Developing an offsetting programme: tensions, dilemmas and difficulties in biodiversity market-making in England

In 2011, the UK government set in motion a process to establish a formal biodiversity offsetting programme in England, as an attempt to tackle biodiversity loss as a result of development. Drawing on critical approaches to the commodification of nature, this article traces the dilemmas encountered by the UK government in its endeavours to roll out a biodiversity offsetting programme in the English planning system. Based on 34 in-depth interviews with key stakeholders, documentary analysis and participant observation at policy-focused events, the paper aims to show how the promise of reconciling development and conservation proved difficult to deliver. In government attempts to enrol sympathetic actors, disputes emerged over the purpose and fine detail of the proposals. Deeper tensions were revealed in clashes between governmental emphasis on deregulation and advocates’ calls for strong mandatory rules and well-resourced oversight, while efforts to balance complex ecology with market demands for simplicity and certainty undermined the promise of objective biodiversity metrics delivering uncontroversial hard numbers. Though the English case is in many ways context-specific, the problems experienced raise wider political questions around establishing meaningful offsetting schemes in any part of the world