Project Concept Paper
Songhua River Flood & Wetland Management Project
The People’s Republic of China
1. Project Name
5. GEF Focal Area
Songhua River Flood & Wetland Management
Project
Biodiversity conservation
2. Requested GEF Implementing Agency
6. Operational Program
Asian Development Bank/Implementing Agency to
be determined
GEF’s OP 2: Coastal, Marine and Freshwater
(including Wetland) ecosystem.
3. Country in which the Project is being
Implemented
The People’s Republic of China (PRC)
4. Country Eligibility
PRC ratified the Convention on Biological Diversity (CBD) on 5 January 1993
7. Project Linkage to National Priorities, Action Plans, and Programs
In the wake of the catastrophic floods of 1998 in the Yangtze, Songhua, Nen, and Liao river basins,
estimated to have caused direct economic losses in excess of $23 billion, the Government has embarked
on an ambitious nationwide program aimed at improving flood protection, with particular emphasis on
environmentally sound management of watersheds and water resources. As part of this program, and as
a follow-up to Loans Nos. 1685/1686/1687-PRC: Northeast Flood Damage Rehabilitation Project, for
$330 million, approved on 22 April 1999, the Bank has been asked to provide assistance to the Songhua
River (including Nen, Second Songhua, and Songhua) Flood and Wetland Management Project
(SRF&WMP).
The Government is aware that the damage caused by the 1998 floods was exacerbated by excessive
forest clearing, unsustainable development of steep upland areas for agricultural uses, and loss of flood
absorptive capacity of wetlands due to uncontrolled development and in-filling. The Government has
pledged, as part of a comprehensive approach to improved flood management, to halt all clearing of
forests, place tight restrictions on upland development, and protect and enhance the flood storage
capacity of wetlands. Enhancement of wetlands would be done by protecting and conserving existing
wetlands, and by restoring those whose flood absorptive capacity had been lost due to unplanned
development. Premier Zhu Rongji emphasized wetland protection and the proper management of
watersheds in a recent statement released. In addition, President Jiang Zemin declared (on 22 June
1999) that the long-term perspective for development of rivers would be based on the principle of
combining water regulation, rational use of water resources, and improvement of the river’s ecology.
The 1988 Water Law defines the basic principles and policies for water resources management in PRC,
and the 1997 Law for Flood Control sets out approaches to identify the causes of floods and to prepare
and implement remedial measures. A significant concept embodied in this law is the authority given to
river basin commissions to designate zones in which special rules may be applied to control land use and
other activities. These laws provide a strong basis for restricting unsustainable development of uplands
and improving the condition of wetlands as part of an overall strategy to reduce the negative impacts of
floods, for both protection of human life and property and for improved management of the ecosystem
and conservation of biodiversity.
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In 1992, the PRC ratified the Ramsar Convention, and in 1993 the CBD. In 1993, China’s Agenda 21
identified wetlands as a special land resource and habitat, and put forward objectives and requirements
for wetland conservation and rational utilization. In 1994, China’s Biodiversity Action Plan identified the
biodiversity conservation in Sanjiang wetlands as the highest priority by ranking Honghe National Nature
Reserve (NNR) in Sanjiang Plain as Category A-I (International Importance or Significance, Grade 1). In
1995, the Committee of Environmental and Resources Protection of the National People’s Congress
released an official document to require the central and local governments to protect the wetlands in
Sanjiang Plain. In 1996, in a report to the State Council (NNH [1996] No. 8), the Ministry of Agriculture
stressed the importance of coordinating wetland conservation and agricultural development in Sanjiang
Plain. In 1998, Heilongjiang Provincial Government issued a decision to suspend any kind of wetland
development in the province.
8. Status of GEF National Focal Point Review (Dates)
To be reviewed and endorsed by the National Focal Point, Ministry of Finance in August 1999.
9. Project Rationale and Objectives
a. Improved Flood and Wetland Ecosystem Management
SRF&WMP aims to improve flood management in the Songhua River basin, consistent with an overall
improvement in environmental conditions, with particular emphasis on protection of wetland ecosystems.
