Keywords

Introduction

One of the challenges for the EU Forest Strategy 2030 is to address and harmonize economic, social, and environmental aspects of forest management, including integrating fire management practices while climate change projections over the Mediterranean Basin show that long and occasionally extremely dry periods are more likely to occur in the future [1]. Moreover, climate change brings cascading effects like pest and insect outbreaks, windthrows and biomass accumulation and continuity, and increased flood risk [2]. Healthy forest ecosystems provide essential ecosystem services [3], but climate change is expected to impact them along with their ability to meet multiple demands.

Therefore, forest management, including wildfire management, needs to be integrated and adapt to these challenging conditions in order to protect and preserve healthy and productive forests. Since forest ecosystems are vital both for well-being and the economy, postfire restoration, sustainable management, and resilience improvement are also crucial, responding to threats that come from climate change. Despite their degree of vulnerability, forests are increasingly exposed to climate change impacts which are expected to worsen with Global warming [4, 5].

This paper analyzes the current state of forest and fire management policies through a literature review, identifies needed changes, and highlights challenges and gaps through an As-Is and To-Be analysis.

EU Laws, Policies, Institutional Framework, and Strategies on Forest and Wildfire Sustainable Management

EU forests cover 42% of the total land area of the continent, equivalent to over 182 million hectares. With 0.36 hectares of forest per capita, the EU is committed to protecting this valuable natural asset for the benefit of all Europeans.Footnote 1 The European Green Deal aims to reduce greenhouse gas emissions by at least 55% by 2030, making Europe the first climate-neutral continent by 2050.Footnote 2 The new EU Strategy on Adaptation recognizes the increasing frequency and severity of climate extremes, leading to a rise in disasters and damage over the past two decades.Footnote 3 The new EU Strategy promotes a comprehensive policy framework for European forests, focusing on accelerating adaptation and implementing strategies at all governance levels. In addition, for the first time in EU legislation, the LULUCF Regulation includes a binding emission reduction commitment for 2021–2030, accounting for all land uses and wetlands by 2026.Footnote 4 The EU Biodiversity Strategy for 2030 acknowledges forests’ vital role in biodiversity, climate regulation, food provision, and more, with specific forest-related actions.Footnote 5 The EU proposal for Nature Restoration Law aims to improve protected areas, restore diverse nature, reduce pressures on habitats, support nature recovery, limit urban sprawl, tackle pollution, and create jobs. It is a key part of the EU Biodiversity Strategy with binding targets for ecosystem restoration and disaster prevention.Footnote 6 The EU must enhance the quantity, quality, and resilience of forests to climate-related threats, preserving biodiversity, ecosystem services, and supporting resilient economies and communities in the circular bioeconomy. The EU Forest Strategy aims to protect, restore, and expand multifunctional forests to combat climate change and biodiversity loss.Footnote 7 Regulation 2158/92/EEC of 23 July 1992 established a forest fire protection scheme from 1992 to 2002. The objective of Forest Focus (Regulation (EC) No 2152/2003 of 17 November 2003) aimed to protect EU forests by monitoring pollution and fires. In 1998, the Joint Research Center (JRC) established a research group to develop advanced forest fire risk assessment methods, supporting preparedness and ecological impact assessments.Footnote 8 In 2006, the European Parliament urged improvements to EFFIS. The Commission formed a working group to propose post-2006 forest fire prevention policy. Furthermore, EU has committed to protecting the world’s forests under several international agreements, initiatives, and policies, including UN Sustainable Development Goal 15, the New York Declaration on Forests, the UN Convention on Biological Diversity, and the Paris Agreement on climate change.

Conceptual Framework

Definition of Sustainable Forest Management

The definition of Sustainable Forest Management (SFM) that has been agreed by the Ministerial Conference on the Protection of Forests (Forest Europe) was developed by [6] and is defined as: “Sustainable management means the stewardship and use of forests and forest lands in such a way, and at a rate, that maintain their biodiversity, productivity, re-generation capacity, vitality, and their potential to fulfill, now and in the future, relevant ecological, economic, and social functions, at local, national, and global levels, and that does not cause damage to other eco-systems.”. The Food and Agriculture Organization (FAO) accepted this definition and defined SFM in [7] as: “A dynamic and evolving concept, that is intended to maintain and enhance the economic, social, and environmental value of all types of forests, for the benefit of present and future generations.”

As stated above, SFM has evolved from a single objective to multiple objectives and spatial planning, coexisting with ecosystem services (e.g., [8]).

