Policy paper

Defra’s statement on the strengthened biodiversity duty

Published 17 September 2025

Applies to England, Scotland and Wales

About Defra

As the Department for Environment, Food and Rural Affairs (Defra), Defra is the lead ministerial department for improving and protecting the environment. Defra’s mission is to restore and enhance the environment for the next generation, leaving it in a better state than it was found.

Defra is responsible for the government’s biodiversity policy. Through the Environment Act 2021, Defra set 4 legally binding targets for biodiversity in England, legislating to:

• halt the decline in species abundance by 2030 and reverse species decline by 2042
• reduce the risk of species extinction
• restore or create more than 500,000 hectares of wildlife-rich habitat by 2042

Defra has also introduced policies to support nature recovery, including environmental land management schemes, biodiversity net gain, and local nature recovery strategies.

Defra is the policy-holder for England’s strengthened biodiversity duty and has worked with public authorities to publish guidance on GOV.UK on complying with the biodiversity duty, and reporting biodiversity actions.

About the biodiversity duty

The government introduced England’s strengthened biodiversity duty under the Environment Act 2021 on 1 January 2023 through amendments to section 40 of the Natural Environment and Rural Communities Act 2006.

The duty was strengthened in response to criticism that the existing duty was limited in its impact on action for biodiversity. The intention of the strengthened duty is to ensure public authorities make the conservation and enhancement of biodiversity a core consideration when delivering their functions. 

The duty requires all public authorities that have any functions exercisable in England to consider what they can do to conserve and enhance biodiversity, consistent with the proper exercise of their functions. Authorities must determine policies and specific objectives for taking action as soon as practicable and then take that action. Under the duty, public authorities must review the actions they can take to further conserve and enhance biodiversity at least every 5 years.

This statement sets out Defra’s consideration of actions to further conserve and enhance biodiversity across its functions, and the relevant policies and objectives to support delivery of these actions.

There are similar biodiversity duties in Wales, Scotland and Northern Ireland which apply to certain public authorities, where they have functions exercisable in relation to these countries. Under the Wales and Scotland biodiversity duties, government departments must publicly report on action taken under those duties every 3 years. Annex A sets out the actions that Defra has taken for biodiversity in relation to Wales and Scotland over the last 3 years.

Defra’s functions

Defra has various functions relevant to the conservation and enhancement of biodiversity. Defra’s initial consideration under the duty included all policies and programmes that have potential to further the conservation and enhancement of biodiversity across the range of Defra’s functions, not just those immediately relevant to biodiversity.

Policy-making is particularly important: Defra is the government department responsible for biodiversity policy. Defra has recently introduced, or is in the process of introducing, a breadth of policies and programmes important for biodiversity conservation and enhancement, which will deliver the government’s statutory biodiversity targets.

Defra’s other functions with potential to strengthen the conservation and enhancement of biodiversity are:

• property (in relation to the Defra group estate)
• research analysis and evaluation
• finance
• commercial
• communications
• raising the public’s awareness of biodiversity.

Other Defra functions were explored but deemed to not currently have significant potential to further conserve and enhance biodiversity. These will be kept under regular review.

Defra’s approach

Defra took each relevant function in turn and considered the actions that had been taken, and potential areas for additional action, to further the conservation and enhancement of biodiversity.

The approach focused on action that can be taken to embed consideration of biodiversity across Defra’s functions. We considered how the relevant strategies and frameworks that shape how Defra delivers its functions could be amended to ensure action to conserve and enhance biodiversity is at the heart of delivery of these functions. For example, seeking to integrate information on applying the biodiversity duty to Defra’s policy-making resources. In addition, Defra will review its actions every two years to identify opportunities for further action and maintain a record of our compliance with the duty. 

When complying with the biodiversity duty, public authorities must have regard to relevant local nature recovery strategies, species conservation strategies and protected site strategies. At the time of publication these strategies are not fully in place. As they are published, consideration will be given to how Defra can have regard to these under the duty, and any subsequent action to conserve and enhance biodiversity.

In completing this consideration, Defra has also considered the United Nations Convention on Biological Diversity of 1992, and aims to support delivery of the Kunming-Montreal Global Biodiversity Framework (GBF) agreed at COP15 in December 2022.

