide and a website dedicated to implementing the target. 19
• In August 2023, the Amazon Summit brought together eight Amazon nations, making key commitments to prevent an environmental tipping point through forest loss. 19
• Similarly, the Three Great Basins Summit in October 2023 brought together representatives from the Amazon, Congo and Southeast Asia (including Borneo and the Mekong) in Brazzaville to form the first global coalition to restore 350 million hectares of terrestrial and aquatic ecosystems (Target 2). 20
• The World Trade Organisation (WTO) adopted an Agreement on Fisheries Subsidies at the 12th Ministerial Conference in 2022, which prohibits harmful fisheries subsidies. While two-thirds of members need to deposit their “instruments of acceptance” for it to become operational, progress stalled at the 13th Ministerial Conference, though significant progress had been made (Target 18). 20
• At the national level, many countries have been implementing parts of the GBF and revising their NBSAPs, although progress on the latter is slower than hoped. Some examples include: 20
•  Australia has committed to 30% area-based conservation and targets on restoration and conservation planning and Canada established a legislative framework for the 30x30 goal and has earmarked $800 million for four Indigenous-led conservation initiatives. 20
•  Gabon has agreed to the first debt conversion project for ocean conservation in mainland Africa, with a $500 million “Blue Bonds” project refinancing parts of the national debt, unlocking $163 million for ocean conservation. 20
•  India has identified 14 different categories of Other Effective Area-based Conservation Measures (OECM)s. 20
•  Malaysia has committed to at least 20% of terrestrial area and 10% of marine area to be conserved in protected areas and OECMs by 2030. 20
• These initiatives showcase significant global and national efforts, although challenges remain in ensuring comprehensive and measurable progress across all targets. The following subsections take a deeper look into GBF implementation in the EU, China, Brazil, Indonesia and Colombia. 20
• 2.1.2. Implementation in the EU 20
• The EU plays a significant role in GBF implementation through a broad array of legislation and has introduced new laws to strengthen its commitment to the GBF. In November 2023, the EU submitted its Biodiversity Strategy for 2030 (BDS) as its updated NBSAP. The BDS outlines a comprehensive set of actions and measures to set EU biodiversity on a path to recovery by 2030. While the BDS is non-binding, it has driven the adoption of binding legislation to advance the implementation of the GBF. The European Commission has set an action tracker to monitor the progress of the Biodiversity Strategy’s various initiatives, indicating that 50 commitments have been completed, 43 are in progress, and 11 are delayed. 20
• Key EU legislation supporting the GBF, either existing or stemming from the European Green Deal, is detailed below, with an overview of additional relevant legislation and references provided in Annex 2. 21
• a. Key EU legislation supporting Global Biodiversity Framework implementation 21
• The EU’s biodiversity framework is underpinned by critical legislation, namely the Habitats and Birds Directives which aim to protect species and natural habitats in the EU. The Habitats Directive requires all EU Member States to designate Natura 2000 sites for protected habitats and species listed in its Annexes. These sites, also covering areas designated under the Birds Directive, must have defined conservation objectives and measures. Member States are required to prevent the deterioration of these habitats. The directives and the Natura 2000 network – the largest coordinated network of protected areas globally – support several GBF targets, most importantly the goal of protecting 30% of land and marine areas by 2030. 21
• Freshwater and marine ecosystems’ protection and restoration is defined under the Water Framework Directive (WFD) and the Marine Strategy Framework Directive (MSFD), aiming to bring and maintain these ecosystems to good environmental status. Additionally, the Marine Spatial Planning Directive (MSPD) requires Member States to implement maritime spatial planning with an ecosystem-based approach. While the WFD directly supports the GBF’s protection target in relation to freshwater ecosystem, the MSFD and MSPD promote the conservation and sustainable use of marine biodiversity, aligning closely with GBF objectives. 21
• The Nature Restoration Law (NRL), adopted in July 2024, sets the ambitious overarching goal of restoring 20% of the EU’s land and sea areas by 2030. It also includes specific ecosystem targets for terrestrial, coastal, freshwater, marine, urban, agricultural and forest ecosystems, as well as for rivers and floodplains and pollinator populations. The Nature Restoration Law is a crucial step in achieving GBF Target 2, providing a robust binding framework for Member States to develop national restoration plans implementing the NRL’s objectives. Beyond restoration, the NRL contributes to other GBF targets, such as climate mitigation and adaptation (Target 8) and enhancing biodiversity in agriculture, aquaculture, fisheries and forestry (Target 10). The Nature Restoration Law’s comprehensive approach is likely unparalleled by most other parties to the GBF. 21
• The Invasive Alien Species (IAS) Regulation sets out rules to prevent, minimise and mitigate the adverse impacts on biodiversity of the introduction and spread of IAS in the EU, playing a critical role in meeting GBF Target 6 which seeks to reduce the introduction of IAS by 50% by 2030. 21
• b. Climate and biodiversity legislation 21
• Several policies under the European Green Deal that address climate change are also relevant to the GBF. For instance, the Regulation on land, land use change and forestry (LULUCF) accounts for greenhouse gas emissions (GHG) and removals from land use, land use change and forestry to meet climate goals, thereby supporting the GBF’s Target 2 on ecosystem restoration and Target 11 on climate resilience. 21
• Moreover, the Regulation on the governance of the Energy Union and Climate Action ensures coordinated energy and climate policies across EU Member States, promoting the reduction of climate change impacts. Both pieces of legislation are also relevant for Target 1 of the GBF as they incorporate spatial planning components by identifying areas that can contribute to reducing biodiversity loss. 22
• c. Pollution and waste legislation 22
