The
Ramsar Convention on WetlandsThe
Ramsar Convention on Wetlands
Agenda 21 and the Ramsar Convention on Wetlands [file 1]
Agenda 21 and the Ramsar Convention on Wetlands
Submission to the UN Department of Economic and Social Affairs (DESA) for the review and assessment of the implementation of Agenda 21 and the Programme for the Further Implementation of Agenda 21
Specific thematic review clusters considered:
by the Bureau of the Convention on Wetlands (Ramsar, Iran, 1971)
February 2001
Table of contents:
1. Introduction
2. Decision-making structures and institutions for sustainable development
2.1 Introduction
2.2 Integrating environment and development at the policy, planning and management levels
2.3 Providing an effective legal and regulatory framework
2.4 Making effective use of economic instruments and market and other incentives
2.5 Establishing systems for integrated environmental and economic accounting
2.6 Thematic and policy review and recommended ‘course corrections’
3.1 Introduction
3.2 Local and indigenous people
3.3 Business and industry
3.4 Non-governmental organizationsRamsar’s International Organization Partners
Ramsar’s other NGO partners
The activities of NGOs nationally3.5 Scientific and technological community
3.6 Thematic and policy review and recommended ‘‘course corrections’
4. Education, public awareness, training and capacity building
4.1 Introduction
4.2 Education, public awareness and trainingReorienting education towards sustainable development
Increasing public awareness
Promoting training
The Ramsar Outreach Programme4.3 Capacity building in developing countries
Ramsar’s capacity building ‘tools’
4.4 Thematic and policy review and recommended ‘course corrections’
5. Oceans and seas, living marine resources and coastal zone management
5.1 Introduction
5.2 Integrated management and sustainable development of coastal areas, including exclusive economic
zones
5.3 Marine environmental protection
5.4 Sustainable use and conservation of marine living resources under national jurisdiction
5.5 Addressing critical uncertainties for the management of the marine environment and climate change
5.6 Strengthening international, including regional, cooperation and coordination
5.7 Sustainable development of small islands
5.8 Thematic and policy review and recommended ‘course corrections’
6.1 Introduction
6.2 Guidelines for integrating wetland conservation and wise use into river basinmanagement
6.3 The expanding network of ‘freshwater’ Wetlands of International Importance (Ramsar sites)
6.4 Trans-boundary wetlands and river basins
6.5 Rehabilitation and restoration of wetlands
6.6 Valuing wetlands as part of freshwater ‘infrastructure’
6.7 Guidelines for ‘environmental’ water allocations
6.8 Thematic and policy review and recommended ‘course corrections’
7. Biodiversity conservation and sustainable use
7.1 Thematic and policy review and recommended ‘course corrections’
7.2 Introduction
7.3 Collaboration with the Convention on Biological Diversity
7.4 Ramsar’s List of Wetlands of International Importance
8. Ramsar and the UNCED-related Conventions and international cooperation
8.1 Introduction
8.2 United Nations Framework Convention on Climate Change
8.3 Convention on Biological Diversity
8.4 United Nations Convention to Combat Desertification in those Countries Experiencing Serious Drought and/or Desertification, particularly in Africa
8.5 International cooperation, institutional arrangements, legal instruments and mechanisms
8.6 Thematic and policy review and recommended ‘course corrections’
Foreword
1. As the international community moves toward the second World Summit on Sustainable Development, to be held in South Africa in 2002, it is timely to review the achievements of those international instruments which are contributing to the overall implementation of Agenda 21.
| The Mission of the Convention has been defined as "the conservation and wise use of wetlands by national action and international cooperation as a means to achieving sustainable development throughout the world" (the Convention’s Strategic Plan 1997-2002). |
2. The Bureau (secretariat) of the Ramsar Convention on Wetlands has prepared this ‘report card’ on the activities of this treaty that now has sustainable development as the centerpiece of its mandate, for the information of those who will participate in the preparation of the World Summit at national and international levels. The intention is to ensure that, unlike in Rio in 1992, the Ramsar Convention gains full recognition of the important role it is playing, and the roles it plans to and could play, in pursuing sustainable development.
3. The report has been structured broadly around the advice provided by the Commission on Sustainable Development and the proposed ‘thematic reviews’ which will be prepared to highlight accomplishments and identify gaps and deficiencies in the approaches being taken to implement Agenda 21.
4. To assist those crafting such reviews, wherever possible quantitative measures have been included to give some sense of progress in addressing priority actions.
| The Conference of the Contracting Parties (1987) has thus defined "wise use" in the context of the Convention: "The wise use of wetlands is their sustainable utilization for the benefit of mankind in a way compatible with the maintenance of the natural properties of the ecosystem." At the same time, "sustainable utilization" of a wetland was defined as: "Human use of a wetland so that it may yield the greatest continuous benefit to present generations while maintaining its potential to meet the needs and aspirations of future generations." "Natural properties of the ecosystem" were defined as: "Those physical, chemical and biological components, such as soil, water, plants, animals and nutrients, and the interactions between them." |
5. The report draws upon Ramsar’s 30 years of experience in advancing its Wise Use principle and demonstrates that the Convention on Wetlands has come of age as an international instrument, and has much to contribute across almost all chapters of Agenda 21.
6. The report also recommends some priority ‘course corrections’ of particular interest to the Ramsar Convention for the consideration of the World Summit. These are based on an assessment of the policy and programmatic gaps and weaknesses which are apparent in the implementation of the Ramsar Convention.
7. It is hoped that the assembled world leaders in Johannesburg in 2002 will:
(a) be aware of the importance of wetlands to the long-term sustainability of the planet’s ecosystem and for people’s well being;
(b) recognize that the Ramsar Convention, and in particular its List of Wetlands of International Importance, is a useful instrument for pursuing a refreshed and refocused Agenda 21 as a result of the Rio+10 Conference; and
(c) adopt the recommended ‘course corrections’ contained herein as part of the larger programme of work to be endorsed by the World Summit.