Defra also worked with the Joint Nature Conservation Committee to publish the UK national biodiversity strategy and action plan, a national statement of how the UK will achieve the goals and targets in the GBF.

Defra’s actions 

The actions Defra could take under the duty are listed below, against each relevant function.

Actions are categorised under 3 timeframes:

• short term – delivery has started and is expected to be completed within the next 2 years
• long term – delivery may take longer than 2 years or is ongoing
• potential – actions being considered, delivery timeframes not yet known

Policy-making

Defra is responsible for designing and implementing policy across a range of areas, including the natural environment, food, farming, fisheries, land-use, animal and plant health and welfare.

Many of Defra’s policies focus on conserving and enhancing biodiversity, but other policies could also impact biodiversity.

Objective

Integrate consideration of biodiversity into policy-making at a strategic level, through:

1. Embedding biodiversity considerations into key policy documents and strategies, as part of broader efforts to explicitly take a natural capital approach to policy-making.

2. Ensuring that consideration of the environmental principles policy statement is effectively incorporated into policy decisions across the department, and that biodiversity conservation and enhancement are considered in application of the principles.

Actions to embed biodiversity in this function

1. Ensure the environmental principles duty is incorporated into policy decisions across the department and that biodiversity conservation and enhancement are considered in application of the principles (short term).
2. Explore ways to apply the biodiversity duty to policy-making through conducting natural capital appraisals, alongside applying the environmental principles duty (short term).
3. Integrate information on applying the biodiversity duty to Defra’s policy-making resources (short term).
4. Consider amending policy submission templates and guidance to integrate the duty into these key policy documents (potential).
5. Explore opportunities to integrate information on applying the duty to policy-making into relevant training programmes (potential).
6. Work actively through the Environmental Improvement Plan (EIP) Board (the Defra- chaired board that oversees action across government departments to deliver the EIP) to raise awareness of the biodiversity duty and review implementation and consideration at departmental level (short term).

Property

Defra group is responsible for a large and diverse portfolio of land, from the grounds of offices and depots to land within nationally significant protected sites and national parks.

The Defra group owns more than 330,000 hectares of land, more than any other government department, making it one of the largest landowners in the UK. Approximately 62% is woodland, 4% is farmland and 1% is urban. Approximately 65% comprises protected sites.

Objectives

Ensure that Defra’s estate is contributing towards the government’s targets for biodiversity and wider nature recovery. 

Lead by example across government and the private sector on managing the estate for nature.

Facilitate co-operation between government departments on taking action for nature on the government estate.

Actions to embed biodiversity in this function

1. Develop the Defra Group Nature Recovery Plan under the Greening Government Commitments, including setting targets for nature recovery on Defra group land to support delivery of the government’s statutory biodiversity targets and wider nature commitments (short term). 
2. Develop a natural capital evidence base to inform the development of the Nature Recovery Plan, bringing together data to inform decision-making. The methodology developed will be delivered across government (short term). 
3. Integrate the biodiversity duty into all actions and targets underpinning Defra Group’s Sustainability Strategy: nature recovery and enhancement to be embedded in all decision-making related to Defra group’s land (long term). 

Further actions

1. Lead the development of a cross-government nature strategy to ensure that opportunities for nature are maximised across the government estate and that government land is contributing fully to statutory environmental targets and EIP commitments (short term). 
2. Lead the development of policy to guide high-integrity nature market transactions across the government land portfolio (short term). 
3. Develop a methodology to baseline and centrally map government land for the purpose of identifying opportunities for nature recovery and enhancement (short term). 

Research, analysis and evaluation

Defra group runs substantial research and development programmes to support and promote biodiversity and monitors a range of areas, including natural environment, water, food farming and biosecurity, marine and fisheries, and environmental quality. Monitoring programmes provide essential quality data and information on which to assess impact and progress.

Defra’s evaluation capability and associated evidence base has grown over recent years and continues to strengthen its programme of analysis and evaluation.

Objectives

To better use data and information about biodiversity in policy-making and implementation. 

To more fully consider biodiversity in decisions and practice around research, analysis and evaluation.