• The GBF’s pollution target (Target 7) is supported by a wide range of EU legislation, including the Nitrates Directive, the Urban Wastewater Treatment Directive, the Industrial Emissions Directive, the National Emissions Reduction Commitments Directive, the Waste Framework Directive and others, such as directives on single-use plastics and packaging. Several of these directives are currently undergoing revisions, with recent progress on the Water Framework Directive, Packaging and Packaging Waste Directive, the Industrial Emissions Directive, and the Urban Wastewater Treatment Directive. Planned legislation includes a Commission proposal on preventing pellet losses to reduce microplastic pollution. In line with the EU Biodiversity Strategy commitment to reduce the risk and use of chemical pesticides by 50% and the use of (but not the risk of) more hazardous pesticides by 50% (in relation to Target 7, which slightly differs in that it commits to a reduction of the overall risk from pesticides and highly hazardous chemical by at least 50%), the Sustainable Use of Pesticides Regulation was proposed but withdrawn in February 2024 following farmers protests across Europe. Nevertheless, the EU reported a 46% reduction in the use and risk of chemical pesticides and a 25% reduction in the use of more hazardous pesticides from 2018 to 2022 (compared to the baseline period 2015-2017). These results have been contested by NGOs which argue that the projections are misleading as they are based on a flawed indicator, the Harmonised Risk Indicator 1. 22
• d. Agriculture and fisheries legislation 22
• The Common Agricultural Policy (CAP) and Common Fisheries Policy (CFP) are key EU regulatory frameworks that manage agriculture and fisheries activities across the EU. Both policies include provisions to ensure that environmental measures, including biodiversity conservation, are implemented within Natura 2000 sites. 22
• These frameworks are relevant to multiple GBF targets, as they offer direct payments and subsidies to support implementing actions or supporting GBF goals more broadly. However, recent reforms to the CAP have relaxed environmental requirements critical for biodiversity protection, making some actions voluntary. This may reduce the CAP’s effectiveness in contributing to GBF implementation. In September 2024, the final report of the Strategic Dialogue on the future of EU agriculture was published. It brought together stakeholders to develop a joint understanding of the future of EU agriculture and address environmental challenges, including the improvement of biodiversity on agricultural land and sustainable farming practices. 22
• In June 2024, the European Commission launched a consultation to evaluate the Common Fisheries Policy’s effectiveness and efficiency. The results of the consultation will be used to review how well it has achieved its objectives since 2013, including its contribution to marine environment protection. 23
• e. EU biodiversity legislation for international action 23
• The EU Wildlife Trade Regulation and implementing acts ensure that international trade in endangered species of wild fauna and flora do not threaten their survival, directly supporting GBF Targets 4 and 5 by preventing species extinction and ensuring the sustainable trade of wild species. The EU adopted stricter rules on ivory trade in December 2021, effectively banning most forms of EU trade in ivory. 23
• Additionally, the Regulation on deforestation-free products (EUDR) seeks to prevent the import of products linked to global deforestation and forest degradation worldwide and to reduce the EU´s contribution to GHG emissions and global biodiversity loss. It directly supports GBF Targets 5, 9, and 10 linked to the sustainable management of forests and enhancing forest biodiversity. The European Commission recently put forward a proposal to delay the implementation of the EUDR by one year, as it was judged necessary to allow businesses and countries more time to comply with the new requirements and to fully establish the necessary due diligence systems. Under this proposal, the application of the law would be postponed from 30 December 2025 for large companies and from 30 June 2026 for micro and small companies, while the Commission would have till 30 June 2025 to publish the list of countries/regions assigning a risk level. The proposal will now be considered by the European Parliament and the Council. 23
• The Environmental Crime Directive is a key piece of legislation also in relation to Targets 5, 9 and 10 as it defines and punishes serious environmental offenses, including wildlife crime and illegal pollution. It also requires Member States to establish serious violations of the EUDR as a criminal offence. 23
• The EU has also made progress in supporting global efforts to conserve biodiversity. The High Seas Treaty was signed by the EU and other countries at the United Nations in September 2023, which needs 60 ratifications to come into force. In September 2024 during the High Ambition for the High Seas event at the United Nations (UN) General Assembly, the EU Commissioner for Climate Action Wopke Hoesktra announced that the EU was ready to ratify the High Seas Treaty with EU Member States before the UN Ocean Conference in June 2025. As a reminder, the High Seas Treaty is a critical agreement for designating Marine Protected Areas (MPAs) in the high seas and therefore in delivering on GBF Target 3. 23
• f. Sustainable finance and business disclosure 24
• The adoption of the Sustainable Finance package as part of the European Green Deal is another significant contribution to the GBF, and specifically Target 15 by increasing private sector involvement in biodiversity conservation. The Corporate Sustainability Reporting Directive (CSRD) requires large companies to disclose sustainability data, including on biodiversity, through a standardised reporting framework. While this should enhance corporate transparency and decision-making, the final standards on biodiversity are subject to companies’ materiality assessments – which they must undertake to identify the impacts of their activities on biodiversity and other environmental topics and how these topics can impact the company – making some disclosures no longer mandatory. Similarly, under the Sustainable Finance Disclosure Regulation (SFDR), financial product manufacturers and advisers must meet sustainability disclosure requirements. Together, these regulations provide a strong legislative framework for companies and financial institutions to monitor and assess their risks, dependencies and impacts on biodiversity, and disclose this information to enhance corporate responsibility. As part of the package, the EU Taxonomy and its delegated Acts also play a role in guiding private actors towards sustainable investments. 24