Executive summary
8. As part of the preparations for the 2002 World Summit on Sustainable Development, the Bureau (secretariat) of the Convention on Wetlands - a convention that has sustainable development as the centerpiece of its mandate - has prepared this ‘report card’ on its activities for the information of those who will be involved in the preparation of the Summit at national and international levels.
9. The Convention on Wetlands of International Importance especially as Waterfowl Habitat was signed in Ramsar, Iran, on 2 February 1971 and came into force in 1975. It is now commonly referred to as the Convention on Wetlands (Ramsar, Iran, 1971) or simply as the Ramsar Convention.
10. Despite being a pioneer of the concept of sustainable development with its own concept of ‘wise use’ (see definition in the footnote of the Foreword), the Ramsar Convention failed to gain recognition as a serious ‘tool’ for pursuing sustainable development at the Rio Conference in 1992. Since then Ramsar has evolved, matured, and come of age – from 70 Parties at that time, it now has 123 Parties and expects to reach 150 by its 8th Conference of Parties in 2002. This maturing of the Ramsar Convention has run in parallel with an improved understanding at the global level of just how vital wetlands are for sustaining human life and how important they are to the planet’s freshwater supply ‘infrastructure’.
11. Today, the Ramsar Convention’s best-known feature, the List of Wetlands of International Importance, has reached 1050 sites with a surface area of nearly 80 million hectares, and has the target of 2000 sites by the time of Ramsar’s 9th Conference of Parties in 2005. Ramsar’s Wise Use ‘toolkit’ has been widely distributed and is being expanded. The Convention is now being used as a mechanism to promote international cooperation over shared wetlands, water resources, and migratory species. Ramsar today has much to offer to the pursuit of the ideals of Agenda 21, which the Rio+10 Conference will review.
12. This report is structured broadly around the ‘thematic reviews’ being prepared to help inform the deliberations in Johannesburg. It highlights the many contributions the Ramsar Convention has made to the implementation of Agenda 21, ranging across nearly 20 of its chapters. The report also recommends some priority ‘course corrections’ (see below) for the consideration by the 2002 World Summit. These are based on Ramsar’s thirty years of experience of promoting sustainable use of wetland resources.
13. It is hoped that from the information contained herein, the assembled world leaders in Johannesburg in 2002 will:
(a) be aware of the importance of wetlands to the long-term sustainability of the planet’s ecosystem and for people’s well being;
(b) recognize that the Ramsar Convention, and in particular its List of Wetlands of International Importance, is an useful instrument for pursuing a refreshed and refocused Agenda 21; and
(c) will adopt the recommended ‘course corrections’ contained herein, and summarized below, as part of the larger programme of work to be endorsed by the World Summit on Sustainable Development.
Recommended ‘course corrections’
14. The following are some recommendations for ‘course corrections’. They are limited to the perspectives of the Ramsar Convention on Wetlands and do not pretend to embrace the full spectrum of ‘course corrections’ that the World Summit should consider.
14.1 A continuing need for policy and legal reforms
While some progress is evident, there remains a need for national policy and legal instruments to be aligned with the expectations of Agenda 21 in many countries. There now exist an increasing number of exemplars, or models, in this regard and the World Summit should be urged to find ways to be more effective in making these available to other States.
14.2 Fundamental reforms to governance structures needed
The evidence suggests that in order to advance toward sustainable development Parties, if they have not already done so, need to consider some fundamental changes to their governance structures, such as:
i) the establishment within government of a primary driver of sustainable development, one that can accelerate the integration of social, economic and environmental factors. Such a driver could be a task force, high level council, or Ministry established by and reporting to the President or Prime Minister;
ii) the decentralization or delegation of decision-making to the most appropriate management level. The ‘ecosystem approach’ developed under the Convention on Biological Diversity advocates this through its Principle 2 and suggests that decentralized systems may lead to greater efficiency, effectiveness and equity. The World Summit should be urged to support this goal and seek the resources to accelerate the introduction of participatory management regimes in the most ‘stressed’ river basins initially, and subsequently in all others; and
iii) the application of the ecosystem approach for the decentralization of big global funds and setting up of more sustainable financial mechanisms at the field level, i.e. site-specific trust funds, theme-specific funds, etc.
14.3 Reforms needed in the way the Major Groups are consulted
The point has not yet been reached at which all stakeholder interests are routinely represented around the table when matters of sustainable development and the use of natural resource are being discussed. Countries should be urged to review their consultative processes to ensure they are permitting those representing the Major Groups to have their say in national and local policy setting and planning for natural resource management.
14.4 The poor quality of natural resource information is impeding Agenda 21
Unless countries have at their disposal high quality data upon which to base integrated planning, much of the product has to be based on guesswork and speculation. While current initiatives such as the Millenium Ecosystem Assessment and the Global International Waters Assessment may help in this regard, the challenge will remain of getting this information into the hands of the people who need it, and ensuring that they have the capacity to interpret and apply such information.
14.5 Education remains a priority - and a weakness
There remains an urgent need for the World Summit to encourage a range of actions in the education areas. Little progress has been made in introducing the principles of sustainable development into formal and informal education streams and this warrants very high priority. As indicated in point 14.1 above, part of the solution lies in improved transfer of experiences and information. A failure to engage the education sector in Agenda 21 would seem to be limiting progress in this area, and steps need to be taken both nationally and internationally to address this problem.
14.6 New approach to training and capacity building needed
The delivery of training in many cases does not appear to be based on a sound understanding of needs or existing competencies. The World Summit should be urged to develop a major Agenda 21 training initiative - a ‘one-stop-shop’ for training in sustainable development - which will bring together the necessary expertise and resources to see these shortcomings addressed.
