Learning from biodiversity offsets implementation within eThekwini Municipality (Durban), South Africa

Abstract

The use of biodiversity offsets has expanded internationally over the past four decades. However, amidst the wealth of offsets practice there seems to be limited follow-up empirical research to learn from practice. Therefore, the main question for this research is, “What can we learn from biodiversity offsets implementation within eThekwini Municipality?”. In order to answer the research question three research objectives were designed namely, i) to evaluate the level of conformance to the eleven best practice offset principles that have been established in the South African context, ii) to understand the factors affecting the level of conformance, and iii) to evaluate the effect of timing on the offset outcomes. In this context outcomes means conformance to best practice principles and the quality, viability and enforceability of biodiversity offsets. The methodology relied on document review and semi-structured interviews with various stakeholders involved in five purposefully selected biodiversity offsets case studies from eThekwini Municipality (EM). The research results show that the case studies from EM conformed to only three best practice principles and partially conformed to eight principles. The three conformed principles are principle 4: No-net loss; principle 9: Additionality; and principle 11: Offset follows landscape and ecosystem approach. The eight partially conformed principles are principle 1: Conformance to the mitigation hierarchy; principle 2: Proper offset agreement is in place before activity starts; principle 3: Transparency and stakeholder participation; principle 5: Focused on long-term outcome; principle 6: Offset is enforceable; principle 7: Cumulative, direct and indirect impacts are considered; principle 8: Limits to what can be offset; and principle 10: Like for like. Furthermore, the timing of introduction of the offset influenced the overall conformance to the best practice principles. In addition, the timing when the offset was proposed negatively influenced the quality, viability and enforceability of biodiversity offsets when the offset is introduced too late in the EIA process. As a result, implementation is compromised due to the lack of long-term commitment to the offset; the ability to fully offsetting ecosystem services; and effective stakeholder consultation on offsets. It is concluded that the adoption of a national policy for biodiversity offsets is long overdue and should be implemented as a matter of urgency to guide practice. Furthermore, the research recommends capacity building for biodiversity stakeholders on the best practice principles and for eThekwini Municipality (EM) to determine biodiversity priorities and viable mitigation options.