• g. Proposed legislation 24
• Several proposed laws would further strengthen the EU’s commitment to the GBF. The Soil Monitoring Law would require Member States to assess the impact of land use and soil sealing on ecosystem services, supporting the objectives of the LULUCF Regulation. The Forest Monitoring Law aims to provide better data for sustainable forest management. Additionally, the proposed Green Claims Directive would establish rules to combat greenwashing, and the proposal on preventing plastic pellet losses seeks to reduce microplastic pollution. 24
• 2.1.3. Implementation in China 24
• China submitted its updated NBSAP in January 2024, focusing on biodiversity mainstreaming, addressing threats to biodiversity, promoting the sustainable use and benefit-sharing of biodiversity and modernising biodiversity governance. Their NBSAP outlines 27 prioritised actions translating the GBF’s targets, but it omits targets on gender equality and phasing out harmful subsidies. While a section is dedicated to protecting traditional knowledge, it does not place a significant emphasis on the rights and cultures of Indigenous Peoples and Local Communities (IP&LCs). 24
• a. Nature protection and restoration 24
• China puts forward its nature reserve system and OECMs as critical tools to achieving Target 3. Its nature reserve system includes 11,000 natural protected areas, which cover 18% of the country’s total terrestrial area. In addition, its ‘ecological conservation redline’ system designates specific uses within designated areas to support biodiversity protection and restoration. Their NBSAP specifies that the red-line areas in terrestrial zones should account for no less than 30% of the country’s total land areas. 24
• b. Biodiversity and climate change 24
• The updated NBSAP features a dedicated section on climate change, outlining a support system to help biodiversity adapt to its effects. It emphasises the role of ecosystem services in mitigating and adapting to climate change, highlighting the role of Nature-based Solutions (NbS) and the ecosystem-based approach as critical tools for building synergies between biodiversity conservation and climate action. 24
• c. Financing for biodiversity 25
• China’s NBSAP calls for a diversified investment and financing mechanism for biodiversity, enhancing the level, efficiency, and transparency of financial resources. It plans to improve its Payment for Ecosystem Services (PES) system and develop compensation mechanisms, including a biodiversity offsetting scheme. It aims to create a catalogue of biodiversity-eligible projects for green bonds and explore a green credit scheme for biodiversity-positive initiatives. Corporate involvement is a key focus, with the NBSAP setting a target for businesses to contribute to achieving the GBF targets, including through biodiversity impact assessments for significant infrastructure projects. China also intends to design its own biodiversity reporting framework. 25
• China launched the Kunming Biodiversity Fund (KBF) at the first part of COP15 in October 2021. The KBF was adopted as a United Nations (UN) multi-partner trust fund, supported by the UN Environment Programme (UNEP), the UN Development Programme (UNDP) and the CBD Secretariat. China initially pledged 1.5 billion Chinese yuan (approximately US$233 million) to support actions like revising and updating NBSAPs. China’s NBSAP includes plans to enhance the governance structure and operational framework of the KBF, aiming to provide financial support for developing countries for GBF implementation, capacity building, and research. 25
• Finally, China has commissioned a report from the China Council for International Cooperation on Environment and Development, to develop recommendations for addressing area-based conservation, agricultural reform and resource mobilisation under the GBF. 25
• 2.1.4. Implementation in Brazil, Indonesia, Colombia and India 25
• Brazil, Indonesia, Colombia and India are megadiverse countries, meaning they host the majority of the planet’s biodiversity and have critical roles in biodiversity protection, and are therefore key players in global biodiversity negotiations. 25
• Brazil hosts vital ecosystems such as the Amazon rainforest, the Pantanal tropical wetland, and the Cerrado savannah. A key player in the negotiation and implementation of the GBF, Brazil has yet to submit its NBSAP or national targets. Currently, 30% of Brazil’s land and 27% of its marine areas are designated as protected, bringing the country close to achieving Target 3. Recent legislation has strengthened Brazil’s focus on biodiversity, enhancing the capacity of relevant agencies to implement the GBF and involving Indigenous Peoples and Local Communities (IP&LCs) and other local stakeholders in governance. The Ministry of Finance has been appointed as the focal point for managing the Global Biodiversity Framework Fund (GBFF). 25
• Moreover, the Brazilian business sector has expressed its commitment to support the government’s biodiversity efforts through advocacy and engagement. Businesses are contributing to the national plan, including collaboration with the government on preparing a monitoring plan for national business-related targets to accelerate business action. 26
• Indonesia recently published its updated NBSAP in September 2024, with assistance from the German government’s International Climate Initiative. Indonesia also submitted 20 national targets. Currently, only 12% of its terrestrial areas and 7% of its marine areas are protected, the latter falling significantly short of the country’s commitment to protect 30% of its waters by 2045. To address this gap, Indonesia has launched a new initiative in partnership with a US-based philanthropy to restore rainforest biodiversity, in an effort to advance Target 3 of the GBF and mobilise funding beyond public sources. 26
• Several other megadiverse countries have yet to submit their NBSAPs, though progress is reportedly underway. Colombia, as the host country for COP16, has not yet submitted its revised NBSAP but has set two national targets: achieving 34% of conservation and management of terrestrial, inland water and coastal marine areas through a network of protected areas, OECMs and IP&LCs territories, and expanding bioeconomy agendas. Colombia co-chairs the NBSAP Accelerator Partnership, which supports NBSAP implementation and alignment with the GBF (See Section 3.1.). The country had previously committed to protecting 30% of its land by 2022 (eight years ahead of its previous commitment) and 30% of its seas by 2030. 26