14.7 The Ramsar Convention’s List of Wetlands of International Importance as a tool of sustainable development and biodiversity conservation
The World Summit should be urged to recognize the importance of States protecting and utilizing their freshwater and coastal wetland resources wisely, using the vehicle of the List of Wetlands of International Importance. Countries are encouraged to use their sovereign right of designating key wetland sites as Wetlands of International Importance as a ‘tool’ to assist sustainable development and biodiversity conservation aspirations. As advocated by the Ramsar Convention, these wetlands can become part of a global network of ‘demonstration’ sites for sustainable development, while at the same time providing a focus for national actions to implement Agenda 21 in very tangible and demonstrable ways. To date 123 Parties to the Ramsar Convention have designated 1050 Wetlands of International Importance. These can be found spread across inland water, marine and coastal, dryland, mountain and other ecosystems. In so doing, these Parties have made a major contribution to their national obligations under CBD as part of their quest for sustainable development.
14.8 Urgent action needed to protect global fisheries
Allied to 14.7 above, States should be urged to use the mechanism of designating sites to the List of Wetlands of International Importance to establish national networks for protecting vital fish habitats. Fish resources are becoming more and more stressed. By taking the proactive step now of protecting vital fish nursery areas as Ramsar sites, countries can ensure a level of food security and of viable commercial fisheries.
14.9 Ecosystem restoration a priority in order to regain services and benefits
While it remains more cost-effective to conserve the natural ecosystems, the technology presently exists to restore many areas now degraded or converted to other less productive uses. The Ramsar Convention advocates the restoration and rehabilitation of wetlands, especially in the cases where countries have specific water management objectives (improved water quality, water storage, flood mitigation, etc.) in mind. The World Summit should be urged to take the proactive step of agreeing to increase efforts in ecosystem restoration.
14.10 Actions needed to see the UNCED-related and other conventions working as a closely coordinated ‘team’ promoting sustainable development
Major weaknesses continue to be identified in the manner by which the suite of conventions operating with an Agenda 21 mandate (either directly or indirectly) are coordinating their work. Without a strong effort to achieve a more collaborative and integrated implementation of the UNCED-related and other relevant conventions, it is difficult to see national administrations, and even more so local stakeholders, being encouraged to think more holistically about the management of natural resources. The following actions are recommended to address these concerns.
i) As a mechanism to engage the Major Groups more effectively, document and demonstrate the fundamental science behind the global ecosystem, how it is being broken down, and why. Within this context, articulate the specific role, or roles, of each convention, how they link – in an ecosystem sense – and how they link operationally. (The following point (ii) considers some of the operational links in more detail.) As part of the same initiative, the World Summit should be urged to support the concept of ‘demonstration’ sites to show how the various international conventions can be implemented in an integrated way – to deliver sustainable development. There remains a healthy skepticism among local communities that these high-level instruments can be manifested in tangible outcomes for them. ‘Demonstration’ sites that show how this can be done would provide an enormous boost for the aspirations of Agenda 21.
ii) Despite more recent efforts, the general lack of coordination between the multilateral conventions in terms of policy development, science and technology, information management and administration is a major concern. Ramsar’s Joint Work Plan with CBD is considered the model for advancing inter-convention collaboration.
The process of creating a more integrated working ‘team’ of conventions requires acceleration, and the World Summit could, and should, be the catalyst for this. The following could be significant first steps to achieving these more efficient and effective working arrangements among conventions:
a) taking the idea contained in Chapter 38 of Agenda 21 regarding a high-level inter-agency coordination mechanism (paragraphs 38.16-18), establish an international coordinating and information-sharing mechanism between the UNCED-related and other conventions, which can assist in developing common programmes of work, harmonizing and cross-linking agendas, improving the scheduling of conferences of the Parties and meetings of subsidiary scientific meetings, etc.;
b) establish a ‘chairs of subsidiary scientific bodies working group’ for the UNCED-related and other conventions in order to encourage cross-fertilization of ideas and the sharing of information and expertise;
c) continue to move toward seamless and harmonized information management systems for the UNCED-related and other conventions, as advocated by the 1999 World Conservation Monitoring Centre’s feasibility report for the biodiversity-related conventions (see below);
d) promote the further development of bilateral, trilateral or multilateral Memoranda of Cooperation, with associated Joint Work Plans, between conventions, and (as recommended above) include as part of these the ‘demonstration’ projects showing integrated delivery of UNCED-related and other conventions.
iii) The burden imposed by the independent reporting requirements under each convention is also a major issue, especially for developing countries, and warrants attention by the World Summit. The WCMC Report on harmonizing information management among the biodiversity-related conventions referred to above proposes measures to streamline national reporting, and these require urgent attention.
iv) The problem of ensuring that all Parties can participate fully in the workings and deliberations of the international conventions is not a new issue. Regrettably no solution has yet been found to this problem, which continues to see developing countries disadvantaged. Some of the actions recommended above, such as better coordination of meeting schedules, more integrated work programmes, simplified and streamlined national reporting, etc., would serve to reduce the burden on developing countries and for this reason deserve high priority. Experience has also shown that participation by developing countries in Conferences of the Parties and subsidiary scientific bodies is generally constrained by lack of resources. If equity is to be ensured in these important international discussions, then this matter needs to be addressed.
14.11 The funding mechanisms in place for the implementation of the UNCED-related and other conventions need review
While the Global Environment Facility and some national funds such as the Fond Français pour l’Environnement Mondiale (FFEM) are proving to be useful instruments for the implementation of two of the UNCED-related Conventions, the World Summit should be urged:
i) to review these mechanisms to make them even more effective, more easily accessible to countries in need, and more integrated with other funding mechanisms for sustainable development; and
ii) to identify tangible sources of additional funding to allow a more effective implementation of all conventions by developing countries and countries in transition.
AGENDA 21
AND THE RAMSAR CONVENTION ON WETLANDS
Section 1. Introduction
15. On 2 February 1971, in the city of Ramsar, Iran, the representatives of 18 nations signed the Convention on Wetlands of International Importance especially as Waterfowl Habitat, commonly referred to today as the Convention on Wetlands (Ramsar, Iran, 1971) or simply the Ramsar Convention. Today the Convention has 123 Contracting parties.
