implementation of the eld in spain legal framework...
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MINISTERIODE MEDIO AMBIENTE
IMPLEMENTATION OF THE ELD IN SPAIN
LEGAL FRAMEWORK ANDTECHNICAL SOLUTIONS
Isaac Sánchez NavarroTechnical Advisor
General Directorate of Environmental Quality and AssessmentMinistry of the Environment and Rural and Marine Affairs
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1.1. LEGAL FRAMEWORKLEGAL FRAMEWORK
2.2. TECHNICAL COMMISSION ON THE PREVENTION AND TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGE REMEDIATION OF ENVIRONMENTAL DAMAGE
3.3. ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)
4.4. VALUATION OF SPANISH NATURAL ASSETS (VANE)VALUATION OF SPANISH NATURAL ASSETS (VANE)
MINISTERIODE MEDIO AMBIENTE
1.1. LEGAL FRAMEWORKLEGAL FRAMEWORK
2.2. TECHNICAL COMMISSION ON THE PREVENTION AND TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGE REMEDIATION OF ENVIRONMENTAL DAMAGE
3.3. ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)
4.4. VALUATION OF SPANISH NATURAL ASSETS (VANE)VALUATION OF SPANISH NATURAL ASSETS (VANE)
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European Directive 2004/35/EC, of the European Parliament and of the Council, of 21 April 2004, on environmental liability in relation to the prevention and remediation of environmental damage
Environmental Liability Law 26/2007, of 23 October
Includes administrative regime on environmental liability based on prevention and polluter-pays principles
Royal Decree 2090/2008, of 22 of December which enacts the partial implementation regulations of Environmental Liability Law 26/2007
Ministerial Order ARM/1783/2011
Priority order and timetable for the publication of ministerial orders that will set mandatory financial guarantee for each group of economic activities
MINISTERIODE MEDIO AMBIENTE
Reinforce prevention mechanisms to avoid accidents with harmful consequences for the environment
Ensure the environmental damage remediation from economic activities even when they are in full compliance with the law and have taken all the available preventive measures
Guarantee that prevention and remediation of environmental damage are faced by the responsible operator
LAW 26/2007 OBJECTIVESLE
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Environmental liability – Protection of environmental damage and imminent threat of environmental damage
(land, water, wildlife and protected habitats, sea coast)– It does not include traditional damage to persons and property– 30 years time frame
Strict and fault based liability – Annex III activities: strict liability– Other activities: fault based liability (fraud, fault or negligence)– Prevention and avoidance measures are always mandatory
Unlimited remediation liability– Obliges to return the resources and services damaged to baseline condition
regardless the remediation costsAdministrative liability
– Non-civil liability. It concerns the administration to enforce the Law 26/2007
MAIN FEATURESLE
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CONCURRENCE BETWEEN ENVIRONMENTAL LIABILITY AND PENAL AND ADMINISTRATIVE SANCTIONS
Art. 6.1 The liability established in the present Law shall be compatible with penal or administrative penalties imposed for the actions giving rise to the liability
Art. 6.3 If, due to the application of other laws, prevention, avoidance or remediation has been secured at the expense of the liable party, the actions provided for in this Law will not be necessary
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MINISTERIODE MEDIO AMBIENTE ADMINISTRATIVE COMPETENCES
Legislative development and implementation of the Law: Autonomous Communities in whose territory damage or harm-threats are located.
Central Government executive competence:
Law application of executive competence in terms of state owned public property (water and coasts)
Mandatory report in case of damage or the imminent threat of damageaffects state-managed water basins or state-owned public property
Where the territories of more than one Autonomous Community are affected or where Autonomous Communities must act in cooperation with the Central Government, the Administrations concerned shall establish the cooperation mechanisms considered appropriate for the effective exercise of the powers set out in the present Law:
Technical Commission on the Prevention and Remediation of Environmental Damage plays an important role
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MINISTERIODE MEDIO AMBIENTE MANDATORY FINANCIAL SECURITY
Annex III operators must ensure they have the financial security to cover the environmental liability inherent in their intended activity/sFinancial security forms: insurance policy or contracts, guarantee or ad-hoc technical reserves20 M€ limited coverage (prevention, avoidance and primary remediation costs), although liability is unlimitedWill be determined based on an environmental risk assessment
Exemptions mechanisms (art. 28 Law 26/2007):• Operators likely to cause damage remediation of which is estimated to be less than
300,000€.• Operators likely to cause damage remediation of which is estimated at between 300,000 and
2,000,000€ and who show, through certificates issued by independent bodies, that they are associated permanently and continuously with EMAS and/or ISO 14001.