• Currently, 17% of its land and 41% of its seas are under protection. The government has also recently signed an agreement with Indigenous peoples of the Amazon to recognise and enhance their contributions and participation to the negotiations at COP16. 26
• India has not yet submitted its revised NBSAP but has set national targets for all GBF targets. Moreover, it has received financial backing from the German government to support forest conservation and the restoration of 400,000 hectares of forest in four Indian states, contributing the expansion of natural carbon sinks and supporting India’s climate and biodiversity goals. 26
• 2.2. Progress in implementing the Cartagena and Nagoya Protocols 27
• GBF Target 17 gave important weight to the Cartagena Protocol, with a specific focus on biosafety. As of late 2023, almost 90% of the 173 Parties to the Protocol had made some progress in implementation and 85% had at least one person trained in risk assessment, risk management and monitoring of Living Modified Organisms (LMOs). There are now around 16,000 records in the Biosafety Clearing House (BCH), including about 2,600 risk assessment records. No new countries have ratified the Protocol since 2020. A conference organised by the CBD Secretariat in October 2023 reviewed global risk assessment, looking at milestones, emerging technologies and policy developments. 27
• The 11th Meeting of the Parties (MOP) to the Cartagena Protocol (CP-MOP 11) will consider topics related to the implementation of the Protocol, including the operations and activities of the BCH and the risk assessment and risk management of LMOs. 27
• As for the Nagoya Protocol, the fifth meeting of the Access and Benefit-sharing Clearing House (ABSCH) Informal Advisory Committee took place in Montreal in February 2024. Since COP15, the CBD Secretariat has focused on improving the quantity, quality and use of information, simplifying the application process, and on bug fixes in the system. From December 2022 to December 2023, 875 national records were added to the ABSCH, including from five new countries. There was an average of 975 visits per month, with increasing use trends, and an improved alert system to users is now available on request. Capacity building efforts included a series of web meetings, including regional workshop and individual sessions with national focal points. Identified challenges include frequent staff turnover in Parties, lack of political will, reluctance to publish data, poor understanding of legislation and confusion about Access and Benefit-sharing permits. Efforts to improve interoperability mechanisms are slow; while several countries are working on the issue or have plans to, only the EU is the only one to have set up an official mechanism through its DECLARE tool. 27
• A dedicated website providing information and documentation on interoperability mechanisms is being developed to support countries working on such systems. It will be launched at the ABSCH workshop at COP16. 27
• The 5th MOP to the Nagoya Protocol (NP-MOP) 5 will consider topics related to the implementation of the Protocol including the ABSCH, cooperation with relevant processes and institutions and international ABS instruments. 27
• 2.3. Progress in mobilising financial resources 27
• Progress has also been made on the mobilisation of financial resources, from both public financing contributions towards Target 19 (Section 2.3.1.) and using funding instruments to channel other sources of financing (Section 2.3.2.). 27
• 2.3.1. Contributions towards Target 19 28
• Target 19 of the GBF commits Parties to mobilise US$200 billion annually for biodiversity, and to increase financial resources from developed countries (including Official Development Assistance (ODA)) to developing countries to at least US$20 billion per year by 2025 and to at least US$30 billion per year by 2030. COP16 will be a key moment for assessing progress on this target. 28
• a. EU contributions in international and domestic biodiversity finance 28
•  Regarding international financing, the EU committed to double external biodiversity financing, especially for most vulnerable countries, amounting to €7 billion for the 2021-2027 period. These funds will be attributed via the Neighbourhood Development and International Cooperation Instrument (NDICI) and the Instrument for Pre-Accession Assistance (IPA III), detailed below, which have supported actions such as the Biodiversity Finance Initiative (BIOFIN); 28
•  The EU has adopted the Neighbourhood Development and International Cooperation Instrument (NDICI) to address global challenges, including biodiversity protection. It is estimated that the NDICI will contribute €6.6 billion to biodiversity in the period 2021 to 2027, amounting to approximately €945 million annually. Under current financial programming, this should increase to €1.1 billion annually from 2025 to 2027. The NDICI has allocated more than €1 billion to the NaturAfrica initiative for biodiversity projects in sub-Saharan Africa between 2021 and 2024; 28
•  The EU has also adopted the Instrument for Pre-Accession Assistance (IPA III) which contributes to climate and biodiversity objectives. It is estimated that IPA III will contribute €587 million to biodiversity through mainstreaming in the period 2021 to 2027, amounting to €83 million annually. 28
• Recent initiatives targeting biodiversity protection in the support to Türkiye’s actions on environment and climate change and ecosystem protection in the Western Balkans; 28
•  Regarding domestic funding, the EU committed to allocate at least 7.5% of its budget to biodiversity objectives in 2024, and 10% in 2026 and 2027. Although the 7.5% target was met in 2024, European Commission projections indicate that the EU will fall short of the 10% targets, with biodiversity spending expected to reach only 8.6% in 2026 and 8.4% in 2027. More needs to be done in budget preparation for 2025 and 2026 to ensure these targets are met; 28
•  The EU’s 8th Environmental Action Programme 2022 requires the European Commission and Member States to phase out environmentally harmful subsidies (Target 28) by setting a binding framework to monitor and report on progress and set a deadline for phasing out fossil fuel subsidies, which have yet to be achieved. It also requires the European Commission to produce a methodology to identify non-energy harmful subsidies (in agriculture, fishing, construction, forests, manufacturing and transport), which is currently under development. While the guidance does not address how to reform harmful subsidies, it can be used by Member States to report on these subsidies by March 2025, and then biannually. The EU has categorised the different types of environmentally harmful subsidies across EU Member States, some of which are harmful to biodiversity. It is estimated that Member States spend €34 to €48 billion per year on activities that are harmful to biodiversity; 29
