Introduction
Context: confusion concerning FCS concept impairs effectiveness of EU nature conservation law
Objective and outline
Broader relevance
Method
The FCS concept under the Habitats Directive
A crucial yardstick for the application of the Habitats Directive
The meaning of FCS: a legal question with a legal answer
Interpreting EU law: a nuanced affair
Little room for bold statements concerning ‘the correct interpretation’
The rules of the interpretation game
How interpretation questions reach the EU Court
FCS for large carnivores in Europe
Large carnivores in Europe: a special challenge
The 2008 Carnivore Guidelines
An operational definition for FCS for large carnivores
(1) Population dynamics data on the species concerned indicate that it is maintaining itself on a long term basis as a viable component of its natural habitat [Article 1 (i)]. We interpret this as implying that monitoring data indicate the population has a stable or increasing trend. We believe that a slight reduction in population size may be permitted if it is a result of response to changes in prey density or habitat quality that are not caused by direct human action, unless conditions for derogations apply. All segments of a population should have stable or positive trends, and not just the population as a whole. And, |
(2) The natural range of the species is neither being reduced nor is likely to be reduced for the foreseeable future [Article 1 (i)]. We interpret this as implying that the overall distribution of the population is stable or increasing. And, |
(3) There is, and will probably continue to be, a sufficiently large habitat to maintain its population on a long-term basis [Article 1 (i)]. We interpret this to imply that the quality and continuity of habitat should be sufficient, and have a stable or increasing trend. And, |
(4) The population size and range are equal to or greater than when the Directive came into force. And, |
(5) The favourable reference population size has been reached. According to our proposal this will be set at levels greater than those regarded as being viable using the IUCN red list criteria D or E. And, |
(6) The favourable reference range has been occupied. And, |
(7) Connectivity within and between populations (at least one genetically effective migrant per generation) is being maintained or enhanced. And, |
(8) Member States shall undertake surveillance of the conservation status of the natural habitats and species referred to in Article 2 with particular regard to priority natural habitat types and priority species [Article 11] and Member States shall establish a system to monitor the incidental capture and killing of the animal species listed in Annex IV (a) [Article 12.4]. These statements combine to indicate that the population should be subject to a robust monitoring program. |
The appropriate scale(s) to achieve FCS for large carnivores
The million euro question: FCS at what geographic scale?
FCS in the context of reporting
FCS in the context of site protection
Interestingly, the CJEU determined in 2013 that in order for the integrity of a site as a natural habitat not to be adversely affected for the purposes of the second sentence of Article 6(3) of the Habitats Directive the site needs to be preserved at a favourable conservation status (CJEU 11 April 2013, Case C-258/11). The Court reaffirmed this position a year later (CJEU 15 May 2014, Case C-521/12). These cases, however, concerned localized occurrences of particular habitat types (limestone pavement and molinia meadows, respectively). When presented with a case concerning a site designated for wolves, bears or other large carnivores, the Court can certainly not be expected to interpret the Directive as requiring a FCS for such wide ranging species at the level of the site. Such an interpretation, to cite the Vienna Convention, would be unreasonable or even manifestly absurd, given that no single protected area in Europe is large enough to independently host a viable large carnivore population, and most can hardly contain the ranges of individuals (Linnell et al. 2001, 2008; Boitani and Ciucci 2009).The directives impose obligations on the Member States as such, which implies that—inter alia—favourable conservation status of species and habitat types of Community interest should be achieved at Member State level. This in turn implies that where favourable conservation status is achieved at the national level, the Member State does not necessarily have to achieve good conservation status in each individual site. However, as a general rule in all Natura 2000 sites, Member States must avoid the deterioration of the habitats of Community interest and the habitats of species of Community interest for which a site was designated. (European Commission 2011)