• The use of the plant health products and biocides referred to in paragraphs 8.c) and 8.d) ofAnnex III for agricultural and forestry purposes
• Exclusion criteria (exemption of mandatory FG and environmental risk assessment)
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MINISTERIODE MEDIO AMBIENTE SECTORIAL ENVIRONMENTAL RISK ANALYSIS
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• Annex III operators obliged to carry out an Environmental RiskAssessment in order to:
– Determine if are under the obligation to have a FG or are exempted, and calculate its amount
– It is a prevention tool (risk management decision-making tool)
• Sectorial environmental risk analysis tools to help operators thefulfilment of their obligations (ERA) and share the costs betweenoperators:– MIRAT– Methodological guides– Scale charts
They must be approved by the Technical Commission
MINISTERIODE MEDIO AMBIENTE
Just
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Sectorial instruments for environmental risk assessment must be finished prior to the approval of the ministry orders set forth in final provision four of Law 26/2007
Heterogeneity and large scope of Spanish Environmental Law Annex-III operators
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Economic or professional activities that must conduct the environmental damage assessmenton a priority basis Exclusion criteria for low-risk activities (Technical Commission)
Classification of Spanish Environmental Law Annex-III activitiesSectorial instruments for environmental risks assessment (MIRAT, TB, GM)
Number of Annex III operators for each autonomous communities
Organize the reception and processing of sectorial proposals (Technical Commission)
Gradual implementation of mandatory FGGuidance on timing for individual risk assessment
Provide operator the estimation of entry into force of mandatory FGEnvironmental risk prevention and minimization
Sectorial priority order and timetable for the publication of ministerial orders that will set the mandatory FG for each group of economic or professional activities
The calculation of FG must be based on an homogenous risk scenarios assessment (Art. 24.3 Law 26/2007)
MINISTERIAL ORDER ARM/1783/2011 (I)
MINISTERIODE MEDIO AMBIENTE
Priority rate estimation (semi-quantitative analysis) Six priority levels (A - F)Weighing of environmental risk variablesSector analysisIPPC and Seveso priority activities
------DR 30 - 40F
------DR 20 – 29E
------DR 10 – 19D
---AR > 5%DR 0 – 9C
Environmental risk assessment or equivalent1% < AR < 5%---B
Environmental technical studies, previous mandatory security systems and bonds
0 < AR < 1% ---A
CRITERION 3State legislation on prior obligations in terms of risk assessment, technical studies, bonds and security systems
CRITERION 2Accident rate [(Nº acc/ Nºcompanies) * 100]Source: Accident data base (Chemical risks in industry installations 1999 -2010, Civil Defense)
CRITERION 1Danger rate (IPPC Activities assessment)Source: PRTR-SPAINNote: Priority level is extended to professional sector when more of the 50% of its activities belongs to IPPC
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MINISTERIAL ORDER ARM/1783/2011 (II)
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Priority level 1 The publication of the MO will be between two and three years from the date of its entry into force
Priority level 2The publication of the MO will be between three and five years from the date of its entry into force
Priority level 3The publication of the MO will be between five and eight years from the date of its entry into force
218294368771Annex III sectors
Total1(F)
2 (E)
3 (D)
3 (C)
3 (B)
3 (A)Priority level
MINISTERIAL ORDER ARM/1783/2011 (III)
MINISTERIODE MEDIO AMBIENTE
1.1. LEGAL FRAMEWORKLEGAL FRAMEWORK
2.2. TECHNICAL COMMISSION ON THE PREVENTION AND TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGEREMEDIATION OF ENVIRONMENTAL DAMAGE
3.3. ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)
4.4. VALUATION OF SPANISH NATURAL ASSETS (VANE)VALUATION OF SPANISH NATURAL ASSETS (VANE)
MINISTERIODE MEDIO AMBIENTE
ObjectivesGuarantee technical cooperation and collaboration between central government and autonomous communities for information exchange and advisingArticle 3 RD 2090/2008Flexible structureAttached to the Ministry of the Environment and Rural and Marine Affairs through the General Directorate of Environmental Quality and AssessmentFunctions:
– Advising– Information exchange– Cooperation and collaboration
MembersPresidency: General Directorate of Environmental Quality and Assessment (MARM)Vice-presidency: one of the representatives of the Autonomous CommunitiesMembers (36): CG, AACC, Autonomous Cities and Local Entities
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NTECHNICAL COMMISSION ON THE PREVENTION TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGEAND REMEDIATION OF ENVIRONMENTAL DAMAGE