•  For the period post-2027, the EU’s next multiannual financial framework, which will be negotiated as from 2025, will determine future allocations. 29
• b. Other contributions in the mobilisation of public biodiversity finance 29
• Currently, pledges to the Global Biodiversity Framework Fund (GBFF) amount to around US$245 million, with US$200 million already deposited, meeting its initial target to secure US$200 million from at least three donors to be operational. The GBFF received contributions from Canada, Germany, the United Kingdom, New Zealand, Spain, Luxembourg and Japan. Importantly, 20% of the GBFF should benefit non-state actors (like IP&LCs) to support their initiatives to conserve biodiversity. 29
• At its first two meetings in 2024, the GBFF Council approved a work programme that allocated US$38 million to biodiversity projects, including two initiatives in Brazil and Mexico on biodiversity conservation in indigenous land and protected area. However, the future of the GBFF remains a point of contention, as many countries from the Global South criticise the GEF’s and GBFF’s capacity to mobilise sufficient funds to meet the GBF targets (see Section 3.2.). 29
• International biodiversity finance is also channelled through other means, such as China’s Kunming Biodiversity Fund (KBF) (see Section 2.1.3.). 29
• Progress towards the international financing target is being tracked by the’$20 billion tracker’ launched by a coalition of NGOs, which aggregates commitments from governments, philanthropists, corporations and investors and multi-donor funding mechanisms and initiatives contributing to the target. As of now, pledges total around US$8 billion annually, representing 40% of the US$20 billion target, although progress has stalled since late 2023. 29
• Domestic finance is the largest source of biodiversity finance and is crucial in meeting the GBF’s financing goals. The implementation of National Biodiversity Finance Plans (NBFPs) is identified in Target 19 as a tool to increase domestic resource mobilisation. NBFPs are policy mechanisms providing a pathway for countries to enable the achievement of national biodiversity goals and targets. They outline funding instruments used to bridge the financing gap. First developed in 2012, they were used in over 130 countries in 2023, and early adopters are now at implementation stage. 30
• The Biodiversity Finance Initiative (BIOFIN) was set up ten years ago at the CBD COP11 by the UNDP and the European Commission, in response to the need to divert finance towards global and national biodiversity goals. Now present in 40 countries, BIOFIN is working with governments, civil-society, vulnerable communities, and the private sector to catalyse investments in nature. As a response to the GBF, BIOFIN launched the Database on Finance Resources in June 2023 to match funding needs with funding opportunities. It contributes to resource mobilisation for individuals, citizen-led movements, NGOs, private organisations, and public institutions, presenting hundreds of funding opportunities ranging from less than US$5,000 to over US$10 million. 30
• Additionally, multi-country initiatives such as the 10-Point Plan for Financing Biodiversity, launched by the United Kingdom, Gabon, Maldives and Ecuador and now endorsed by 43 countries, are important contributions. Several multilateral development banks and bilateral agencies established a task force to explore how they can provide credit enhancement to support innovative financial transactions to conserve biodiversity. Individual countries have donated or promised funds, but the total amount is still far less than that identified as necessary in the GBF. 30
• Finally, Parties need to explore opportunities to leverage climate-related funding by addressing the interconnections between biodiversity and climate. Conserving and restoring biodiversity is crucial for climate mitigation and adaptation, as it enhances ecosystems’ ability to capture and sequester carbon and their resilience to droughts, floods, coastal erosion and extreme heat. This underscores the importance of maximising synergies when designing public funding strategies for both areas, in an effort that can also mobilise funding from private sources. 30
• 2.3.2. Funding solutions for GBF implementation 30
• Parties are also expected to mobilise financing from private sources, including through blended finance, and innovative instruments. This section examines a few existing and emerging funding solutions for advancing the implementation of the GBF goals and targets. 30
• a. Blended finance 31
• Target 19 explicitly mentions the need to scale up private sector finance to support biodiversity goals. Private investments are often deterred by limited returns and higher risks associated with nature investments. Blended finance, which involves the strategic use of public grants to catalyse additional financing for development projects, aims to overcome these barriers by leveraging funds from the private sector. Instruments such as equity, debt, grants and guarantees are used to complement public financing. 31
• Although public finance remains the primary source of financing, blended finance can redirect investments from harmful activities to those less damaging to nature and directly target nature conservation. The Ocean Risk and Resilience Action Alliance, a coalition addressing ocean-related risks through innovative finance solutions, and the Blue Alliance are developing a blended finance facility to fund the management of ten MPA networks in the Global South. 31
• In the EU, the European Investment Bank (EIB) operates several blending facilities that could be used to support GBF targets. Development banks also play a crucial role in mobilising resources to support biodiversity efforts. 31
• b. Conservation Trust Funds 31
• Conservation Trust Funds (CTFs) are private, independent institutions dedicated to providing sustainable financing for nature conservation. While they do not directly implement conservation projects, they finance conservation projects and mobilise resources from international donors, governments and the private sector to support organisations that do. CTFs primarily allocate resources through grants and fill financing gaps in specific protected areas. Over time, some have expanded to incorporate climate finance, adaptation funding, and impact investment. 31