The primary objective of SRF&WMP is to reduce flooding and flood hazards in the flood impact zone of
the Songhua River. This will be achieved by strengthening, improving, and bringing to a consistent
standard the existing flood protection measures along Songhua River. Concurrently, the natural functions
of wetlands as flood retention basins and habitats for wildlife will be preserved and, where necessary,
restored. To enhance the capacity of wetlands to absorb excess water when Songhua River is in flood,
and to restore natural cycles of water and nutrient flow into the wetland areas, the current trend towards
extensive drainage and flood containment will be reversed. To make the lives, property, and livelihoods of
the indigenous populations more secure, some flood protection of essential infrastructure will
nevertheless be provided in the wetlands. This calls for carefully balanced flood protection measures and
wetland restoration, supported by complementary interventions to restore the ecosystem and to
encourage resources utilization at safe and sustainable levels.
Acknowledging the importance of wetlands to flood mitigation, the Government has, since the flooding in
1998, spent about US$50 million in the Yangtze River basin to return reclaimed croplands back to
wetlands. The Government has stated that a similar approach will be promoted in other major river
basins. For the Songhua River basin, particular attention will be given to the Sanjiang wetlands located in
the area defined by the confluence of the Songhua, Heilong (Amur), and Wusuli Rivers.
b. Characteristics of Sanjiang Wetlands & their Global Significance
The Sanjiang wetlands are important to Songhua River basin because of their hydrological functions, and
are globally significant in terms of biodiversity conservation. The Sanjiang Plain contains the largest area
of wetlands in East Asia, estimated at 1.97 million hectares (ha) in 1997. They represent one of the most
important breeding sites and migratory routes for waterfowl in northeastern Asia, and are significant for
the number and variety of globally threatened waterfowl species. They are described as globally
important wetlands in the “Directory of Asian Wetlands”.
The Sanjiang wetlands provide habitats for numerous species of wildlife, including 1,460 plant species, 64
mammals, 211 birds, 11 reptiles, 9 amphibians, and 82 fish. There are 8 animals listed as top-ranked
species in the Annex of the China Conservation Law of Wild Animals, and 18 animals listed as secondranked. There are 6 birds identified in Appendix I and 1 bird in Appendix II of the Convention on
International Trade in Endangered Species of Wild Fauna and Flora (CITES). Out of 227 migratory birds
protected by the Government Agreement on Migratory Birds between China and Japan, 64 species have
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been recorded in Sanjiang wetlands, and 43 species breed in the wetlands, including red-crowned crane,
hooded crane, white stork, black stork, white-tailed eagle, and steller’s eagle. The lakes and rivers
support several rare and endemic amphibians, fish, and plant species.
The Amur and Wusuli Rivers which flow to the North Pacific are internationally important habitats for
migratory sturgeons and salmon (Salmo spp.), of which Huso Sturgeon is an endangered species.
Sanjiang wetlands are the homeland for several cultural minorities in the PRC. The Hezhe is the smallest
minority in PRC with a population of about 4,000 to 5,000 people. Hezhe rely on fishing and have their
own language, culture and lifestyle, all closely related to the wetland ecosystem.
c. Threats to the Wetlands
The richness of the undeveloped land resources and the relatively low population density make Sanjiang
Plain a prime target for agricultural development. Over the past 40 years Central and provincial
governments, and bilateral and multilateral investors have invested in development of agriculture in
Sanjiang Plain. The area of croplands in Sanjiang Plain, which was merely 820,000 ha in 1949, reached
4.02 million ha by 1997. About 2.46 million ha of original wetlands have been converted to monoculture
agriculture.
As part of this conversion process, an extensive drainage system has been under construction since the
late 1970s in Sanjiang Plain to lower the water table for agriculture. This is disturbing the natural
hydrological functions of the wetland ecosystem and destroying the ecological foundation of the existing
nature reserves and remaining wetlands.
A highway, estimated to cost US$80 million and passing through the center of Sanjiang Plain, is under
construction and is expected to be completed in the first half of 2000. Its completion will enable an
increasing number of land developers to access the remaining Sanjiang wetlands. Improved access will
exacerbate the toll taken by illegal hunting on the remaining wildlife.
In addition, development of the wetlands has included clear-cutting of primary forest. The local climate
has apparently become warmer and drier, some rare species of birds and animals are being pushed
closer to extinction, salmon harvests have sharply declined to about 1-10 percent of normal levels, soil
fertility is diminishing at an alarming rate, and drought and flood are occurring with apparently greater
frequency. Wetland reclamation and modern farming techniques are also threatening the neighboring
natural reserves of Honghe.
