Appendix A4 Mid-term Evaluation Report (February 2003) Introduction

5. Outline for redesigned project

The MTR considered the overall objective and the threats and underlying problems and designed a new approach to implementation that focuses more closely and realistically on the needs at each site and at the policy level and includes seven "programmes" that were intended to be regarded as the new Immediate Objectives.

TABLE 1. IMMEDIATE OBJECTIVES AND OUTPUTS

Strengthened protected area facilities and management for eleven nature reserves at four wetland sites

A basic biodiversity monitoring programme for the whole of the Dongting Lake designed and operational

Raised capacity of local government and nature reserve officials in understanding the Ruoergai ecosystem and application of sound ecological principles in their decision making, , and good interagency coordination in economic development of the region

Ruoergai herders cognizant of ecological principles and using their experience together with newly acquired knowledge and skills to contribute to decisions on grazing management systems, infrastructure and economic development

Sound ecological and hydrological principles in use by local officials, planners and developers, including project managers, on the Sanjiang plains in land-use planning and water management

Strengthened public information on biodiversity conservation, and improved environmental education programmes in the Yancheng coastal marshes area

Strengthened processes and capacities for coordination of development and other activities affecting wetland biodiversity and nature reserves

Proposals for changes in policy and legislation with respect to wetland biodiversity conservation and nature reserves submitted to the Chinese government

The rationale of this design is that lessons learned under Immediate Objective 1, which includes demonstrations of different aspects of wetland resource mangement, are passed up to provincial and national level to feed into policy review and development.

5.1 The outputs

The MTR report stressed that the project design should not be too rigid and prescriptive with respect to determination of inputs and activities and that activities should be decided upon during planning workshops. The outputs are presented in this concept paper in broad terms. Detailed outputs and activities will be elaborated during participatory planning workshops involving all major partners and interested parties. The general steps that will be needed and the expected end of project situation are indicated under the description of each output. The indicative logical framework (Annex 1) gives more details on indicators, sources of verification and preconditions or assumptions. Each of the eight outputs will go through a log-frame analysis as part of the redesign process involving the provincial offices, following a decision on the general project concept at the Tripartite Review Meeting. Outcomes and impacts will also be elaborated for monitoring purposes. And baselines will have to be established for the outputs - for example on current level of management where "strengthened management' is the output.

5.1.1 Output 1.1 Strengthened protected area facilities and management for eleven nature reserves at four wetland sites

Nature reserve staff work under difficult conditions with often inferior equipment and clothing. But the main problem lies in the making of inappropriate management decisions - decisions that often detract from the objectives of the nature reserves (see Section 3.2). Some of the underlying causes for such behaviour are to be addressed under Outputs 2.1 and 2.2, but basic lack of understanding of conservation biology and the application of ecological science to habitat and species management will be addressed under this output through training. Training will be delivered through on-the-job activities so that much basic NR management will be supported by the project, including survey and monitoring work and public awareness and environmental education.

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  habitat and species management
  
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  protected area management planning, including rezonation where necessary
  
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  assessment of the environmental implications reports and proposals
  
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  planning of patrols
  
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  design and implementation of biological and social surveys
  
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  analysis and review of survey and monitoring data
  
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  involvement of the general public in biodiversity conservation and reduction of conflicts between general public and nature reserves
  
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  understanding the economic valuation of wetland goods and ecological services
  

and will be putting their training into practice and assisting in training staff from neighbouring reserves. The nature reserve staff will also have the basic equipment and field clothing necessary to fulfil their functions, and support to maintain that equipment.

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  training through courses and workshops tailored for each site separately, and learning on the job through demonstrations and experience ³⁰
  
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  provision of equipment and educational and technical resources including books and other publications
  
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  links with Outputs 1.2 to 1.5. (For example, through research and monitoring carried out under Output 1.3 the Ruoergai managers will have a better understanding of the causes of threats to biodiversity and wetland functions and will be better able to make sound management decisions. And Output 1.5 will contribute to capacity development of Yancheng nature reserve staff in design of effective public awareness campaigns and education programmes)
  
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  use of the management plans already prepared as training tools in management planning principles (Management problems that demand sound decisions will provide a focus for discussion and a way of training on the job. Examples include the rodent poisoning programme and the settlement of herders in Ruoergai, a release programme for Pere David's Deer at Dafeng, changes to revenue raising activitiesin the core areas at Yancheng, expansion seawards of the Nature Reseves at Yancheng due to accretion of mudflats year after year, the cost-effectiveness of various ways to restore water levels at Honghe, the basic needs for water in the farms around the Honghe NR)
  
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  procurement of equipment after careful equipment needs analyses at each reserve and assessment of the ability of the host institutions to obtain funds for operation and maintenance.
  