16. Originally focused on wetlands as waterbird habitats, the Convention has evolved over the years to become a champion of the conservation and sustainable use of wetlands taking into account the full spectrum of wetland values and functions, both for biodiversity and for human well-being. Today, the Ramsar Convention continues to grow and mature and is now an important mechanism for promoting sustainable development.
17. Ramsar’s text, simple when compared with that of more recent international environment conventions, enshrined the three ‘pillars’ of the treaty. These are:
a) the List of Wetlands of Wetlands of International Importance, with which the Ramsar Convention is most commonly associated. There are now 1050 designated sites in 123 Parties with an area of nearly 80 million hectares – approximately equal to the area of Namibia, Pakistan or Turkey;
b) the "wise use" – or sustainable use (see definition of "wise use" in footnote 2 of the Foreword) – of all wetlands in the territory of each Contracting Party; and
c) international cooperation under the Convention, especially in situations where neighbouring States share wetlands or water resources.
18. Also significant is the broad definition of "wetland" adopted by the Convention, as "areas of marsh, fen, peatland or water, whether natural or artificial, permanent or temporary, with water that is static or flowing, fresh, brackish or salt, including areas of marine water the depth of which at low tide does not exceed six metres".
19. This definition, while possibly a product of international compromise, seems more likely to have been a deliberate decision which appreciated the cornerstone role of wetlands in the planet’s hydrological ‘infrastructure’, and recognized that the water cycle is a continuum between fresh and salted water. As a consequence Ramsar’s mandate extends from the seagrass and coral ecosystems of the near-shore environments, through estuaries and flooded swamp forests, along rivers and their floodplains to the upper catchments. It includes everything from peat bogs to subterranean karst systems, and even human-made wetlands. In short, Ramsar’s brief includes the habitats favoured by the majority of the human species.
20. Nevertheless, the Ramsar Convention gained little attention at UNCED and, in consequence, receives but passing mention in Agenda 21. However, this must be put in perspective. In June of 1992 there were just 60 Parties to the Ramsar Convention, the List of Wetlands of International Importance included only 561 sites, and Ramsar had really only just begun to articulate fully and provide guidance on its ‘wise use’ principle.
21. Today, there are 123 Contracting Parties and the prospects are that within the next five years this will increase by a further 40-50 countries. This increasing interest in the Convention has paralleled the improved understanding of the functions, services and benefits provided by wetlands, some of which are summarized in Information box 1 (from Ramsar’s information pack on "Wetland Values and Functions") at the end of this section.
22. In this same period, the Ramsar Convention has become a significant voice in promoting sustainable use of wetland resources, and has developed an impressive menu of tools to assist Parties in this regard. One of the Convention’s major achievements is its Wise Use ‘toolkit’, released in January 2000 (see Information box 2). This nine-volume set now provides the essential information for Parties on implementation Ramsar’s three pillars – the List of Wetlands of International Importance, wise use, and international cooperation.
23. The Parties to Ramsar take great pride in the fact that it is a Convention which has earned a reputation for being very proactive, hands-on, technically sound and focused on actions. As this submission tries to demonstrate, Ramsar today is a vibrant and effective ‘tool’ for contributing to sustainable development.
24. The Ramsar Convention is more than an intergovernmental treaty, it is a movement which is growing rapidly around the globe. The Convention owes its existence to strong NGO and scientific roots, and today these continue to serve it well as it moves ahead on a range of fronts, providing mechanisms and tools to assist Parties, regional bodies, national authorities, and local people with the framework and support to take action.
25. Expert evaluations indicate that, at the global level, about 50% of wetlands have been converted to other uses, and in the process humanity has been denied their innumerable services and benefits. The understanding is now there that wetland destruction must stop in the interest of all humankind. The technology also exists to reinstate many of these former wetland areas. The 2002 World Summit should establish that the continuing destruction of the natural assets that wetlands represent is directly counter to the objectives of Agenda 21.
Information box 1 – Wetland values and functions Wetland ecosystems are part of our natural wealth. A recent assessment of the dollar value of natural ecosystems estimated them at US$ 33 trillion. The study estimated the global value of wetland ecosystems At an amazing US$ 14.9 trillion, 45% of the total. This reflects the many functions of wetlands as follows: FLOOD CONTROL It is no accident that river valleys and their floodplains have been the focus of human civilisations for over 6,000 years – and that many other wetland systems have been equally critical to the development and survival of human communities. This simply reflects the key role that water and wetlands have played throughout human life. Our advancing technological skills may seem to have supplanted the role of Nature, but recent environmental catastrophes – floods, landslides, storms, many with their roots in unsustainable land use practices – suggest otherwise. The reality is that we still depend on our natural ecosystems to sustain us. The multiple roles of wetland ecosystems and their value to humanity have been increasingly understood and documented in recent years. This has led to massive expenditures to restore lost or degraded hydrological and biological functions of wetlands. But it’s not enough – the race is on to improve practices on a significant global scale as the world's leaders try to cope with the accelerating water crisis and the effects of climate change. And this at a time when the world’s population is set to increase by 70 million every year for the next 20 years. Global freshwater consumption rose sixfold between 1900 and 1995 – more than double the rate of population growth. One third of the world’s population today lives in countries already experiencing moderate to high water stress. By 2025, two out of every three people on Earth may well face life in water stressed conditions. The ability of wetlands to adapt to changing conditions, and to accelerating rates of change, will be crucial to communities and wildlife everywhere as the full impact of climate change on our ecosystem lifelines is felt. Small wonder that there is worldwide focus on wetlands and their services to us. Wetlands are hugely diverse. But whether they are ponds, marshes, coral reefs, peatlands, lakes or mangroves, they all share one fundamental feature: the complex interaction of their basic components - soil, water, animals and plants - that fulfils many functions and provides many products that have sustained humans over the centuries. Of course not every wetland performs all these functions - but most wetlands perform many of them. |
Information
box 2. The Ramsar Convention ‘toolkit’ for the
|
||||||||||||||||||||||||
Section 2. Decision-making structures and institutions for sustainable development
2.1 Introduction
26. Chapter 8 of Agenda 21 contains four programme areas which are seen as pivotal to achieving decision-making which fully integrates economic, social and environmental factors at the policy, planning and management levels. These fours programme areas cover, in broad terms: a) policy and institutional frameworks; b) laws; c) economic instruments and incentives; and d) integrated environmental and economic accounting.