Actions to embed biodiversity in this function

1. Seek opportunities to embed biodiversity considerations as part of wider natural capital integration into strategic documents informing science and research. For example, Defra’s codes of practice for research and evidence, so that biodiversity is considered in the development of projects (potential). 
2. Through taking a natural capital approach, integrate biodiversity considerations into business case templates and guidance for new research projects, so that biodiversity is routinely considered (potential). 
3. Leverage HM Treasury to include biodiversity duty and the environmental principles duty in the main text of HM Treasury’s The Green Book (short term). Updated guidance on measuring, valuing and integrating biodiversity impacts is available in HM Treasury’s Green Book supplementary guidance: Enabling a Natural Capital Approach guidance.
4. Identify opportunities to embed biodiversity considerations into HM Treasury’s Magenta Book and Defra’s Theory of Change Toolkit and other relevant documents so that biodiversity outcomes are considered in theories of change and evaluation plans (potential).

Finance

Defra is responsible for a large budget, spending over £6 billion in 2022 to 2023. Decisions on spending therefore have potential to impact on biodiversity conservation and enhancement.

Defra also provides funds relevant to conservation and enhancement of biodiversity. 

Objectives

Integrate consideration of biodiversity into Defra’s decisions on expenditure, to support nature positive spending, including integration of green finance.

Continue to fund nature conservation and enhancement activity in support of delivery of the government’s ambitions for nature.

Action to embed biodiversity in this function

1. Integrate biodiversity considerations into Defra’s investment appraisal processes and spending review bids (short term).

Further action

1. Provide ongoing advice to, and partner with, HM Treasury on ways to strengthen biodiversity considerations in spending decisions, guidance and investment appraisal requirements (for example, The Green Book).

Commercial 

Defra procures goods, services and work from a variety of suppliers, with potential for impacts on biodiversity and wider sustainability.

Objective

Embed consideration of biodiversity into Defra’s procurement processes, working towards nature positive procurement.

Action to embed biodiversity in this function

1. Explore opportunities to shape Defra procurement criteria to further incorporate biodiversity considerations (long term).

Further action

1. Work with other government departments and the Cabinet Office to explore opportunities to include nature considerations (alongside net zero and climate resilience) within government procurement (potential).

Communications and public awareness 

Defra communicates with a wide range of audiences about the work and policies of the government, including sharing action that people can get involved in to help conserve and enhance biodiversity. 

Objective

Educate and inspire the public and other audience groups to take positive action to conserve and enhance biodiversity and mitigate harm. 

Actions to embed biodiversity in this function

1. Promote further opportunities for staff to lead by example or become advocates for biodiversity-friendly actions (short term). 
2. Continue to promote schemes and grant offers to audiences with most potential, to help achieve positive outcomes for biodiversity – through media, digital platforms, ministerial outreach and stakeholder engagement (short term).

Annex A: Actions taken for biodiversity in relation to Wales and Scotland

Under the Wales and Scotland biodiversity duties, where they have functions exercisable in relation to those countries, government departments are required to publicly report on action taken for biodiversity under those duties every 3 years.

The actions that Defra has taken for biodiversity in relation to Wales and Scotland over the last 3 years are set out below. As most of Defra’s policy-making is devolved, action taken by Defra for biodiversity in relation to Wales and Scotland is limited.

International biodiversity

The 4 nations of the UK (England, Wales, Scotland and Northern Ireland) have collaborated closely in the production of a UK-wide national biodiversity strategy and action plan (NBSAP), including a national targets template, aligned with the Global Biodiversity Framework.

The nations have identified the policies and actions in place to deliver against the 23 targets of the Global Biodiversity Framework at home. The national targets template was submitted to the UN Convention on Biological Diversity on 1 August 2024, while the full NBSAP was published on 26 February 2025.

CITES

The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) applies across the UK. Defra has continued to support the aims of the Convention and robustly implement these across the UK. This includes ensuring that the UK CITES Authorities are suitably resourced to effectively carry out their permitting and enforcement functions.

To support the enforcement of CITES rules, Defra has recently supported the development of a forensic standard DNA test for peregrines to tackle illegal wild take. In Scotland, the peregrine DNA test has supported the successful prosecution of non-compliance cases which involved the illegal taking, and subsequent sale, of peregrines from the wild.