5.1.2 Output 1.2 A basic biodiversity monitoring programme for the whole of the Dongting Lake designed and operational

Although there is a considerable amount of published information on the biodiversity and the physical characteristics of Dongting Lake and further work is in progress or has been recently completed, there is no unified approach to monitoring by the various agencies and institutions involved in data collection. Recent declines in numbers of some relatively common water birds and shore birds (eg egrets and coots) have alerted people to the need to identify causes for such declines and to investigate underlying threats to the ecology of the whole lake and indeed to the health of the human population. There is a need for a biodiversity monitoring programme. Much data is already collected on water quality but this programme will bring the various agencies and data together and ensure standardization of methods and sampling regime to make the results more useful. The subcontractors for subcontract 1 will complete the basemaps but the biodiversity survey activities under subcontract 1 will be managed by the project directly under this output.

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  an effective monitoring programme for species and habitats in the Dongting Lake will be in operation and producing coherent and standard data for decision makers on trends in biodiversity and water quality,
  
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  data from the monitoring programme will be used by decision makers in local and provincial governments to combat pollution for example, to strengthen law enforcement, and to contribute to lake-wide policy development and links to upper catchment management
  
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  local people will know about the monitoring programme, assisting with observations and reports, and aware of the importance of maintaining the ecological health of the lake
  

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  review of existing information and maps, published and unpublished, on the biodiversity, water quality, water levels, flooding, and climate of Dongting Lake. Conference including scientists and government officials and NGO's
  
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  analysis of institutions and organizations required to be involved in the programme, followed by a training needs analysis for the programme.
  
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  training courses and workshops on sampling theory, biodiversity and chemical/physical monitoring methods, data analysis, review and statistics, and identification skills for different taxa.
  
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  careful creation of plan for the monitoring scheme carefully through above training courses and additional series of workshops, with all partners assigned their roles.
  
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  equipment needs analysis, procurement of required equipment and assignment to those responsible for its operation and maintenance. preparation of habitat map of entire wetland
  

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  implementation of the monitoring programme itself
  

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  having designed and implemented the basic biodiversity monitoring program, data collection on water quality, climate and other physical/chemical variables will have been added to the programme in the final year.
  

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  involvement of public, NR staff, honorary game wardens, interested farmers, other partners, visiting bird watchers, scientists and nature lover groups
  

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  a website to share information among all stakeholders.
  

5.1.3 Output 1.3 Raised capacity of local government and nature reserve officials in understanding the Ruoergai ecosystem and application of sound ecological principles in their decision making, , and good interagency coordination in economic development of the region

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  A research programme will have been established for determination of grazing capacities of Ruoergai Marshes, effects of fencing, rodent and pika control, peat mining and road construction on pasture and ecology and on wetland restoration methods.
  
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  A monitoring programme for rangeland health will have been established
  
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  Local government officials at county, prefectural and provincial levels, including representatives from all relevant departments and bureaux will be able to consider development proposals and actions in the Ruoergai Marshes in the context of biodiversity and wetland conservation principles.
  
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  Guidelines for ecologically sound exploitation and development (including herding and all other land uses) will be integrated into government planning for the Ruoergai Marshes
  

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  Review of existing information and determination of needs for new data - conference with scientists and government officials brought together
  
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  Identification of gaps in knowledge and existing research projects
  
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  Planning and implementation of research and monitoring programme. (Topics for research include: causes of desertification; whether over-grazing is occurring and if so its impact on biodiversity and desertification; the impact of nomadic herding, fencing, settlement of herdsmen, grazing and drainage, on the wetland ecosystem and biodiversity; the ecological roles of pikas and zokors and effects of poisoning on the ecosystem and species (following up on completed research in Qinghai); relative impacts of different species of domestic livestock; whether herding patterns can be restored that benefit biodiversity, ecosystem function and eco-tourism potential of area)
  
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  investigation of methods for drainage reversal and restoration of wetlands
  
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  capacity building of decision makers and planners in consideration of ecological principles, in particular as they apply to the impact of human activities on the environment
  
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  demonstrations of how to integrate ecological principles into development; upgrading the highway is an urgent example.
  
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  improvement in coordination and communication between planners
  
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  workshops to consider the various plans for development of the Ruoergai Marshes, and policy options for revenue generation, including taxing of downstream communities for water conservation services.
  