Agricultural development, drainage works, highway projects, and illegal hunting and logging are exerting
a detrimental impact on the biodiversity and ecosystems in Sanjiang. The remaining wetlands are under
threat of further destruction due to uncontrolled and unsustainable development.
d. Objectives of Improved Management of Wetland Ecosystems on Sanjiang Plain
Improved management of the Sanjiang wetlands will serve two important objectives: (i) enhancement of
their flood mitigation role, and (ii) conservation of the globally unique environment and biodiversity of
Sanjiang plain. SRF&WMP will develop, through participatory approaches involving the local indigenous
peoples, proposals for sustainable development of natural resources in Sanjiang wetlands, such
approaches depending on preservation of a healthy natural environment rather than on exploitation at
destructive levels. Benefits will include improved management of natural resources and the environment,
biodiversity conservation, and poverty alleviation. SRF&WMP will serve as a model for the conservation
and sustainable management of wetlands in other parts of PRC and Asia, and experience gained will
contribute to national policy-making.
e. Project Scope
The scope of SRF&WMP will be defined by a project preparatory technical assistance (PPTA), which is to
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be financed by the Bank and is scheduled to commence in 1999. Concurrently, and as an integral part of
the PPTA, studies will be undertaken to define the specific measures required to conserve the Sanjiang
wetlands and to ensure sustainable management of their biodiversity. A Global Environment Facility
(GEF) Project Development Facility Block B (PDF-B) grant will be sought to finance the studies related to
management of the Sanjiang wetlands ecosystem.
It is anticipated that SRF&WMP will include (a) flood protection works on the main Songhua River and its
tributaries; (b) non-structural measures such as flood plain mapping and zoning, flood risk assessment,
building controls, and improved disaster relief; (c) strengthened legislation and controls to protect upland
areas, forests, and wetlands, including specific provisions to restore key parts of the Sanjiang wetlands to
a state approaching natural conditions; (d) improved hydrometeorological networks, flood data recording
and transmission, flood estimation, and early warning facilities for flood prediction; (e) capacity building;
and (f) improved public awareness.
f.
Relationship with the Proposed UNDP-GEF Project
The proposed UNDP-GEF Wetland Biodiversity and Sustainable Use in China project includes part of
Sanjiang Plain (Honghe NNR and surrounding areas) as one of the case study areas for developing and
demonstrating appropriate techniques for conservation of wetlands. The UNDP-GEF project focuses
mainly on technical assistance for Honghe NNR, while the proposed Songhua River Flood and Wetland
Ecosystem Management Project will adopt a broader geographical focus and will include physical works
needed to restore the wetlands, together with stakeholders’ participation to develop biodiversity
conservation within a framework of sustainable use of wetlands resources. By virtue of its multi-sectoral
approach and broader coverage it will address threats at the wider landscape scale, as well as
fundamental barriers to effective biodiversity conservation, such as lack of an integrated and coordinated
approach to wetland conservation in development planning. The concepts developed under the UNDPGEF project will be applied to SRF&WMP.
10. Expected Outcomes
SRF&WMP will provide:
(i)
comprehensive plan for improved management of floods in Songhua River basin, including (a)
planning measures, (b) development and building controls, (c) structural measures, (d) flood
response and recovery measures, and (e) complementary program for conservation and restoration
of Sanjiang wetlands;
(ii)
inventory and database of biodiversity of the Sanjiang wetlands;
(iii) legislation relating to biodiversity conservation, wetland protection, and sustainable development in
Sanjiang Plain;
(iv) integrated environmental management plan covering wetland conservation, environmental
protection, infrastructure construction, economic development, and social welfare in Sanjiang Plain;
(v)
capacity building of local authorities in relation to wetland conservation;
(vi) pilot projects to help guide local communities adapt their general approach to utilization of natural
resources such that more biodiversity-friendly livelihoods will be adopted (with special attention to
Fuyuan and Tongjiang countries);
(vii) restoration of degraded wetlands and their ecological functions, especially those adjacent to nature
reserves;
(viii) improved collaboration between managers of nature reserves and local communities to generate
greater awareness of nature conservation;
(ix) new nature reserves in the most fragile and endangered areas;
(x)
strengthened management of the existing nature reserves; and
(xi) measures to help conserve the culture and history of local minority groups.
