CONCEPT PAPER
Biodiversity Conservation in the
Paramo and Montane Forest Ecosystems of the Colombian Massif
Project Development Status Summary:
1.
Colombia is well advanced in the preparation of a project for conserving globally
outstanding biodiversity in the high mountain regions of the Colombian Massif. The project is
being developed with PDF A resources (US$ 25,000) approved by the GEFSec in August 19,
1998 and US$ 100,000 government co-financing allocated specifically for project preparation.
The following Concept Paper highlights compliance of this initiative with GEF eligibility and is
structured according to the recently proposed review criteria for GEF pipeline entry.
Country ownership: (Eligibility; Country-driveness; Endorsement)
2.
Colombia ratified the Convention of Biological Diversity on August 30th, 1994 in Law
165/1994 and is eligible for GEF funding. At the national level, the Colombian Massif has been
given high priority for its strategic position at the confluence of three major bio-geographical
regions (Andean, Amazon and the Pacific) and its ensuing assets both in terms of biodiversity and in
water and climate regulation. The Massif constitutes the major catchment area of Colombia’s four
principal rivers (Cauca, Patia, Caqueta and Magdalena) which supply 70% of Colombians with
water. In 1960, the Colombian Government (GoC) declared the Cueva de los Guacharos in the
Massif the country’s first National Park. Subsequently other national, municipal and private
protected areas have been created and currently 10.4% of the Massif is under some form of
protection.
3.
The 1994-98 National Development Plan declared the Massif a priority strategic ecosystem.
This priority status was further confirmed in the subsequent 1998-2000 National Development Plan
(NDP) which establishes the current national environmental policy and centers on water
conservation as its main axis. The Colombian Massif has received equal recognition at the global
and regional levels. In 1980 a large part of the region was declared an UNESCO Biosphere
Reserve (1980)1 and, more recently, the two main ecoregions characterising the Massif, the
Northern Andean Paramo and North Western Andean Montane Forest Ecoregions, were
classified as globally outstanding and the highest priority at the regional scale2.
4.
The GoC selected the Colombian Massif project as a top priority from thirty biodiversity
concept papers submitted to UNDP for GEF financing consideration (GEF Project Development
Workshop, November 1997). The PDF A was endorsed by the Government GEF Focal Point in
March 10, 1998 and reconfirmed by the subsequent GEF Focal Point appointed in mid 98 after a
change in government. The PDF A is also highlighted in the GoC’s National Strategy for
Conservation in the Andes (August 1999) developed by the Ministry of Environment within the
framework of the 1998-2000 National Development Plan.
1
This reserve, known as the Andean Belt, includes the National Parks Purace, Nevado del Huila and the Cueva de los Guacharos.
Dinerstein, E. et al, 1995 “A Conservation Assessment of the Terrestrial Ecoregions of Latin America and the Caribbean”.
WWF, World Bank.
2
Programme & Policy Conformity
5.
The proposed project will protect two globally outstanding ecosystems currently under
threat. The Northern Andean Paramo - found between 3,000 and 4,000 m.a.s.l - is a highly
vulnerable system characterised by local endemisms well adapted to the harsh climate and high
elevations. The Northwest Andean Montane forest - occurs between 2,000 and 3,000 m.a.s.l - and
is characterised by high beta diversity and regional and local endemisms. As such, this proposal
falls within OP #4 Mountain Ecosystems, but will have clear links to the OP# 3 Forests. In view
of the fragility and severe land degradation of mountain areas, it will also address the crosscutting
issue of land degradation.
6.
The project will establish a regional network of protected areas, improve buffer zone
management by enhancing sustainable land use in areas adjacent to parks, and integrate
biodiversity management principles into regional and local processes. It has been developed
through extensive local consultation and will be implemented with a high degree of participation
from a wide group of stakeholders (as detailed in paragraph 10 below). Additionally it will
directly address several issues raised in the CBD particularly those related to: Article 8 (a), (b)
(d), (i); Article 7 (a) ; Article 10 (d).
Project Design
7.