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  Series of meetings leading to acceptance and adoption of guidelines and appropriate changes in current policy and decision making
  

5.1.4 Output 1.4 Ruoergai herders cognizant of ecological principles and using their experience together with newly acquired knowledge and skills to contribute to decisions on grazing management systems, infrastructure and economic development

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  local herders will be cognizant of biodiversity and wetland/water conservation trends, problems and values, and will be taking part in discussions on ways to tackle any conflicts between development proposals and their ways of life.
  
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  mitigation of the effects of certain current practices on biodiversity and water conservation will have been achieved
  

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  dialogue with herders leading to herders being better informed about ecology, protected areas and biodiversity. (Possible methods include meetings with opportunities for extensive discussions, and follow up meetings, workshops, a publicity campaign using TV and radio programmes and other media, and involving senior local government officials in lead roles. A mobile education unit could be equipped and sent around the Ruoergai Marshes working in an interactive way - better than merely delivering a message with no feedback and opportunity for answering queries. Other options include design of displays and provision of education materials for public information centers and establishment of links with relevant organizations through which experiences on peatland, wetland and crane conservation could be exchanged by local groups)
  
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  increased involvement of herders' representatives in planning processes and nature reserve management
  

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  appropriate policy changes and individual incentives to modify certain practices, particularly grazing in certain parts of the nature reserves
  
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  rezonation of the reserves
  

5.1.5 Output 1.5 Sound ecological and hydrological principles in use by local officials, planners and developers, including project managers, on the Sanjiang plains in land-use planning and water management

Most of the wetlands in the Sanjiang site are affected by drainage schemes, and patches of natural vegetation are being destroyed by new drainage despite regulations to the contrary. Much of the area is under State Farm management. An Asian Development Bank (ADB) project³¹, which is now in the planning stages, involves a USD 12-15 million loan for developing alternative economic livelihoods to support water restoration in 7 nature reserves in the Sanjiang plains. A $600,000 US technical assistance (TA) to design the loan is now at the bidding stage. Another GEF project is providing part of the funding for the TA, to ensure that biodiversity issues are covered during design of the loan. There is a role for this project too in provision of technical advice at both the TA and the loan phase and in preparing local officials for sound decision making when considering their options.³²

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  government officials including those at the state farms, will have increased understanding of and capacity to deal with the biodiversity, water conservation and ecological implications of the various development proposals
  
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  the activities of Subcontract 3 will have been reviewed and available funds reallocated to new tasks if appropriate. (The project should not spend large amounts of money on the Honghe rehydration study and on purchasing equipment, without substantive review of the value of the results so far and the potential benefits of the equipment)
  

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  close liaison with the forthcoming ADB project TA and provision of technical advice for project formulation
  
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  training courses, study tours and on the job training through an international United Nations Volunteer
  
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  development of practical approaches for integrating ecological and biodiversity considerations into the major water restoration plans proposed for the Sanjiang Plains through technical advice (including expert studies and analysis) and awareness raising of provincial decision-makers (eg Planning Commission, Water Bureau, Agricultural Reclamation Bureau and State Farm Bureaux) about issues such as pollution, drainage, restoration of wetlands, NR boundary revision, ecotourism and links between NR's.
  

5.1.6 Output 1.6 Strengthened public information on biodiversity conservation, and improved environmental education programmes in the Yancheng coastal marshes area

This output includes development of practical approaches for environmental education at Yancheng and Dafeng NRs and surrounding areas that support biodiversity conservation i.e. that help raise public awareness and provide sound messages about biodiversity conservation, and that are financially viable for the nature reserves. There will be close collaboration with UNESCO is important under this output as the Yancheng NR is a Biosphere Reserve. WWF China is currently conducting education under their Yellow Sea Ecoregion Programme, and this output will be aligned with that programme.

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  appropriate displays in education centers will have been established and existing ones replaced
  
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  selected nature reserve and local government officials will be able to design appropriate displays and environmental education programmes and incorporate the principles into planning of other such displays and centres in the area.
  
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  routine presentations will be made to the public, and the public will be in dialogue with the NR authorities.
  
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  local people will be involved in and taking part effectively in various conservation activities such as collecting data, strengthening law enforcement and public education.
  

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  advice and capacity building regarding environmental education
  
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  environmental education incorporated into all activities, such as tourism development, conducted by the NRs.
  
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  training partly done “ on the job” through a project volunteer.
  
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  study visits to some existing good education centers
  
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  outreach activities with school children, farmers and local officials or public involvement in bird species monitoring and law enforcement or even some research, as well as assistance with the actual displays and activities carried out in the education centers.
  