• CTFs can be national, international, transboundary, or focus on a specific protected area, and they primarily operate in the Global South. There are now over 100 CTFs globally, managing assets worth approximately US$2 billion. CTFs are recognised as a significant financing solution for achieving Target 19, and particularly Target 3 on conservation. They can also be used for debt-for-nature swaps (see Section 2.3.2.c.). 31
• Project Finance for Permanence (PFP) is an innovative financial tool designed to secure long-term funding for large-scale conservation. It raises capital by bringing together public and private stakeholders to fund the conservation of protected areas or important ecosystems, while ensuring that these efforts are permanent. Capital raised through PFPs can be used to establish or contribute to a CTF and provides financial support over time. For example, the global partnership ‘Enduring Earth’ uses PFPs to permanently secure conservation funding for a range of financed projects which contribute to the GBF’s goals by securing funding to implement conservation efforts on the ground, involving Indigenous Peoples and Local Communities and securing their roles of stewards of the land. Currently, 175 million hectares of lands, ocean, and freshwater are conserved through the PFP model worldwide. The Colombian government recently launched Heritage Colombia (‘Herencia Colombia’), a PFP initiative, securing US$245 million of public and private finance to permanently protect 32 million hectares of Colombian terrestrial and marine areas, including protection of approximately 12% of the entire Amazon rainforest. 31
• c. Debt for nature swaps 32
• Debt-for-nature swaps involve purchasing foreign debt, converting it into local currency, and using the funds for conservation efforts. Since many developing countries find themselves unable to fully repay their debts, commercial banks or governments may agree to sell the debt at a discount, rather than face the uncertainty of future repayment. This instrument has become particularly relevant today, as many countries experience debt stress as a result of the Covid-19 pandemic and inflation, creating potential opportunities for debt conversion. 32
• The Nature Conservancy (TNC), through its Nature Bond Programme, has implemented several initiatives in the Seychelles, Belize and Gabon. Nature Bonds focus on refinancing a country’s external commercial debt in support of long-term conservation and climate projects, guided by robust conservation plans to support national governments and local communities. These instruments are particularly valuable for mobilising financing resources for GBF targets. The Belize Blue Bond for Ocean Conservation Programme has reduced Belize’s debt by 12% of its GDP and established a commitment to protect 30% of its marine waters. Good practice principles are currently being drawn up to ensure consistency between initiatives. 32
• d. Biodiversity credits and certificates 32
• Target 19 acknowledges the role of biodiversity credits for channelling private finance. The Biodiversity Credit Alliance defines a biodiversity credit as a “certificate that represents a measured and evidence-based unit of positive biodiversity outcome that is durable and additional to what would have otherwise occurred”. They create a market for units of protection and restoration, that can be bought by companies, civil organisations and public authorities. 32
• There are numerous methodologies available for credits, leading to a fragmented framework, but efforts are underway to consolidate it. While the market for voluntary biodiversity credits is currently valued at around US$8 million, global demand for voluntary biodiversity credits could reach $2 billion in 2030 and $69 billion by 2050 under the right governance and safeguards in place for biodiversity. Despite the potential benefits, misuse of biodiversity credits could negatively impact ecosystems and local communities, and expose buyers to strategic, operational, and reputational risks. It is therefore crucial to implement robust safeguards. 32
• European Commission President Ursula Von der Leyen recently called for the creation of a nature credits system aimed at financially rewarding efforts to protect nature and provide ecosystem services. This system would take inspiration from the EU’s Emissions Trading System, under which companies can trade carbon allowances to reduce GHG emissions. In the case of nature credits, businesses, governments or organisations could theoretically earn credits for actions that conserve or restore ecosystems, which could then be traded or sold, incentivising biodiversity protection. However, designing a similar mechanism for biodiversity is expected to be significantly more complex, given the intricate and multifaceted nature of ecosystems compared to carbon dioxide. Although no formal proposal has been introduced, the European Commission is collaborating with the UN to develop a global standard for nature credits and working with Member States on pilot projects to support this initiative. Nature credits are also included in Von der Leyen’s mission letter to Jessica Roswall, the Commissioner-designate for Environment, Water Resilience and a Competitive Circular Economy, who is tasked with prioritising the design of incentives for nature positive actions and private investment and leading the work on nature credits. 33
• Box 1: Definitions of biodiversity credits, certificates, offsets and net gain 33
• Source: Biodiversity Credit Alliance, 2024. 33
• While biodiversity credits are seen by the European Commission and some private partners as an interesting tool to attract investments for nature positive activities, concerns have been raised in relation to their practicability, transparency and accountability, notably a statement by civil society organisations, which raises concerns in relation the potential of biodiversity offsets and credits to enable greenwashing and to exacerbate global inequalities, the lack of reliable methodologies for sustaining them, and governance challenges similar to those seen in carbon markets. 34
• e. Other instruments 34
• Target 19 identifies Payment for Ecosystem Services (PES) and green bonds as key tools for increasing biodiversity finance. Other financial instruments, summarised in Table 1 below, have also proven effective or show strong potential to support the GBF’s financial targets. 34