Criteria and indicators assess forest management sustainability, but global agreement is lacking due to contextual variations [9]. The set of indicators that is mainly used to assess SFM is the Montreal Process, which was formed in 1994 and updated in 2015 [10]. Another set of criteria and indicators were adopted in 1998, reviewed and improved in 2003, and updated in 2015 by Forest Europe [11]. The impact of forest certification is uncertain due to limited scientific evidence [12], but positive effects have been observed in some cases, especially regarding the interest of forest owners in adopting the certification [13].

The Importance of Integrated Fire Management

Myers [14] defines IFM “as an approach to address the problems and issues posed by both damaging and beneficial fires within the context of the natural environments and socio-economic systems in which they occur, by evaluating and balancing the relative risks posed by fire with the beneficial or necessary ecological and economic roles that it may play in a given conservation area, landscape or region. Integrated fire management facilitates cost-effective approaches to prevent damaging fires and maintain desired fire regimes. It evaluates fire effects, weighs benefits and risks, and responds based on objectives.” By integrating science, society, and fire management technology and processes, an integrated fire management approach considers the interaction of biological, environmental, cultural, societal, economic, and political factors. To encourage such an approach for fire management and maintain native species, habitats, and landscape, several critical factors need to be considered [14]:

  • Understanding the role of fire in ecosystems and its use: Distinguish between fire-dependent, fire-independent, fire-sensitive, and fire-influenced ecosystems.

  • Identifying fire management goals and desired future conditions: Define management objectives and desired ecological outcomes.

  • Considering community needs: Recognizing local community perspectives and requirements is crucial for achieving sustainable and culturally sensitive fire management practices.

  • Promoting collaborative approaches among decision-makers: Collaboration among government, NGOs, local communities, and stakeholders is crucial for developing integrated fire management plans and policies.

  • Tailoring strategies to the ecological and social context: Customized prevention, preparedness, and response strategies should consider ecological characteristics and social dynamics of the region.

  • Supporting research efforts: Research on fire ecology, behavior, and social sciences is vital to understand fire’s impact on ecosystems and societies.

The Role of Climate Change and Its Impact on SFM in the EU

Forests and climate are interrelated, as changes in forests affect climate and vice versa. The impact varies by region and severity [15]. However, due to the complexity of forest ecosystems and the interactions between various biotic and abiotic factors, determining climate change’s specific impact is challenging. Uncertainties make it difficult to guide forest decision-makers in climate change planning [16]. Deforestation reduces carbon sequestration, increases CO2, and raises temperatures [17]. Climate change can also limit tree regeneration [18]. Therefore, adapting forest and fire management to climate change is crucial to achieving the important objectives of resilient and healthy forests [19].

Results

Considering all the above, the analysis of the major current policy challenges and gaps in the current state analysis for the EU follows.

Achieving Proactive Forest Management

As-Is

Forest ecosystems face escalating pressure and threats due to climate change.

To-Be

To address this challenge, proactive forest management is crucial for the EU to enhance the quantity, quality, resistance, and resilience of its forests. This includes targeted treatments to mitigate the increasing risks posed by fires, droughts, pests, diseases, and other emerging threats amplified by climate change.

Policy Challenge

The “Closer-to-Nature Forest Management” [20] approach seems to be promising in mitigating the main impacts of climate change on forest management, but its implementation requires careful consideration of local conditions and objectives, particularly in various biomes and habitats.

Gaps

Recognizing the limitations of a “one size fits all” approach to forest management is crucial due to differing national definitions, diverse forest types, and conflicting interests in resource management. Additionally, the varying intensity of natural disturbances and historical forest utilization necessitate a nuanced understanding of management requirements. To effectively implement proactive strategies, improving EU knowledge and practice is essential, considering these multifaceted factors and tailoring approaches accordingly. This will ensure the feasibility and success of forest management initiatives across all EU countries.

Achieving Integrated Multifunctional Forest Management

As-Is

Sustainable yield forestry, while not a distinct and original management concept, can be viewed as a comprehensive framework that encompasses various management models within a shared spatial context.

To-Be

Integrated multifunctional forest management is essential in achieving a harmonious balance between the social, economic, and environmental objectives of forest resources within this context.

Policy Challenge

To address this policy challenge, there is a need for the development and improved implementation of forest policies that adopt a multifaceted approach, effectively balancing these objectives. This should remain a top priority for the future EU Forest Strategy.

Gaps

Gaps in understanding and implementing integrated multifunctional forest management persist, including a lack of practical understanding, monitoring deficiencies, and challenges in addressing diverse stakeholder interests. Addressing these gaps is critical for advancing successful management strategies.