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Objective 1.- Technical platformEnvironmental liability supply model (MORA) methodology completionSpanish Environmental Law-annex III analysis Development of the structure and contents that shall be included in sectorial tools for environmental risk assessment, and examplesTechnical support and advice to sectors involved
Objetive 2.- Administratives mechanismsFour working groups within the Techical Commission
Objetivo 3.- Regulatory mechanisms Priority and calendar for the entry into force of mandatory financial security(Ministerial Order ARM/1783/2011)Exclusion criteria
TECHNICAL COMMISSION OBJECTIVES 2011TE
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MORA completion- Software tool with free web access: developing
Development of the structure and contents that shall be included in sectoral tools for environmental risk assessment, and examples
- Strucutre and general contents ended completed and published in MARM website in July 2010
- Examples of MIRAT and scale charts
Technical Support and advice to the several sectors involved- Technical support and advice for different sectors wishing to design or that are
developing sectorial tools for environmental risk assessment- Performing one of each sectorial tools for environmental risk assessment under RD
2090/2008:Scale charts: paints and printing iks sectorMIRAT: olive and seed oil sector Methodological Guide: non-energy mining extractive sector
ACTIONS OBJECTIVE 1.- TECHNICAL PLATFORM
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Analysis Service of evaluation Tools of chemicals behavior and dissemination in the framework of the Environmental Responsibility Regime
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1.1. LEGAL FRAMEWORKLEGAL FRAMEWORK
2.2. TECHNICAL COMMISSION ON THE PREVENTION AND TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGE REMEDIATION OF ENVIRONMENTAL DAMAGE
3.3. ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)
4.4. VALUATION OF SPANISH NATURAL ASSETS (VANE)VALUATION OF SPANISH NATURAL ASSETS (VANE)
MINISTERIODE MEDIO AMBIENTE Context: RD 2090/2008
Chapter III: Mandatory Financial Guarantee
Environmental Risk Analysis (art.34-36)
Determination of FG (art.33):
1. Identification of risk scenarios and its probability
2. Environmental damage cost
A. Quantification
B. Cost MORA
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MORA helps operators fulfill their EL obligations
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Assessment of different accident scenariosValuation model ex-ante and ex-post
OBJECTIVES:Evaluation of scientific literature
Development of techniques catalogs
Design of the mechanisms for techniques selection
Design of the economic model for damage assessment
JUSTIFICATION AND OBJECTIVES
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DAMAGE FEATURES
Phases:
Identification of Natural resourceIdentification of Damaging agentIdentification of affection level Identification of Remedial measures
Combination of water, soil and habitatCoast (sea and river)SpeciesSpeciesHabitatHabitatSoilSoilWaterWaterModel equivalencyELD Resources
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Combination of water, soil and habitatCoast (sea and rivers)
haR-RBiocoenosisHabitat (plants)
NºR-RBiocoenosisSpecies (plants and anim.)
tR-RBiotopeSoil
m3R-RBiotopeWater
UNITMETHODTIPERECEPTOR
IDENTIFICATION OF NATURAL RESOURCE (I)En
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Base mapping:
Forest Map of Spain 1:50,000 (MFE50)
Third National Forest Inventory (IFN3)
Rivers, lakes and reservoirs (MARM)
Groundwater bodies coverage (MARM)
Digital Terrain Model (DTM)
Permeability map (MARM)
National Cartographic Base
Protected Natural Areas (PNA)
National Biodiversity Inventory
IDENTIFICATION OF NATURAL RESOURCE (II)En
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Physical agent
Extraction
Dumping of inert
Temperature
Fire Biological agent
GMO
Exitics species
Viruses and bacterias
Fungi and insects
Chemical damaging agent 1
Non-halogenated volatiles compounds
Volatile halogenated compounds
Non-halogenated semi-volatile compounds
Halogenated semi-volatile compounds
Fuel
Inorganic substances
Explosives
1 Federal Remediation Technologies Roundtable (http://www.frtr.gov/)
IDENTIFICATION OF DAMAGING AGENT
MINISTERIODE MEDIO AMBIENTE
PACK I:
Location
¿Where?
Coordinates
Accesibility
Distance to nearest road
Protected area
Infiltration risk
Groundwater body presence
Permeability
Slope
Species
Canopy cover
Trees age
Density
Land use
Animal species present
PACK II:
Damage Causing - Agent
¿What?
Chemical. Degradability
Physical
Fire
Biological
PACK IV:
Damage reversibility
¿Yes/no?Based on:
- Environment features
- Damaging agent and extent
- Disproportionate Cost
- Time frame not reasonable
PACK III:
Damage cuantification
¿Extent?