27. The Ramsar Convention, through its Wise Use principle and its guidelines, advocates these same approaches to its Parties; in particular, the past decade has seen these instruments considered more and more intensively as the pressure on wetland resources has continued to mount.
28. In the following paragraphs, a brief summary of Ramsar’s contributions to advancing the sustainable use of wetland resources through these various programmes areas is provided.
2.2 Integrating environment and development at the policy, planning and management levels
National Wetland Policies or Strategies
29. In its efforts to promote more integrated decision-making approaches, the Ramsar Convention has focused strongly on the development of national wetland policies. Ideally these are developed through broad consultation with the Major Groups and across government, to ensure ownership, balance and full support. Table 1 shows the progress that has been made with the development of national wetland policies since 1987, the time of Ramsar’s 3rd Conference of Parties. It also shows the progress with the development of wetland strategies or action plans, which in some cases have a lesser status in government.
30. While progress with the development of such policy and strategy instruments was slow initially, it has accelerated more recently, and it is hoped this will be further assisted by the Ramsar Guidelines for developing and implementing National Wetland Policies adopted by Resolution VII.6 of the 7th Conference of Parties (Costa Rica, May 1999). These Guidelines now form Handbook 2 of the Ramsar Wise Use ‘toolkit’ launched in January 2000.
31. Uganda’s efforts in developing a National Wetland Policy and following this up with legislative reforms make it a leader in Africa – see Information box 3 at the end of this section.
Table 1: Status of National Wetland Policies (NWPs) and National Wetland Strategies (NWSs) or Action Plans (NWAPs)
| 1987 Regina COP3 | 1990 Montreux COP4 | 1993 Kushiro COP5 | 1996 Brisbane COP6 | 1999 San José COP7 | |
| Status of National Wetland Policies | |||||
| (a) Adopted | 0 | 0 | 3 | 6 | 12 |
| (b) In Draft Form | 0 | 1 | 6 | 8 | 6 |
| (c) Development Under Consideration or Proposed | n.d. | 1 | 6 | 13 | 26 |
| (d) No Action Yet Reported | 17 | 43 | 36 | 65 | 70 |
| Status of National Wetland Strategies/ National Wetland Action Plans | |||||
| (a) Adopted | 4 | 9 | 9 | 35 | 50 |
| (b) In Draft Form | 1 | 1 | 4 | 12 | 12 |
| (c) Development Under Consideration or Proposed | n.d. | n.d. | 5 | 8 | 39 |
| (d) No Action Yet Reported | 12 | 35 | 33 | 36 | 13 |
| Number of National Reports Tabled | 17 of 35 | 45 of 60 | 51 of 76 | 92 of 92 | 107 of 114 |
Sources: Ramsar Bureau (1987, 1990, 1993, 1998a, 1998c); Rubec (1996); Smart (1993). n.d = no data.
National Ramsar/Wetland Committees
32. In conjunction with policy or strategy development, Ramsar Parties have been urged by successive Conferences of Parties to establish national Ramsar or Wetland Committees to provide advice and direct input to policy and institutional reforms being considered by government. At the time of Ramsar’s 7th Conference of Parties (1999), 40 countries’ governments confirmed in their National Reports that such bodies existed and included non-government stakeholder representation. In 11 Parties there are reported to be government-only national Ramsar or Wetland Committees.
Integration with related national policies and strategies
33. The Ramsar Convention also encourages Parties to ensure that their Ramsar obligations are integrated wherever possible into a range of other policy instruments, such as national strategies for sustainable development, National Biodiversity Action Plans, national freshwater management policies, and coastal zone management approaches. The National Reports for the 7th Conference of Parties (1999) indicated that 74 Parties have such mechanisms in place or being introduced. To facilitate the latter, Ramsar’s COP7 adopted guidelines relating to the integration of wetlands into river basin management (see section 6.2), and the Convention is presently developing guidelines related to the integrated management of wetlands in the coastal zone (see section 5.2).
Wetland restoration and rehabilitation
34. Another major area of activity by Parties to the Ramsar Convention is that of wetland restoration and rehabilitation. At the 7th Conference of Parties, 76 of 100 Parties (76%) reported that wetland areas were being restored or repaired in their countries. With the recognition of the vital ecosystem services provided by wetlands, the tide is now turning in many countries and the new agenda is to reinstate ("reclaim") areas that were once wetlands or to rehabilitate degraded areas – this isbeing done as part of ecosystem or river basin-level approaches to water management or biodiversity conservation.
35. Information box 4 at the end of this section indicates more on this important programme area of the Ramsar Convention which recognizes that the technology now exists to return former wetland areas back to near-natural state, and thus once again benefit in terms of their functions and services.
2.3 Providing an effective legal and regulatory framework
36. Agenda 21 identifies a coherent legal and regulatory framework as an important "instrument for transforming environment and development policies into action" (paragraph 8.13). Under this programme area, the stated overall objective is "to promote, in the light of country-specific conditions, the integration of environment and development policies through appropriate legal and regulatory policies, instruments and enforcement mechanisms at the national, state, provincial and local level." (Paragraph 8.16).
37. The Ramsar Convention, in its Strategic Plan 1997-2002, recognizes the same priority in this area with Operational Objective 2.1 as follows: "To review and, if necessary amend national or supra-national legislation, institutions and practices in all Contracting Parties, to ensure that the Wise Use Guidelines are applied." At the time of Ramsar’s COP7 (1999), 45 Parties reported that they had undertaken such reviews – a tangible indication that this action was gaining attention. Of these, 39 stated that legislative amendments had resulted.
