Appendix A4 Mid-term Evaluation Report (February 2003) Introduction
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2.3 ManagementThe main improvements recommended in management are a greater focus on results rather than inputs, increased common understanding of project objectivesand the GEF principles that must underlie all project activities, and a wider constituency of partners and stakeholders These are to be achieved through reduction in complexity of management structures, clarification of roles and responsibilities, and decentralization of management of provincial and nature reserve activities. Technical quality Project management must increase attention to technical quality of activities and outputs and be more flexible, so that changes to project implementation can be made in response to events and experience. It is important that the project should become known as a reliable source of information and opinion on wetland matters nationally. This will require working to create more links with organizations and individuals outside the project. Simplification of management structure According to the MTR, the complexity of the project management structure has been a major factor in slowing project progress. There ae four subcontracts, one of which (Subcontract 4 on alternative livelihoods) has a separate implementing agency (CICETE) and three of which include activities that overlap with each other or other components of the project at all four project sites . The MTR recommended that the number of implementing agencies be reduced by removing CICETE from the project structure, and that the number of subcontracts be reduced by foreshortening or canceling three subcontracts and bringing unspent funds from the canceled subcontracts under the direct management of the project. Decentralization Management from the centre led to lack of "ownership" at the provincial and site levels and this contributed to slow progress. Under the new design there will be greater autonomy at the provincial and site levels. However, there has to be a good balance here. Sound technical input from the CPMU will ensure that all project initiatives be subjected to critical review, particularly of their potential effects on biodiversity or the environment. 3. Assessment of Threats and constraints3.1 The Wetland SitesThere are a number of easily identifiable threats to biodiversity at the site level, both inside the nature reserves and in surrounding areas at the target sites. As mentioned above (section 2.1), the MTR concluded that many of these threats have underlying causes in institutional constraints (see below 3.2 and 3.3) Hunting is still not under control - despite some progress in limiting the ownership of guns, and fishing is under regulated. At many sites there is widespread land conversion that reduces important habitat. However, some anthropogenic habitats are of benefit to the globally significant species: many species feed on cultivated or grazing land and such land is an important part of the habitat for those species. Overgrazing may be threatening biodiversity in some areas of Ruoergai. Such threats are often portrayed as having their roots in poverty, but the MTR sociologist concluded that at none of the sites, with the possible exception of Yancheng, is poverty of local people a key threat to wetland biodiversity. Invasive alien species are significant threats at all sites. Particular concerns are Spartina alterniflora at Yancheng, pasture grasses for grazing "improvement" and trees for rehabilitation of degraded land at Ruoergai, fish at pretty well all sites, and crabs and crayfish (Procambarus clarkii) at Dongting and Yancheng. Pollution from agriculture, industry or city waste is a major threat in some areas, particularly Dongting. Reed-harvesting in Dongting and wetland drainage in Ruoergai and Sanjiang are significant threats elsewhere: the extent of such activities has to be balanced with their effects on the biodiversity and ecological services. There is still much unplanned and uncontrolled activity and law enforcement is generally poor. The provincial Environmental Protection Bureaux are mainly responsible for decision making on development affecting ecological and biodiversity values of wetlands at the site level, although the provincial Forestry Bureaux have jurisidiction within some of the Nature Reserves. 3.1.1 DongtingMajor threats include pollution, hunting (with guns or poison), lack of effective fishing regulations, invasive alien species, and human disturbance. Biodiversity conservation in Dongting Lake requires high levels of coordination by a wide variety of national, provincial and local organizations, both governmental and non-governmental. Nature Reserves that only cover part of a lake ecosystem such as Dongting are bound to be subject to severe limitations in what they can achieve alone. There is a Dongting Lake wide "Ecological Function Reserve" being planned by the Hunan provincial Environmental Protection Bureau, but with little coordination with the Forestry Bureau who run the individual nature reserves. Lack of coordination between reserves and between reserves and other organizations is a major constraint to success. Accurate and up to date information on biodiversity and other biophysical variables is particularly important for good management of the whole ecosystem, and monitoring systems to provide such information are lacking at present. In Dongting the geographical scope for influences on nature reserves from the surrounding areas is enormous. Pollution can arise from far outside the nature reserves, and the degree of erosion upstream leading to siltation of the lake, and the changes to be introduced by the Three Gorges Dam are wide reaching and completely out of the control of the NR authorities. 3.1.2 Ruoergai MarshesThe threats to globally significant species such as Black Necked Cranes are not severe, but it is important that the area be valued for its ecological services as a water reservoir for the Yangtze and Yellow Rivers. The main threats to wetland biodiversity are loss of habitat through drainage, degradation of grasslands through desertification and overgrazing in some areas, introduced species, increasing human disturbance, inappropriate management practices (for example, rodent and pika poisoning and current approaches to herding systems such as fencing of grasslands), and insufficient mitigation of development initiatives such as new roads. Digging for rock, sand and gravel for upgrading of National Highway 213 through Gahai-Zhecha NNR and along the eastern boundary of Ruoergai NNR is already leaving scars on the landscape that will cause erosion in the future, and the improved transportation will bring increased tourism with possible negative environmental effects. Recent reduction in rainfall attributed to global climate change could be the result of a local change in climate following the widespread drainage projects. As in Dongting, there are relatively advanced Environmental Protection Bureau plans for an Ecological Function Reserve covering the whole of the Ruoergai Marshes and overlying the Forestry Bureau run nature reserves, but little coordination in planning it and setting it up. There has been insufficient consultation with scientists for example. 3.1.3 SanjiangThe major threats in Sanjiang are reduction of the water table and surface water levels through drainage projects, and agrochemical pollution. The captive breeding programme for Oriental Storks in Honghe NNR is also a threat to the species in that it is almost certain to be a drain on the wild population and that it takes resources away from useful activities. 3.1.4 YanchengIn Yancheng the local threats consist mainly of pressure from local people to convert the whole area into fields (particularly to cotton) and aquaculture ponds, harvesting of shellfish and worms on the unenclosed mudflats, the rapid spread of the introduced grass Spartina alterniflora, and the artificial breeding of Red-Crowned Cranes in an attempt to establish a resident population. Saunders' Gull is now reported to be restricted to only one breeding site, in the core zone of the Yancheng NNR, whereas only three years ago it was breeding in three sites - a reduction of range attributed to some biologists to the spread of S. alterniflora |