Surface water (m3)
Underground water (m3)
Marine water
Soil (tons)
Habitat (Ha)
Species (Nº individuals)
Red: user data
TREES OF EVENTS PARAMETERS
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ACCESIBILITYACCESIBILITY
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INFILTRATION RISKINFILTRATION RISK
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LAND USELAND USE
Forest Map of Spain + Rivers + Reservoirs + Lakes = land use
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5654321ChemicalPlantsAnimalGroundwaterSurfaceMarine
SpeciesHabitatSoil
Water
Spanish Aut. Com. Recovery Center6
Tragsa 2007 Price listsCutting and replanting5
FRTR (USA)Cleaning spills (soil)4
FRTR (USA)Cleaning spills (underground water)3
FRTR (USA)Cleaning spills (surface water)2
Salvage (Spanish Ministry of Development)Cleaning spills (marine water)1
Main data sourceNameCode
PRIMARY REMEDIAL MEASURES (I)
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SpeciesHabitatSoil
Water
PlantsAnimalGroundwaterSurfaceMarine
1211151414Temperature
1313Dumping of inert
121110987Extraction
Physical
Tragsa 2007 and Aut. Com. Price listsEndargered species plantation12
Tragsa 2007 Price listsPick up and transfer to landfill disposal13
Tragsa 2007 Price lists and Wtaer Price Statistics (NSI)Issuance of room temperature water 14
Tragsa 2007 Price listsAffected mass removial and replanting15
Spanish Aut. Com and USABreeding and restocking11
Tragsa 2007 Price listsPlantations10
Tragsa 2007 and Forestry Association 2004 Price lists Replacement of extracted soil9
Tragsa projectsArtificial recharhe of aquifers8
Tragsa 2007 Price lists and National Statistics Institute (NSI)Pumping water extracted7
Main data sourceNameCode
PRIMARY REMEDIAL MEASURES (II)
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SpeciesHabitatSoil
WaterPlantsAnimalGroundwaterSurfaceMarine
1916Fungi and insects
11Viruses and bacterias
181716Exotic species
181716GMO
Biological
121115Fire
Tragsa 2007 Price listsAfected mass removal and replanting15
Tragsa 2007 and Aut. Com. Price listsCapture and restocking17
Tragsa 2007 and Aut. Com. Price listsCutting and replanting endargered species18
Tragsa 2007 and Aut. Com. Price listsEndargered species plantation12
Tragsa 2007 Price listsCutting and replanting16
Tragsa 2007 Price listsPlague treatment19
Spanish Aut. Com and USAAnimals raising and restocking11
Main data soruceNameCode
PRIMARY REMEDIAL MEASURES (III)
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Alphanumeric results
Cartographic results
RESULTS OF THE MODEL
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Factors that affects the remedial technique to apply:- Damaging Agent
- Features of the receptor
Factors that affects the length of theremediation:
- RemedialTechnique
- Features of the receptor
Economic value of the environmental damage(Art. 33 Royal Decree)
Selection of remedial measures
Alphanumeric results
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AG
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RECEPTOR FEATURES
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Duration
Time required REA CMP
CPL
Cost €/u.f. Primary
Remedial Technique
Alphanumeric results: Matrixes
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Assign a remedial technique of each combination damaging agent –receptor features
Example. Decission Tree to assign remedial techniques of damagescaused by non-halogen OVC
Damage by non-degradable
halogen OVC onsoil
Non accesible
Accesible
Yes Natural recovery
Irrevirsible damageNo
Yes
NoHigh
Low
Technique 3
Technique 4
High
Low
Technique 1
Technique 2
Accesibility Biodegradable matter
Remedial TechniqueProtectedarea Permeability
Alphanumeric results: Decission Trees
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30,00• Natural recovery
0,7552,11• Landfarming
0,5299,00• Solidification/Estabilitation
0,25343,95• Oxidation/Chemical Reduction
252,11• Enhanced Biorremediation
0,75135,49• Biopiles
Recovery timeframe(years)
Cost(€2010/t)
Technique
Soil remedial techniques (chemical damages)
Alphanumeric results: Techniques
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Costs to take into account:
Prevention and avoidanceRemedial (primary, compensatory and complementary)
Budget calculation:Base costs (exploitation costs)C.I (6%) + C.C (1%) = PEPE + consultancy costs = PEMPEM + S.S (1,5%) = PGPG + G.G y B.I (19%) = PECPEC + contingency security margin (20-40%) = PT s/IVAPT s/IVA + IVA (18%) = PT c/IVA
Alphanumeric results: Techniques
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Remediation cost maps
Digital format: raster
National Scope
Resolution: 1 hectare
Units: euros/units resource
They represent the estimated cost for the remediation of oneresource unit in each píxel of the national territory
Reference grid: Valuation of Spanish Natural Assets (VANE) (MARM, 2010)
Cartographic results
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SAMPLE 1: Accesibility map based on the slope
Cartographic results
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SAMPLE 2: Map of distance to the nearest road