Integrating Adaptation and Mitigation Measures Through Climate-Smart Forestry

As-Is

Forests play a crucial role in mitigating the impacts of climate change.

To-Be

In order to effectively address climate change, forest management strategies must take into account forest disturbances, and adaptation and mitigation measures should be integrated.

Policy Challenge

“Climate-Smart Forestry” [21, 22] is a promising approach that integrates mitigation and adaptation measures to enhance forest resilience and ecosystem services, addressing the needs of a growing population.

Gaps

However, several gaps hinder the implementation of best practices in this field including the absence of standardized indicators to monitor the sustainability and climate resilience of forest management practices in the EU. Increased awareness and education among forest managers, policymakers, and citizens is needed to promote the adoption of this approach and its potential benefits.

Promoting Integrated Fire Management

As-Is

The increasing wildfire activity across Europe poses a significant threat to heterogeneous forest ecosystems and the vital ecosystem services they provide.

To-Be

Improve protection and preparedness through the implementation of climate- and fire-smart landscapes [23], especially “firescapes,” with a particular focus on empowering local communities. To manage fires at the landscape scale, fire-prone vegetation should be manipulated to reduce fuel loads, decrease continuity of distribution, and minimize the spread of homogeneous fuel types, thereby reducing fire hazard, i.e., the ignition, extent, intensity, and severity of fires.

Policy Challenge

A key policy challenge lies in promoting resilient landscapes mosaics and communities through IFM, which holds promise for mitigating the risks and impacts of wildfires.

Gaps

Collaboration among governments, land managers, policymakers, scientific organizations, and local communities is essential to achieve the goal of effective IFM and the preservation of Europe’s valuable ecosystems. In addition, EU legislation on Nature Restoration Law should establish clear targets, timetables, funding mechanisms, and support to preserve Europe’s ecosystems through cohesive efforts and coordination.

Discussion

IMFM involves using forests in a multifunctional way that maintains biodiversity, productivity, and ecological, economic, and social functions (triangle of sustainability). The Paris Agreement unites the members of the United Nations Framework Convention on Climate Change (UNFCCC) also in combating climate change and adapting to its effects [24]. IMFM and the adoption of alternative policy measures, such as the combination of mitigation and adaptation measures, are crucial actions in this regard [25]. However, traditional forest policies and management practices often fail to consider the multifunctionality of forests, posing challenges for SFM that aims to achieve socially justice, ecologically sound, and economically viable outcomes (e.g., [26]). Challenges in implementing SFM policies and management strategies (e.g., IMFM) include monitoring, information reporting, government incentives and funding, communication between organizations, identification of the national authorities for forest policy and planning [27], government budgetary cycles, etc. [28].

A holistic approach to IFM, as defined above, is crucial for effective coordination of various stakeholders and levels of fire management, leading to increased resilience, sustainability, and ecosystem preservation. It considers multiple factors and requires collaboration, context-specific strategies, and ongoing research. In this way, the risk of wildfires is reduced and natural ecosystems and communities are protected. IFM also faces challenges, particularly in reintroducing fire into fire-dependent ecosystems. Many policies and laws still view all fires as negative, preventing prescribed fires in numerous countries. This hinders ecosystem maintenance and restoration within protected areas [14]. Certainly, prescribed burning is a useful tool and one of the more effective and cost-efficient means of managing vegetation for multiple purposes, but it will be possible to fine-tune the burns through technology and scientific research. Another challenge is the increased number of values at risk due to climate change in fire-prone areas [29].

Overcoming these challenges requires integrating the needs of local communities, promoting prescribed fire use, preventing undesired ignitions, improving fuel management for biodiversity conservation [30], and sustaining ecosystem services. Long-term solutions could include IMFM and IFM approaches such as: (a) reducing fuels (thinning, prescribed burns, grazing, removal of potentially hazardous dead timber), (b) planting of fire-tolerant tree species in a mixture with an increase in the number of broadleaves, and (c) creating fire breaks to reduce fireline intensities in conditions most likely to cause damages.

In conclusion, implementing IMFM and IFM involves addressing various challenges, such as protecting values at risk due to climate change, reducing wildfire impacts, recognizing the multifunctionality of different landscape mosaic types, minimizing the interaction of external and internal threats to biodiversity, enhancing continuous monitoring and reporting of landscape mosaic types change dynamics, bridging policy gaps on fire reintroduction.

By integrating the needs of local communities and adopting IFM practices, policymakers can promote sustainable practices that balance social, ecological, and economic considerations.