38. The National Reports from some of these Parties reveal significant action being taken as follow-up to such reviews with legislative and institutional amendments to promote the integration of wetland conservation with sustainable development – as sought by the Wise Use Guidelines. Some notable illustrations of action in this area are provided by Costa Rica and Australia, and these are described in brief in the accompanying case study boxes.
39. As a mechanism to escalate the effort in legal reform, the Ramsar Convention adopted at its COP7 Guidelines for reviewing laws and institutions to promote the conservation and wise use of wetlands (Resolution VII.7). These Guidelines are based on a number of documented case studies and the more extensive publication Wetlands, Water and the Law (IUCN–the World Conservation Union, 1999) – as described in more detail in the information box.
40. The Guidelines also form Handbook 3 of the Ramsar Wise Use "tookit" published in January 2000 (see section 1). By the time of its COP8 in 2002, the Ramsar Convention has set the target of achieving legislative reviews in 100 of its expected 150 Parties.
41. While the Parties to the Ramsar Convention have made significant progress in addressing the shortcomings of their legal frameworks over the past decade from the wetland perspective, it is clear that in only a handful of countries can it be said that this effort has met the expectations of Agenda 21 under this programme area.
42. Weaknesses are in seeing such reforms operating at all levels – from national to local, in seeing sufficient capacity in place to support legal reforms and the subsequent application or enforcement of these, in the provision of legal reference or support services, and in the integration of institutional arrangements to match and assist the application of new legal frameworks. These remain as major challenges to be taken up through Rio+10.
2.4 Making effective use of economic instruments and market and other incentives
43. The promotion of economic instruments and other incentives has been recognized as a priority for the Ramsar Convention at its 7th Conference of Parties in 1999, where Resolution VII.15 on Incentive measures to encourage the application of the wise use principles was adopted. Consistent with Agenda 21, this Resolution urges Parties to "review their existing, or evolving, policy, legal and institutional frameworks to identify and promote those measures which encourage conservation and wise use of wetlands and to identify and remove measures which discourage conservation and wise use" (Paragraph 11).
44. The same Resolution instructs the Convention’s Scientific and Technical Review Panel (STRP - see section 3.5) to work in partnership with relevant bodies of the Convention on Biological Diversity (CBD) and the Convention on Migratory Species, OECD, the International Association for Impact Assessment, the IUCN and interested Parties, to review existing guidelines and available information on incentive measures in order to prepare an Internet-based resource kit with a catalogue of incentives and case studies. This Internet-based resource has been established and can be found at http://economics.iucn.org/policy/incentives.htm.
45. For Ramsar’s COP8 in November 2002, the Convention’s STRP is expected to report on the progress of the design, implementation, monitoring and assessment of incentive measures, and the removal of perverse incentives working against conservation and wise use. It is notable that in undertaking this work for the Convention, the STRP is expected to work closely with its counterpart body under the CBD, the SBSTTA, as an element of the Joint Work Plan in place between the two Conventions (see section 8.3)
2.5 Establishing systems for integrated environmental and economic accounting
46. The fundamental goal sought by Agenda 21 in this area is to see systems of integrated environmental and economic accounting (IEEA) established in all members States (Paragraph 8.42).
47. For its part, the Ramsar Convention has helped to advance this goal primarily through efforts to have the true values of wetlands, in terms of the goods and services they provide, fully integrated into impact assessment practices and more broadly into national accounting systems.
Economic valuations of wetlands
48. In 1997 the Convention (in partnership with the University of York, the Institute of Hydrology, and the IUCN) published Economic valuation of Wetlands which has since been reprinted and made available in a range of national languages (see Information box 7 below). This guide for policy makers and planners is designed to assist in introducing some clarity and reality to the real costs associated with wetland loss or degradation.
49. At the time of Ramsar’s 7th Conference of Parties, 34 Parties advised in their National Reports that actions had been taken to incorporate economic valuation techniques into natural resource planning and assessment actions. While clearly inadequate, this figure does suggest a growing level of recognition among Parties that ‘mainstreaming’ the economics of wetlands into natural resource management debates is an important step toward achieving their conservation and wise use.
50. Some examples of where economic valuations are being applied are provided by the National Reports submitted for Ramsar’s 7th Conference of Parties. Mexico advises that their Wildlife General Directorate encourages qualitative valuation of wetlands at the local level to be able to demonstrate the benefits of using wetlands, and Venezuela proposes to integrate natural resources into their national accounting system. In Bangladesh, economic valuation of wetlands has been incorporated into the National Water Management Plan, and in India, economic valuation techniques are being applied in the management of three Ramsar sites. In Africa, Uganda has decided to include valuations of each site as part of its wetland inventory programme.
Strategic Environmental Assessment
51. At its COP7 the Ramsar Convention also reviewed impact assessment practices and new directions, and adopted Resolution VII.16 on The Ramsar Convention and impact assessment: strategic, environmental and social. The National Reports for the Conference indicated that in 92 Parties actions potentially impacting on wetlands require the preparation of environmental impact assessments.
52. In addition, the Parties recognized the need to move from site/project-based environmental impact assessment to broader strategic assessment, taking into consideration whole of government plans, programmes and policies and social and economic impacts of wetland loss. The Resolution encourages Parties to "ensure that impact assessment procedures seek to identify the true values of wetland ecosystems in terms of the many functions, values and benefits they provide, to allow these environmental, economic and broader social values to be included in decision-making and management processes." (Paragraph 11).