• Table 1: Funding tools and instruments relevant for biodiversity protection 34
• Source: Author’s own elaborations. 35
• 3. MAJOR ISSUES AT STAKE AT COP16 36
• COP16 takes place in Cali, Colombia from 21 October to 1 November 2024 and it is the first COP since the adoption of the GBF. The COPs of the Cartagena and Nagoya Protocols (called Meetings of Parties, or MOPs) will also take place at the same time (respectively CP-MOP-11 and NP-MOP-5). 36
• COP16 will revolve around three main issues, identified as priority for action by the COP Presidency: 36
•  national implementation of the GBF (Section 3.1.); 36
•  finalising and mobilising implementation mechanisms (Section 3.2.); and 36
•  adopting a multilateral agreement on the fair and equitable sharing of benefits from the use of DSI on genetic resources (Section 3.3.). 36
• The EU has further identified two priorities to be addressed at the COP: 36
•  working on the connection between climate change and biodiversity and 36
•  advancing further on the biodiversity mainstreaming (Section 3.4). 36
• 3.1. National implementation of the GBF targets 36
• According to decision 15/6, all Parties must revise and update their National Biodiversity Strategies and Action Plans (NBSAPs), and adopt national targets aligned with the GBF targets by COP16. This is essential for conducting a global analysis at COP16. NBSAPs should demonstrate each Party’s commitment to achieving the GBF’s objectives and outline its measures for implementation. The NBSAPs and national targets will be analysed and assessed by the SBI at its 5th meeting shortly before COP16, and at each subsequent COP to prepare a comprehensive global analysis. On the online reporting tool, Parties assess themselves the level of alignment of each target with the goals of the GBF. 36
• To date, only 25 Parties have submitted their updated NBSAPs, including the EU and nine of its Member States (Spain, Luxembourg, Ireland, Hungary, France, Austria, Italy, Malta and Slovenia). Decision 15/6 adopted at COP15 requests Parties to submit national targets as standalone submissions if they are not able to submit their revised NBSAP in time through the Clearing House Mechanism (CHM). Overall, 83 Parties have submitted at least one national target, and 60 have set national targets for every GBF target (including the EU). China submitted its NBSAPs in January 2024, reaffirming its commitment to implementing the GBF at the national level following its role in presiding over COP15 (see Section 2.1.3.). Brazil has yet to submit its NBSAP and has expressed concerns that the GBFF does not adequately address the challenges faced by developing countries (see Section 2.1.4.). It emphasised the need for efficient international funding and greater engagement with Indigenous Peoples and Local Communities, as well as improved visibility of the NBSAP process among private sector and government agencies. 36
• The global analysis will be strained by the timing of NBSAPs and national targets submissions, as the Subsidiary Body on Implementation (SBI) will only assess those submitted before August 1st, 2024, potentially excluding four NBSAPs and several national targets. The EU was among the first Parties to have submitted their targets by the deadline. The low levels of submission may be due to challenges such as a lack of political support, lack of or delays in funding, and inadequate stakeholder awareness about the GBF. However, initiatives to support national target setting and updating of NBSAPs, such as the regional, subregional and national dialogues on NBSAPs are helping countries understand issues, overcome obstacles and access funding. The NBSAP Accelerator Partnership, driven by Colombia and Germany, supports NBSAP implementation and alignment with GBF by providing access to financial and technical support and help with the preparation, implementation and review of NBSAPs. Despite the challenges, many Parties are actively preparing their NBSAPs and investing resources into the process, demonstrating a strong commitment to addressing these requirements. 37
• Box 2: Preparing and submitting ambitious NBSAPs aligned with the GBF 37
• Source: Author’s own elaboration. 37
• 3.2. Implementation mechanisms 37
• Discussions at COP16 will centre on finalising the monitoring framework and the financial mechanism for the GBF. The latest SBSTTA meeting in May 2024 made progress on the monitoring and agreed on certain indicators such as for Target 8 on biodiversity and climate change. However, processes for involving non-state actors and mechanisms to enhance ambition remain to be agreed upon at COP16. The financial mechanism is a significant issue. Despite the establishment of the GBF, there is ongoing disagreement among Parties. The options for discussion in Cali are: 37
•  Creating an entirely new fund at COP16, 37
•  Launching negotiations to resolve the issue at COP17; or 37
•  Maintaining the existing agreement with the GBFF administered by the GEF. 37
• The African group – made up of 54 African countries – and Brazil support the first option, arguing that developing countries struggle in accessing GEF financing due to its slow and cumbersome processes, and that the levels of funding made available from the Global North are insufficient to achieve Target 19 (as covered in Section 2.3.1.a.). They also challenge the GEF’s governance structure and its legitimacy, claiming it is unfair that megadiverse countries share seats on the GEF Council, while donor countries with less biodiversity have full seats. They require a new separate fund for implementing the GBF, independently financed and managed but under the authority of the COP. 38
• In contrast, countries including the EU, Norway, Switzerland and Australia, favour the third option, and maintain the GBFF as the best way of channelling finance for biodiversity as it would avoid the additional administrative burden and time needed to set up a new fund. The EU advocates for further investment in improvements to the current GEF structure, addressing existing financing issues, and adopting a revised strategy for resource mobilisation. China has not taken a strong position but emphasises the need for GEF’s ninth replenishment period – the next four-year cycle, running from 2026 to 2030 – to significantly increase biodiversity financing and simplify funding procedures. 38