Cartographic results
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SAMPLE 3: Map combining the variables for soil chemical damages
Cartographic results
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SAMPLE 4: Map for the remediation of the damaged caused by inorganicsubstances to soil. Primary remedial measure
Cartographic results
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SAMPLE 5: Map for the remediation of damage caused by the infiltration ofexplosive substances into the aquifer. Primary remedial measure
Cartographic results
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SAMPLE 6: Map for the remediation costs of habitats damaged by fire. Primary remedial measure
Cartographic results
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MORA is a monetization tool for environmental damage (primary, compensatory and complementary remediation costs)
The absence of a specific management information about natural resources remediation costs has hampered data collection phase
MORA enables to estimate the extent of financial guarantees, but obtaining more accurate results of the model requires scaling from actual cases
Future free Internet software application. Expected finalization: end of 2011
MORA solves cases by an Resource-Resorce approach. If this is not possible user must use Service-Service, Value-Value or Value-Cost approaches
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More information about MORA methodology on:
www.marm.es/es/calidad-y-evaluacion-ambiental/temas/responsabilidad-mediambiental/jornadas/jornada_pres_mod/jornadamora2011.aspx
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MINISTERIODE MEDIO AMBIENTE
1.1. LEGAL FRAMEWORKLEGAL FRAMEWORK
2.2. TECHNICAL COMMISSION ON THE PREVENTION AND TECHNICAL COMMISSION ON THE PREVENTION AND REMEDIATION OF ENVIRONMENTAL DAMAGE REMEDIATION OF ENVIRONMENTAL DAMAGE
3.3. ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)ENVIRONMENTAL LIABILITY SUPPLY MODEL (MORA)
4.4. VALUATION OF SPANISH NATURAL ASSETSVALUATION OF SPANISH NATURAL ASSETS
VANE project
Objective INatural services identification and creation of physical models of value assignment. Determination of its value for all the territory
Objective IIDevelopment of a Land Information System of natural capital in order to obtain value maps for each of the considered ecosystems services
VANE: Valoración de los Activos Naturales de EspañaValuation of Spanish Natural Assets
VANE project
Carrying out effective methods to determine the economic value of ecosystems goods and servicesOptimization of decision-making processes on environmental managementA reference for alternative uses of natural resources appraisalMore available information about benefits that environmental services provide to societyDecision-making support on land management and public policydevelopmentConsideration of positive and negative externalities in national accounts
SUPPORT
• Nutrient cycling• Soil formation• Primary production• …
SUPPLY
REGULATION
• Climate regulation• Flood control• Disease control• Erosion control• Water purification• Pollination…
CULTURAL
• Aesthetic• Spiritual• Educational• Recreational activities…
• Food• Freshwater• Wood, fiber and fuel• Biochemical and pharmaceutical
products• Genetic resources…
Ecosystems goods and services
Results. Erosion control
Valuation model of goods and services provided by Spanish ecosystems nationwide
Minimum-assessment, preserving the conservation principle
Involves a comprehensive assessment of ecosystem services that are provided in a given time (snapshot)
Conclusions
Value duplications have been avoided in ecosystem services assessment
VANE in Spanish Environmental Liability Law Context
Warnings
VANE is a decision making support tool, which must be used with responsibility:
- Was developed prior to Spanish Environmental Liability Law- Gives a minimum value (unlike MORA)- Does not offer an ecosystem service global value - National scale (1 Ha) - VANE results provide some guidance that must be checked and fitted to each case
Identification of ecosystems servicesNatural resources assessment methodologySocial value of ecosystem servicesMapping results in digital version
Applications
Assistance in the identification of damaged ecosystem services
Assistance in assessing the proportionality of remediation costs(MORA)
Assistance for the assessment of damaged natural resources and ecosystem services in the alternative matching criteria: value-value and value-cost
It offers a catalogue of specific valuation methodologies to apply in specific cases
Continuous evaluation of VANE utility in the context of the Environmental Liability Regime
MINISTERIODE MEDIO AMBIENTE
IMPLEMENTATION OF THE ELD IN SPAIN
LEGAL FRAMEWORK ANDTECHNICAL SOLUTIONS
THANK YOU VERY MUCH FOR YOUR ATTENTION
Isaac Sánchez NavarroTechnical Advisor
General Directorate of Environmental Quality and AssessmentMinistry of the Environment and Rural and Marine Affairs
10th
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2011