Problem Statement: The Colombian Massif supports an exceptional diversity of habitats
and species3 increasingly under threat. Despite the early and substantial action taken by the GoC
to ensure that 10% of the Massif falls under some protected area category, the different
management systems existing between the national parks, municipal, and private areas have
inadvertently weakened co-ordinated conservation practices in the region. Overlapping
jurisdiction in buffer zones4, absence of clear management plans, coupled with staff and
equipment shortages have further undermined the protected areas’ contribution towards
conserving biodiversity. Resource depletion from hunting and firewood collection is increasing
and many protected areas have growing numbers of colonists settling within their boundaries.
Habitat loss is also increasing in unprotected land as native forest is felled for cattle rearing or
brought under cultivation. Agricultural practices are unsustainable and inappropriate for the
fragile mountain soils, causing increasing land degradation, soil erosion, further biodiversity loss
and productivity failures. This has accentuated poverty conditions in the region with food
security problems causing increasing encroachment on remaining tracts of natural vegetation for
food and wood for energy.
8.
Baseline Scenario: The GoC - through its Alternative Development Plan (PLANTE) - has
taken action to alleviate poverty and determine a more sustainable development for the region.
Investments under PLANTE have, and will continue to focus on, education, health, rural
electrification, road and housing projects, land acquisition schemes and productive projects.
3
Over 10% of Colombian flora, 52 species of amphibians, 62 reptiles and 56 birds are found in the region and in the higher areas
between 2,000 to 3,100m endemic species, including the red breasted parrot Bolborhynchus ferrugineifrons, are common, as well
as many species with restricted distribution.
4 This is exacerbated by the fact that, while National Natural Parks fall under the direct mandate of the Ministry of the
Environment, areas around them fall under the jurisdiction of Regional Environmental Authorities, five of which have jurisdiction
in the Massif.
Substitution of illicit crops (cultivation of illicit crops, particularly poppies is beginning on
mountain slopes between 2,000 and 3,000 m) is also being planned under this programme but
there is a lack of known alternatives for the harsh mountain conditions present in this area.
Furthermore, caution needs to be observed so that substitution with traditional agricultural crops
does not lead to still further biodiversity losses.
9.
An Action Plan for the Environmental Land-zoning of the Colombian Massif is presently
being developed within an agreement signed between the five regional environmental agencies
that have jurisdiction in the area and IDEAM. However, this does not fully address deficiencies
in the protected areas system nor does it adequately incorporate biodiversity management
principles in the region’s sectoral development planning. Under this scenario, protected areas
will continue to play a sub-optimal role in conserving the rich biological and cultural heritage of
this region, encroachment will increase and habitat loss due to inappropriate land-use will
continue to expand. Irreversible loss will be incurred to globally outstanding biodiversity.
10.
GEF Alternative: Under the proposed alternative a sub-regional network of national,
regional, municipal, private and indigenous protected areas will be established, with clearly
defined and compatible management categories and strategies, to conserve the paramo and
montane ecosystems of the Colombian Massif. Whilst focusing on the Massif as a regional
planning unit, the proposed project will center on areas between 2,000 and 4,000 m.a.s.l. and
particularly on the Biosphere Andean Belt Reserve and its extention. This will provide the
required linkages to the South with the National Natural Park Nevado del Huila and to the North
with the National Natural Park Galeras (the Andean Belt Reserve includes the National
Parks Purace, Nevado del Huila, Las Hermosas and the Cueva de los Guacharos). The
project will strengthen existing protected areas within this sub-region and set up new ones in
strategic locations to form corridors that enhance gene flow and thus long-term viability of
remaining habitat blocks. Participatory management plans will be developed for existing and
potential areas and the capacities of local stakeholders strengthened for their implementation.
Actions at this level will also include improvement of basic protected area infrastructure,
demarcation, enhancing control and regulatory frameworks and strengthening information
systems with the necessary data for ecosystems monitoring and the planning of effective
conservation mechanisms.
11.
The project will also work closely with local and indigenous communities in buffer zones
to develop alternative forms of livelihood and agricultural practices more apt for the fragile soils
of the mountain areas thus reducing encroachment of protected areas. A biodiversity overlay will
be developed for the regional land-zoning plan currently under formulation by the GoC to ensure
long-term compatibly with the sub-regional network of protected areas in Paramo and Montane
ecosystems. This overlay will be complemented with a capacity-building programme aimed at
regional and local governments and private institutions to incorporate biodiversity management
principles in the sectoral development processes of the region.
Global Benefits and Incrementality:
12.