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11. Planned Activities to Achieve Outcomes
SRF&WMP will include the following activities to conserve the Sanjiang wetlands and to ensure
sustainable management of their biodiversity:
(i)
field survey in the Sanjiang wetlands to prepare a comprehensive inventory of the area’s
biodiversity;
(ii)
assistance in preparation of draft local legislation to protect the wetland ecosystem and to define
the limits and conditions for sustainable development in Sanjiang Plain;
(iii) assistance in preparation of an integrated environmental management plan with short-, mid- and
long-term goals, together with concrete recommendations on nature conservation, utilization of land
and water resources, infrastructure development, economic development, poverty alleviation, and
adjustment of the industrial structure in Sanjiang Plain;
(iv) capacity building at the provincial, municipal, county, and farm levels for wetland management,
including also the existing nature reserves, with an emphasis on unifying the authority of wetland
administration at the provincial and municipal governments;
(v)
capability strengthening for field surveying, remote sensing, and geographic information systems (GIS)
applications to develop an overall inventory of the status of wildlife, wetlands, land use, and other important
natural resources in Sanjiang Plain;
(vi) assistance in the restoration of 20,000 ha of degraded wetlands in Qianfeng Farm, Fuyuan County located
downstream of and adjacent to Honghe NNR;
(vii) technical and financial assistance to Qindeli Nature Reserve (NR) in Tongjiang County for the protection and
breeding of endangered sturgeons, including provision of appropriate infrastructure;
(viii) redesign and modification of the drainage works in Nongjiang-Yalu watershed to ensure an adequate water
supply to the nature reserves in this area;
(ix) establishment of a small natural and cultural museum in Fuyuan County to preserve the historical, natural, and
cultural values of the Hezhe (the smallest minority in PRC);
(x)
technical and financial assistance to establish a new nature reserve in Naoli-Qixing watershed to protect about
100,000 ha of wetlands;
(xi) establishment of pilot projects in areas bordering nature reserves to promote collaboration between the
management organizations and communities and to test environmentally safe income-earning activities to help
alleviate poverty; and
(xii) assistance to help conserve the corridors connecting Honghe NNR, Sanjiang Provincial Nature Reserve (PNR),
Qindeli NR and Naoli-Qixing NR, and the southern and northern parts of Sanjiang PNR to facilitate migration of
species between the protected areas.
12. Stakeholders Involved in the Project
Stakeholders are (i) local decision-makers, including people’s congresses and government agencies at provincial,
municipal and county levels, especially the agencies responsible for planning, finance, environmental protection, water
resources, agriculture, poverty alleviation, and forestry; (ii) the state-owned and local farm administrations; (iii) various
investors, including the central and local governments, multi- and bilateral financial institutions, and international and
domestic companies; (iv) Government ministries responsible for planning, finance, environmental protection,
agriculture, water resources, and forestry; and (v) local communities. The Institute of Environmental Economics (IEE),
Renmin University of China and the State Environmental Protection Administration (SEPA), in association with Beijing
Environment and Development Institute (BEDI), Chinese Research Academy of Environmental Sciences (CRAES),
Institute of Botany (IOB), Chinese Academy of Science, and Heilongjiang Institute of Natural Resources (HINR) are all
closely involved in aspects of wetland conservation and have been active in formulating recommendations for
SRF&WMP. The Government will coordinate implementation of SRF&WMP.
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13. Implementation Arrangements
The GEF component of SRF&WMP will be implemented by SEPA, the central level agency responsible for
environment protection and implementation of CBD in PRC, in close coordination with the provincial government of
Heilongjiang Province.
14. Estimated Budget
It is tentatively estimated that the GEF component of SRF&WMP will cost about $20 million. The cost will
be calculated during implementation of PDF-B.
PDF-B: estimated requirement is $330,000
Co-financing by the Bank: $150 million
Bilateral Donors: To be confirmed
Government: $175 million (equivalent)
Total: $345.33 million
15. Timetable
A PDF-B proposal will be submitted in September 1999 when the project has entered the GEF pipeline.
Project preparation is expected to be completed in June 2000. The project will be submitted to the GEF
Council in November 2000, and will be submitted to the Board of Directors of the Asian Development
Bank in the first quarter of 2001.
Contact person: Ian Fox
Senior Project Specialist, AEFN
Asian Development Bank
Tel. No. : (63-2) 632-6768
Fax No. : (63-2) 636-2402
E:Mail : ifox@mail.asiandevbank.org
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