• This discussion on the modalities of the GBF’s financing mechanism is critical, as it underscores fundamental disparities between the Global North and South, particularly concerning governance. These differences have threatened the GBF negotiations in the past and pose a similar threat now. Addressing these concerns effectively is essential to avoid jeopardising the implementation of the GBF. 38
• Additionally, Parties will discuss reviewing and aligning the resource mobilisation strategy with the GBF, aiming for adoption at COP16. Indeed, since COP15, there has been an increasing recognition of the need for an integrated and holistic approach to resource mobilisation. 38
• 3.3. Multilateral agreement on the fair and equitable sharing of benefits from the use of DSI on genetic resources 38
• The debate over whether Digital Sequence Information (DSI) on genetic resources should be subject to Access and Benefit -sharing (ABS) obligations, similar to those under the Nagoya Protocol, has been highly contentious. This issue was a key condition for some countries in the adoption of the GBF. At COP15, a broad agreement was reached, outlining general principles but lacking concrete measures for their implementation. The agreement established that the system should support open access to data and be mutually supportive of existing ABS instruments. 38
• COP16 is expected to finalise and operationalise the multilateral mechanism on the fair and equitable sharing of benefits from the use of DSI on genetic resources, including creating a global fund. Negotiations held in Montreal in August 2024 addressed many issues but left several unresolved. 38
• A tentative consensus has emerged around requiring monetary benefit-sharing contributions from all companies in sectors which rely on DSI, potentially generating funding for biodiversity and advancing Target 19 (on mobilising finance) of the GBF. The outcome of these discussions is a recommendation to the COP, featuring a list of options for the mechanism’s modalities, including methodology and criteria for funding allocation and its integration with national ABS measures. 39
• Box 3: The principle of Digital Sequence Information (DSI) and its relevance to the GBF 39
• Source: IDDRI, Biodiversity COP15: what future for digital sequencing information? 23 February 2023. Available at: https://www.iddri.org/en/publications-and-events/blog-post/biodiversity-cop15-what-future-digital-sequencing-information#footnoteref1_68z8trx. 39
• The primary contention lies between countries in the Global South, which are rich in biodiversity but have limited technological capacity to use such resources, and advocate for applying the ABS mechanism to DSI, and countries in the Global North, which have less biodiversity but greater capacity to use genetic resources and have opposed such extension. 39
• At the latest Montreal meeting, the African group insisted that the new mechanism must be legally-binding and supported by a global fund. They proposed financing through a 1% tax on sales of products derived from the use of such resources. Given that the estimated annual revenue generated from the use of DSI on genetic resources ranges from one to a few trillion US dollars annually, this tax could potentially generate between 10 to a few tens of billions dollars annually. The EU advocates for a level playing field for all DSI users and supports developing modalities for monetary benefit-sharing, joined by other countries in the Global North which support the idea of open-access and public DSI databases. 39
• Regarding financing, options include project-based funding or direct allocation to countries based on certain criteria. The EU is sceptical of creating a new fund, to avoid fragmentation, while Brazil prefers the fund not be linked with the GEF, similarly to the approach taken with the GBFF. Discussions are ongoing, and an agreement is yet to be found on a contribution system to this fund. 39
• The potential role of this multilateral mechanism in mobilising financial resources for the GBF is crucial, which explains discussions around a global fund associated with this mechanism, but it remains to be discussed and clarified. 40
• 3.4. Further priorities identified by the European Commission 40
• At an ENVI Committee meeting in October 2024, the European Commission identified two additional priorities, alongside those set by the Colombian COP presidency. 40
• The first priority is to strengthen the connection between climate change and biodiversity, recognising that the triple planetary crises – climate change, biodiversity loss, and pollution – are interlinked and must be addressed together (aligned with Targets 8 and 11). Climate change, a key driver of biodiversity loss, demands coordinated efforts to minimise its impacts on biodiversity. With the COPs of the three Rio Conventions (COP16 of the CBD in Colombia, COP29 of United Nations Convention on Climate Change in Azerbaijan and COP16 of the United Nations Convention to combat Desertification in Saudi Arabia) scheduled in close succession, there is a need for improved coordination, policy coherence and funding alignment. This includes aligning NBSAPs and Nationally Determined Contributions, a message reinforced by the COP28 Joint Statement on Climate, Nature and People. Additionally, developing headline indicators for Target 8 – currently missing – is essential for measuring progress. 40
• The second priority is advancing biodiversity mainstreaming across society and the economy, particularly in sectors like transport, agriculture, fisheries and forestry, in support of Target 14. The European Commission aims for COP16 to operationalise this effort. Biodiversity mainstreaming is an important element of the EU’s current multiannual financial framework, and this priority underscores the importance of achieving the mainstreaming targets within the current budgetary period while also preparing for negotiations beyond 2027. 40
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•  WWF, 2022, Colombia, WWF and partners announce $245M agreement to permanently protect vital systems of nation’s protected areas, June 23. Available at: https://wwf.panda.org/wwf_news/?5909466/Colombia-WWF-and-partners-announce-245M-agreement-to-permanently-protect-vital-systems-of-nations-protected-areas. 49
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• ANNEX 1 50
• Table 2: Summary of the GBF targets 50
• Source: CBD, 2030 Targets (with guidance notes). Available at: https://www.cbd.int/gbf/targets. 50
• ANNEX 2 51
• Table 3: Overview of EU legislation implementing the GBF 51
• Source: Online reporting tool, EU national targets. Available at: https://ort.cbd.int/national-targets?countries=eu&recordTypes=nationalTarget7. 59
• Word Bookmarks -1
• Box1 33
• Box3 39