By implementing measures to conserve outstanding, endangered biodiversity the proposed
project will provide direct global benefits. Over half of the world’s Northern Andean Paramo is
found in Colombia and 22.2% of this is in the Massif with thirteen separate Paramo areas,
covering a total of 256,658 hectares. The second major ecoregion, the NorthWest Andean
montane forest, occurs between 2,000 and 3,000 m.a.s.l in the Massif and covers an area of
1,371,613 hectares. Whilst the percentage of this ecoregion is lower (5% of the national total) it is
considered to be the most threatened ecosystem in Colombia, and is characterized by high beta
diversity and regional and local endemisms.
13.
These ecoregions with a variety of life-zones5 across the wide altitudinal range of the
Massif (2.000-4.380 m.a.s.l) support an exceptional diversity of habitats and species. Over 10%
of Colombian flora are found in the Massif and a transect between 530 and 4,380 m.a.s.l on the
eastern slopes of the region has been estimated at supporting 1,200 higher plant and fern species
from 164 families and 414 genera. In terms of fauna 52 species of amphibians, 62 reptiles and 56
birds have been registered and in the higher areas between 2,000 to 3,100m endemic species,
including the red breasted parrot Bolborhynchus ferrugineifrons, are common, as well as many
species with restricted distribution. In addition to this, the Massif is well known for its cultural
heritage with seven indigenous groups in the region - the Paeces, Yanaconas, Guambianos,
Coconucos, Totoroes, Inga and Kamentza.
14.
Project activities will be entirely complementary to baseline programming which already
seek to promote the sustainable development of the Colombian Massif. The project’s
complementary activities have been designed to ensure that Protected Areas offer comprehensive
protection to globally significant biodiversity and are adequately linked to avoid more
fragmentation of endangered habitats. Baseline activities to substitute illicit crops will be
complemented by developing culturally acceptable and ecologically appropriate land-uses that
can be adopted under the PLANTE programme and replicated through the region. Whilst
concentrating specifically on actions required to raise protection to a level that provides global
benefits, the project will indirectly produce some long-term domestic benefits by favorably
affecting the quality and quantity of the river flow emanating from this region.
Stakeholder Involvement
15.
At the national level, the Ministry of the Environment has led project development,
through its National Parks Service (UAESPNN) charged with the co-ordination and
establishment of the national system of protected areas-SINAP.6 Within the UAESPNN the
Southern Andean Regional Unit is responsible for consultations at the regional and local levels
during project development and will be largely responsible for implementation in co-ordination
with key regional stakeholders. The five Regional Environment Authorities7 with jurisdiction in
the Massif are major stakeholders as well as the municipal level representatives from local
government planning departments and environmental units charged with the administration of
municipal protected areas. A wide range of civil society will also form part of the project
including members from the seven indigenous groups in the Massif, (the Paeces, Yanaconas,
Guambianos, Coconucos, Totoroes, Inga and Kamentza), park and buffer zone inhabitants,
5
A finer classification identifies eight different systems in the Massif: Above the snow line (4.342 hectares); Paramo
(256.658 Hectares); High Andean Forest (1’351.126 Hectares). Low Andean Forest 20.483 Hectares; Andean agroecosystems (1,525.123 hectares); Inter-Andean agro-ecosystems 17.190 hectares; Semi- arid, xerofitic scrub 92,432
hectares and human settlements 856 hectares.
6
Decree 1124 of 1999: Article 24 items 1and 2; Article 27 item 1; Article 28 item s 1 and 4
High Magdalena Regional Corporation -CAM- covering the department of Huila; CRC- covering the department of Cauca;
CORTOLIMA covering the department of Tolima; CORPONARINO -covering the department of Narino; and to a smaller extent the
Corporation for the Development of the South of Amazonia CORPOAMAZONIA-covering Caqueta, Amazonas, Putumayo;
7
environmentally–related non-governmental organisations and private sectors representatives.
Technical backstopping to this locally driven project will be provided through the nationally
based institutes Von Humboldt (charged with developing national biodiversity strategies) and
IDEAM. All these stakeholders are being consulted during project preparation and will take
active parts in implementation.
Financing:
16.
