Conceptual integration of ecosystem services and natural capital within Irish national policy: An analysis over time and between policy sectors

Abstract

Ecosystem service (ES) and natural capital (NC) concepts have been promoted as influential tools for environmental management within national public policy. To achieve this potential, these concepts must transition across the science-policy interface and become integrated within governance systems. This study examines 25-years of ES and NC concepts within national public policy at two levels: explicit use of terminology, and implicit description of services. Using the case-study of Ireland as a country with significant bio-based industry and dependence on its NC, we ask when, where, and what conceptual integration has occurred within the national policy landscape. Data were collected using mixed-methods content analysis applied to 50 Irish policy and reporting documents spanning 1996-2020. Results showed i) conceptual integration began in 2008; ii) explicit use of ES was more common than NC (442 compared to 92 uses); iii) explicit use disproportionately occurred within biodiversity policy and environmental reports; iv) use of explicit terminology contained interdisciplinary themes; v) implicit descriptions of ESs differed between policy types; vi) cultural service descriptions were identified throughout the sample whereas regulating services were more visible in more recent documents. Overall conceptual integration was found to be present but fragmented, which may create a barrier to achieving a policy landscape that is responsive to emerging ES science. Conceptual integration is dependent on the broader environmental and governance context and further research is required to understand how this impacts downstream implementation and operation. We conclude by commenting on the implications for future conceptual integration and environmental policy development.