53. The same Resolution instructs the Scientific and Technical Review Panel of the Convention to work in partnership with relevant bodies of the Convention on Biological Diversity and other conventions and experts to review existing guidelines and available information on environmental impact assessment and economic valuation in order to prepare an Internet-based resource kit with a catalogue of incentives and case studies. This Internet-based resource has been established and can be found at http://economics.iucn.org/policy/incentives.htm
2.6 Thematic and policy review and recommended ‘course corrections’ (decision-making structures and institutions for sustainable development)
54. The contribution of the Ramsar Convention in this area can be summarized as follows:
a) Steady growth in the development of National Wetland Policies and Strategies – 12 Policies adopted, 6 being drafted; 50 Strategies adopted, 12 being drafted;
b) Seventy Parties where wetlands management issues are being integrated into broader sustainable development and biodiversity conservation policy and planning instruments;
c) Forty Parties with cross-sectoral national Ramsar or wetland consultative committees in place;
d) Growth in wetland restoration and rehabilitation with at least 76% of Parties supporting such activities;
e) Adoption of Guidelines for developing and implementing National Wetland Policies (Handbook 2 in the Ramsar Wise Use ‘Toolkit’);
f) Forty-five Parties that have reviewed their legislative frameworks and 39 which have made followup amendments;
g) Adoption of Guidelines for reviewing laws and institutions to promote the conservation and wise use of wetlands (Handbook 2 in the Ramsar Wise Use ‘Toolkit’);
h) Thirty-four percent of the Parties that have in some way acted to introduce economic valuation into decision making and planning for natural resource management;
i) Ninety-two Parties where actions potentially impacting on wetland require the preparation of environmental impact assessments;
j) Internet resource kits on incentives measures and impact assessment being developed;
l) Publication of handbook Economic Valuation of Wetlands.
55. From the perspective of the Ramsar Convention, the following are the main challenges to be considered by the 2002 World Summit:
a) To continue to see Parties developing and implementing National Wetland Policies and Strategies, in consultation with Major Groups and across the whole of government to ensure the engagement of ‘development’ Ministries;
b) To see National Wetland Policies and Strategies implemented as integrated parts of broader environment (water, biodiversity, coastal zone, etc.) and social programmes;
c) To continue to promote and foster wetland restoration and rehabilitation;
d) To continue to see Parties reviewing their legislative frameworks and introducing appropriate amendments to ensure that Ramsar obligations are fully met, and to ensure that such amendments are supported by all Ministries;
e) To ensure that economic instruments and market and other incentives are operating to promote the conservation and wise use of wetlands, and conversely that any perverse incentives which are promoting unsustainable practices or outright destruction of wetlands are removed;
f) To continue to apply the highest possible standards of impact assessment for development proposals, which include full and true accounting of the values, services and benefits of wetlands;
g) To promote the application of Strategic Environmental Assessment to ensure that all government programmes, plans and polices are not working against the obligations of the Ramsar Convention.
Policy review and recommended ‘course corrections’ for Rio + 10
56. While some progress has been made, most countries have not put in place a decision-making system which fully integrates social, economic and environmental factors at the policy, planning and management levels. Achieving such a goal is of course a considerable challenge even for those countries that have the resources and capacity to do so without assistance. It is clear that the nature of governments is such that bringing about integration of these streams of administration requires very strong political will, supported by high level officials and a community that are committed to achieving sustainable development.
57. The imperatives of food and water security and poverty alleviation are also significant factors which can impede the process of shifting paradigms in government and civil society if not addressed from the perspective of achieving long-term sustainability of ecosystem services.
58. It is apparent that Parties need to be encouraged (and supported as necessary) to continue their processes of policy and legal reform in order to allow sustainable development to become a reality. What is being seen is an increasing number of exemplars or models in this regard, and Rio+10 must find ways to be more effective in transferring and making these available to other States. In areas such as impact assessment, economic instruments and market and other incentives, and integrated environmental and economic accounting, there is now a menu of options to consider. The challenge is to make this menu more accessible to be taken up and adapted to national situations.
59. There would also seem to be a need for Rio+10 to urge Parties to consider governance reforms that will achieve two primary objectives:
a. the establishment within government of a primary driver of sustainable development, one that can accelerate the integration of social, economic and environmental factors. Such a driver could be a task force, high level council, or Ministry established by and reporting to the President or Prime Minister. Without this level of commitment to Agenda 21, it is difficult to see much in the way of rapid progress occurring in many countries; and
b. the decentralization or delegation of decision-making to the most appropriate management level. The ‘ecosystem approach’ developed under the Convention on Biological Diversity advocates this through its Principle 2 and suggests that decentralized systems may lead to greater efficiency, effectiveness and equity. The gathering experience in those countries where this is in place is that this is indeed the case.