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  surveys and research on ecosystems and key species and threats to them supplying the education display and programmes with first hand data and making research and monitoring activities themselves integral parts of the education displays
  
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  links with national and international NGO's and their conservation programmes
  

5.1.7 Output 2.1 Strengthened processes and capacities for coordination of development and other activities affecting wetland biodiversity and nature reserves

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  the capacity of provincial planners and local governors related to wetland management will have been strengthened
  
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  coordination among different sectors in each province will have been improved
  
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  provincial nature reserve system planning will have been improved
  

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  nature reserve management problems that have policy implications will have been examined and resolved. [Examples include how to ensure the nature reserves' land tenure over accreted mudflats at Yancheng, and how to solve the potential short term conflicts of interests in that the State Farm at Honghe in effect manages the NR and drains its water]
  

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  lessons from the provincial activities will have been communicated to the state level
  
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  consideration of ecological factors in planning and development decision making will have been improved
  

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  identification of existing planning processes and mechanisms in decision making related to wetland utilization and conservation in each of the five provinces
  
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  identification of the key people for decision making in the various sectors
  
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  development of training programmes to improve capacity in wetland management
  
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  workshops on the relationships between existing and proposed environmental and development plans in each province to ensure consistency between the plans and sound consideration of ecological principles and biodiversity, particularly as they apply to wetlands
  
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  establishment and maintenance of links to ensure smooth cooperation between agencies
  

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  development of a more comprehensive planning mechanism (based on existing ones) to cover provincial wetland management
  
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  regular sharing of information between nature reserves started as a wetland project newsletter and established as an institution by the end of the project
  
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  development of provincial regulations on wetland and biodiversity management through a participatory process where needed
  

5.1.8 Output 2.2 Proposals for changes in policy and legislation with respect to wetland biodiversity conservation and nature reserves submitted to the Chinese government

Many of the problems facing nature reserve and natural resource managers at the local level stem from problems at the center - institutional or policy or both. To produce this output the project will work in Beijing to identify such bottlenecks and to develop ways to change policy or legislation necessary to reduce problems caused by them in the field. There are conflicts between legislation and actual practice that are unavoidable under current policy: for example large numbers of people live in NRs illegally and this practice is accepted as inevitable or even encouraged by NR managers in order to raising operational funds. China’s Nature Reserves are all of one category legally, although various zones are available. The project will assist in particular with work on establishing additional nature reserve categories that would allow the system to correspond with the IUCN classification. Good coordination will be needed between the various institutions that manage Protected Areas in China in order to develop a more useful system of classification and to clarify jurisdictions in cases where there are overlaps. Selected people should attend the World Parks Congress in Durban in Sept 2003.

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  capacity will have been built at central government level for NR management and system strategy and for making changes to policy and legislation that are necessary for effective management
  
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  the project will be communicating frequently with a network of wetland related agencies, governmental and non-governmental and will have assisted in implementation and periodic revision of the National Wetland Conservation Action Plan, and coordination between the concerned agencies will have been strengthened
  

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  policy options will have been developed for improving the management of the protected area system
  
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  proposals for changes in policy and legislation will have been submitted to the Chinese government
  

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  establishment of effective working relationships with key government departments involved in wetland and nature reserve management (for example the departments of Nature Reserve management, Wildlife Conservation and Wetlands in SFA, Department of Nature Conservation in SEPA and Department of Aquatic Wild Animals protection in Ministry of Agriculture) and other relevant organizations
  
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  a training needs analysis
  
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  on the job training for government officers through provision of materials
  
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  a training programme - mainly meetings and workshops, but also training courses, study tours and internships (both incoming and outgoing)
  
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  analysis of the problems at the four sites' protected areas
  
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  review of existing legislation and regulations for PAs at all levels and in all management authorities to identify requirements for change
  
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  review of categories of nature reserves and other protected areas in China to clarify the current inconsistencies between law and practice in protected area management
  
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  review of funding mechanisms for protected areas and analyzing the current practice of funding high capital costs but few operational costs (thus encouraging NR managers to use the NR's own natural resources, in sometimes damaging ways,for revenue generation).
  

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  review and evaluation of the current requirements for Master Plans and Management Plans in nature reserves and the effectiveness of the current management plans and degree of implementation
  

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  examination of the effects of any incentives to make NR's large in order to achieve national nature reserve status
  

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  forming links with the National Wetland Conservation Action Plan Committee, conservation NGO's, and task forces of CCICED (Integrated River Basin Management, and In-situ Conservation) among others
  
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  discussions with concerned NGO's and other organizations, eg The China Environment and Sustainable Development Reference and Research Centerb
  
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  technical assistance on policy and legislation for revision of the draft “Wetland Conservation Regulations of China” and the “Nature Reserve Management Regulations of China”.