Contributors to the full-scale project will include the World Food Programme to develop
sustainable agricultural practices in the buffer zones of the Las Hermosas, Nevado de Huila,
Purace and Cueva de los Guachos National Parks through the “Eco-andean Sustainable
Development” programme; the UNCDP and national funds including the Plan Verde and the
Fondo de Regalias which allocates specific resources to the Massif in recognition of its strategic
importance. Total project costs are expected to be in the range of US$ 8 million of which GEF
would contribute an estimated US$ 5 million with 3 million leveraged as co-financing. Baseline
financing will primarily come from the GoC, including relevant allotments from the five
Regional Environmental Authorities mentioned above.
Institutional and IA Coordination and links with other GEF projects:
17.
The proposed project is part of a well-structured and co-ordinated National Strategy for
the Conservation of the Andes that includes four complementary projects under preparation for
GEF financing consideration. These projects include an umbrella project which focuses on
issues best addressed from a national level perspective, and three sub-regional site specific
projects focusing on different globally outstanding ecosystems.
18.
The three sub-regional projects are: Protection of the Colombian Massif (UNDP)
located in a strategic location at the division of the Andean Cordillera into three different ranges
largely responsible for the country’s mega-diversity; and two unique Andean outcrops the Sierra
Nevada de Santa Marta (WB), recently approved at the Dec 99 council) and La Serrania de
Macarena currently under formulation through UNDP/GEF PDF B resources. The umbrella
project Biodiversity Conservation in the Andes is being developed by the WB with PDF B
preparatory funds.
19.
In compliance with GEF procedures, the request for PDF A resources to develop this
current proposal for conservation in the Colombian Massif, was circulated to the GEF Secretariat
and IA agencies prior to its approval by UNDP in August 98. The PDF A was found “eligible,
well prepared and containing substantive and useful information” with the GEFSec endorsing its
approval (please refer to GEFSec fax dated 19 August 98 to Rafael Asenjo from Mario Ramos
reg: PDF A: Colombia: Biodiversity conservation in the Paramo and Montane Forests
Ecosystems of the Colombian Massif).
20.
In addition to this, extensive consultations between project teams and IAs within country
and in HQ have been undertaken to ensure geographic and thematic complementarity between
these initiatives. Indeed the Block B PDF for the umbrella project was approved in October 1998
under the understanding that this would not intervene in the Massif areas targeted by the PDFA
already under execution at that time.
21.
The WB Andean umbrella project, in addition to developing national based components
such as stakeholder networks, targeted research, institutional strengthening and developing
conservation incentives and user-payer schemes for environmental services, will also include a
component that focuses on establishing regional conservation systems. As such, joint working
sessions were held in January, March, July and October of 1999 with IAs and project teams to
ensure that there was no overlap would occur between these regional systems and the three subregional projects/site-specific projects mentioned above. Equal attention was paid to including
target ecosystems with distinct global biodiversity value.
22.
As a result, the WB project will concentrate on five macro regions as follows: The high
plains of Cundinamarca and Boyaca; the northeastern region of oak forest and paramos of Cucuy
and la Rusia that have distinct biodiversity than Massif paramos; the national natural park of the
Nevados and the Florencia forest; the Patia valley and the biological corridor of the national
natural park Farallones-Munchique and the upper Putumayo and Caqueta zones focusing on the
transition between tropical rainforest to the Montane forest of the Andean region.
23.
These consultations and joint efforts have ensured the maximum of synergy between the
UNDP and WB GEF financed initiatives. The three sub-regional projects have been developed
locally with sites for new protected areas negotiated with local communities during project
preparation. Equally, the WB umbrella project, by including components related to macro policy
frameworks, will provide useful information for the three projects focusing on specific subregions.
24.
Finally, this programme approach for the Andes has been considered the more viable and
cost effective by the GoC, UNDP and the WB for the following reasons: i) the three sub-regional/
site-specific projects rest heavily on community participation in conservation; ii) have been
prepared through long locally-driven processes; and iii) will be implemented in three very distinct
areas of the country, each with widely different ethnic groups and socio-economic conditions.
The Sierra Nevada has long been recognized as having unique cultural dynamics centering on the
Cogi indians; The Massif is still more culturally diverse with seven well-defined and strong
ethnic groups (see paragraph 10) and the Macarena, whilst less diverse in ethnic terms, requires a
specific approach to determine valid and sustainable conservation action with high local input
and linkages with the peace talks that are advancing in this region. Such participation would not
be cost-effective in one centrally based project functioning through institutions that do not have
the local representation required for these locally driven processes.