Information box 3 - Goals and principles of Uganda’s National Policy The Ugandan Government has adopted a National Policy for the Conservation and Management of Wetland Resources to promote the conservation of wetlands in order to sustain their values for the present and future well being of the people. In support of this aim the Policy sets five goals:
Three principles apply in pursuit of these goals:
Thirty-six specific policy statements are made on how the goals will be achieved, and a preliminary set of guidelines for wetland resource users is annexed. |
From Ramsar Wise Use "Toolkit’ Handbook 2, "Developing and implementing National Wetland Policies"
Information box 4 - Restoration and rehabilitation as an element of national planning for wetland conservation and wise use The issues and developments in the field of wetland restoration have been considered by several Ramsar Conferences of the Contracting Parties and it is clear that, globally, the repair of wetlands is now recognized as a vital element of restoring or retaining ‘healthy’ ecosystems – especially for river systems and coastal zones. At Ramsar’s COP7, consideration was given to ensuring that wetland restoration and rehabilitation were an integral part of national and sub-national policies and planning processes. A review paper (Ramsar COP7 DOC. 17.4) was prepared by Hans Skotte Moller of the National Forest and Nature Agency, Denmark, in consultation with other experts. It is available from the Bureau or through the Ramsar Web site (http://ramsar.org/cop7_docs_index.htm). Ramsar COP7 also adopted Resolution VII.17 on this same subject and annexed to it was the following guidance on elements to be considered when planning or undertaking wetland restoration or rehabilitation programmes or projects. Elements to consider in restoration and rehabilitation programmes and projects 1. National planning and legislation on protection and sustainable use of nature, environment and water management should be developed to include obligations or, at least, options for wetland restoration. This may also promote the allocation of funds for restoration purposes. It should define restoration objectives and priorities at strategic level, with reference to lost wetland functions, processes and components. 2. Programmes contributing to the fulfilling of international obligations relating to conservation and sustainable use of wetlands should have priority. 3. Multiple purposes such as conservation of biodiversity, provision of reliable food resources, fresh water supply, purification, flood control and recreation may often increase the sustainability and total benefits of a restoration project. 4. Identify and involve all stakeholders at an early stage. The realisation of a project is dependent on cooperation between landowners and/or land-users, public authorities and politicians at different levels, scientific advisory bodies and non-governmental organizations. 5. Monitoring and evaluation of the effects and dissemination of information on the results is needed. Feedback to programme or project operation should be assured, and adjustments made if necessary to achieve the defined targets. 6. Strategic environmental impact assessment and cost benefit analysis are recommended before programme or project approval and implementation. 7. Successfully implemented pilot projects can provide much inspiration and stimuli for the development of forthcoming restoration projects and programmes. 8. General and popular information about effects and consequences before, during and after the implementation of programmes and projects is important. 9. Some important questions to evaluate in advance of projects, in relation to their usefulness and feasibility, include:
|
From Ramsar Wise Use "Toolkit’ Handbook 2, "Developing and implementing National Wetland Policies"
From Ramsar Wise Use ‘Toolkit’ Handbook 3, "Guidelines for reviewing laws and institutions to promote the conservation and wise use of wetlands"
Information box 6 - Australia enacts landmark legislation to protect Ramsar sites and migratory birds In July 2000 Australia’s national government brought into force landmark legislation – the Environment Protection and Biodiversity Conservation Act 1999 – which for the first time in that country gave special legal status to Wetlands of International Importance and migratory birds. The Act superseded (and repealed) several previous pieces of legislation, although notably none of these applied to Ramsar sites or migratory birds. Under the Act Ramsar sites and migratory species (in addition to World Heritage properties, threatened species and communities and more) are declared of "national environmental significance" and are given protection. With respect to Ramsar sites, Schedule 6 of the Act sets out the legal obligations, which include describing and maintaining the ‘ecological character’ of the sites, formulating and implementing planning to conserve the sites and promote wise use, preparing a suitable management plan and the standards of impact assessment which will apply should this be required. The Act also enshrines what have been called the Australian Ramsar Management Principles which give guidance in terms of what is expected in the management plans for Ramsar-declared areas. Perhaps one of the most innovative aspects of the new legislation is that it gives the Australian Federal Minister for the Environment the option to ‘declare’ any wetland providing he/she is satisfied it that "is of international significance because of its ecology, botany, zoology, limnology or hydrology", and where the ecological character of all or some of the site is threatened. This new power means that any wetland worthy of Ramsar listing, and which is facing threat, can be protected by the Federal Government. With respect to migratory fauna, the new legislation recognizes that certain listed species are of ‘national environmental significance’ and should therefore be protected. Those species listed include all of those covered by Australia’s bilateral migratory bird agreements with Japan and China – which includes all of the migratory shorebirds that traverse the East Asian–Australasian flyway. This legislation is new in the Ramsar context because, first, it gives Ramsar sites and migratory birds a much higher and more rigorous legal protection than they have enjoyed in the past. Second, the legislation enshrines Ramsar concepts such as ‘ecological character’ in law. Third, the law requires that all Ramsar sites have their ecological character benchmarked and have management plans prepared for each site (and these plans must meet certain standards). Fourth, the law provides a mechanism for protecting any wetland which meets the Ramsar criteria, even if the site has not yet been designated under the Convention. Fifth, the new Act places great emphasis on managing threats external to the actual sites, such as those threats which may result from poor water management decisions somewhere in the catchment of the site, or the potential impact of an invasive species on the site. And, finally, the Act also seeks to promote the involvement and consultation with stakeholders. To find out more about the Act consult the Web site for Environment Australia at http://www.environment.gov.au/epbc/ |
Information box 7 - Economic Valuation of Wetlands By Edward B. Barbier, Mike Acreman and Duncan Knowler Published in 1997, this 138-page handbook provides practical guidance to policy makers and planners on applying economic valuation techniques in wetland management. Following a brief synopsis of the importance of wetlands and the many causes of wetland loss, the authors explain the role of economic valuation in decision-making. They discuss why wetland values are frequently undervalued and emphasize the need for Contracting Parties to the Ramsar Convention to use appropriate valuation techniques to ensure the conservation and wise use of their wetlands. The authors provide a detailed framework for assessing the economic benefits of alternative uses of wetlands, presenting it as a three-stage process:
Successful completion of the three stages should yield an economic valuation of the wetland, indicating to policy/decision-makers whether or not the option should proceed. In a later chapter, the three stages are broken down into seven practical steps, providing readers with detailed advice on choosing the most appropriate methodology and conducting the valuation study. Six case studies provide invaluable practical demonstrations of the application of the various techniques in the field using a range of valuation methods and covering contrasting wetland types and diverse geographical areas. Highlighting the need for integrating ecological, hydrological and economic approaches, they demonstrate that valuation is not an end in itself but must be directed towards policy issues. The utility of the book is further enhanced with the provision of a full glossary and a 10-page bibliography. The book is available in English,
French and Spanish on the Ramsar Web site at http://ramsar.org/index_lib.htm |
Information box 8 – Valuing wetland services - Groundwater replenishment
|
For
further information about the Ramsar Convention on Wetlands, please contact
the Ramsar Convention Bureau, Rue Mauverney 28, CH-1196 Gland,
Switzerland (tel +41 22 999 0170, fax +41 22 999 0169, e-mail 
).
Posted 4 March 2001, Dwight Peck, Ramsar.
[