PROJECT DEVELOPMENT FACILITY
REQUEST FOR PDF-B APPROVAL
AGENCY’S PROJECT ID: 2902
GEFSEC PROJECT ID: 2435
COUNTRY: China
PROJECT TITLE: China Biodiversity Partnership
Framework [CBPF]
GEF AGENCY: UNDP
OTHER EXECUTING AGENCY(IES):
DURATION: 18 months
GEF FOCAL AREA: Biodiversity
GEF OPERATIONAL PROGRAMME: 1, 2, 3, 4
GEF STRATEGIC PRIORITY: BD-1, BD-2
ESTIMATED STARTING DATE: June 2005
ESTIMATED WP ENTRY DATE: FY07
PIPELINE ENTRY DATE: 24 March 2004
FINANCING PLAN (US$)
GEF ALLOCATION
Project (estimated)
Project Co-financing
(estimated)
$10m
$20m
PDF A*
PDF B**
350,000
PDF C
Sub-Total GEF PDF
350,000
PDF CO-FINANCING (details provided
in Part II, Section E – Budget)
GEF Agency
40,000
National Contribution
130,000
Others
330,000
Sub-Total PDF
500,000
Co-financing:
Total PDF Project
850,000
Financing:
* Indicate approval date of PDFA
** If supplemental, indicate amount and date
of originally approved PDF
RECORD OF ENDORSEMENT ON BEHALF OF THE GOVERNMENT:
Mr. Wang Bing
Date: 10 December 2004
Division Chief
Division IV
International Cooperation Department
Ministry of Finance
People’s Republic of China
This proposal has been prepared in accordance with GEF policies and procedures and meets
the standards of the GEF Project Review Criteria for approval.
Yannick Glemarec
Deputy Executive Coordinator
Officer-in-Charge
Date: 23 June 2005)
Joseph D’Cruz
Regional Technical Advisor, UNDP/GEF
Project Contact Person
Tel: +66 (2)288 2726
email: joseph.dcruz@undp.org
1
List of Acronyms and Abbreviations
ACG
BAP
BP
CAS
CBDSC
CCICED
CI
CBPF
EFCA
EU
EWG
IUCN
LCP
LUP
MLR
MoA
MoF
MoFCOM
NDRC
NNFP
PDF
PRC
SATCM
SEPA
SFA
SICP
SLP
SOA
TNC
UNCBD
UNF
Advisory and Consultative Group
China National Biodiversity Action Plan
British Petroleum
Chinese Academy of Sciences (CAS)
Steering Committee for the implementation of the CBD (CBDSC)
China Council for International Cooperation on Environment and Development
Conservation International
The China Biodiversity Partnership Framework
Ecological Functioning Conservation Areas
The European Union
Expert Working Group
The World Conservation Union
Land Consolidation and Rehabilitation Programme
Land Use Planning
Ministry of Land and Resources
Ministry of Agriculture
Ministry of Finance
Ministry of Commerce
National Development and Reform Commission
National Natural Forest Protection (NNFP)
Project Development Facility
People’s Republic of China
State Administration of Traditional Chinese Medicine
State Environmental Protection Administration (SEPA)
State Forestry Administration (SFA)
Sino-Italian Cooperation Programme
Sloping Lands Re-conversion Programme (SLP)
The State Oceanographic Administration (SOA)
The Nature Conservancy
UN Convention on Biodiversity Conservation (CBD)
The UN Foundation
2
PART I -
PROJECT CONCEPT
Country Drivenness (Project linkage to national priorities, action plans and programmes):
1. Over the past two decades, China’s development policy has focused on securing rapid economic
growth and social stability. China has been successful to an unprecedented degree in the
implementation of this policy, as witnessed by unequalled continuous GDP growth, wide-scale
alleviation of poverty, and the overall improvements in livelihoods, security and social and
physical infrastructure. Throughout this period, China has increasingly paid attention to
environmental protection, albeit from a very low baseline. Notably, environmental awareness and
commitment grew in the early 1990’s, as a result of the process surrounding the Rio Conference.
This led specifically to the development and adoption of China’s Agenda 21 by the State Council.
Mostly, environmental efforts have focused on reducing industrial and urban pollution through
large-scale clean-up and targeted enforcement schemes. Despite these positive trends, the overall
impact on the environment of the last two decades of economic development has been largely
negative.
2. The Ninth Five Year Plan for National Economic and Social Development (approved in 1996)
marked a turning point in China’s approach to environmental issues and gave sustainable
development and environmental protection a higher priority. Following that, in 1998, great floods
affected many parts of the country. Ecological deterioration was largely held to blame for these
costly floods. Since then, environmental protection has been placed increasingly higher on the
national development agenda, and notably more consideration has been given to ecological issues
and biodiversity conservation.
3. The Tenth-Five-Year Plan (approved by the ninth National People’s Congress in 2001) states that
ecological improvement and environmental protection should be taken as an important part in
economic development and in improving the living standards of the Chinese people. This Plan
requires that ecological rehabilitation should be enhanced, ecological deterioration be restrained,
environmental protection and treatment be strengthened and urban and rural environmental
quality be improved. This Plan states that comprehensive eco-environmental rehabilitation and
treatment programmes are to be carried out in key regions. These notably include the natural
forests protection programmes in the upper reaches of the Yangtze River, upper and middle
reaches of the Yellow River and Inner Mongolia in the Northeast; and the programme to convert
farmland to forests and grasslands. The Plan also sets out measures to enhance the management
of nature reserves. Endangered and rare plant and animal resources and wetland resources are to
be protected. Programmes to protect wild animals and rehabilitate their habitats are to be
implemented, in order to both recover ecological functions and to conserve biodiversity. Through
this Tenth Five Year Plan, national and local governments are set to invest tens of billions of
dollars in schemes to restore and protect the environment, with some of this funding directly
targeting biodiversity protection and conservation.
4. At the 16th Congress of the Chinese Communist Party (November 2002), the highest political
organs of the country firmly established the goal of making China an ‘all-round well-off society’
(also known as ‘Xiao Kang’) by 2020. This further demonstrates that at the highest levels, the
previous economic paradigm of ‘grow-first, clean-up later’ has been replaced by one which
places environmental protection - and to a lesser extent biodiversity considerations - at the centre
of development. The 16th Congress also installed the new administration, and commitments were
made to deepening and strengthening reforms of the vertical and horizontal governance
3
structures. The need to reform these structures is inextricably tied to the objective of managing
natural resources in a sustainable and equitable manner.
5. Collectively, the above-mentioned measures and initiatives illustrate that at least at the highest
policy levels, a new level of awareness has developed for biodiversity conservation. Moreover,
the above initiatives represent opportunities for more effectively achieving biodiversity
conservation.
6. With specific regards to biodiversity conservation, China was one of the first countries to ratify
the UN Convention on Biodiversity Conservation (CBD) in 1993, and has been progressively
increasing its conservation efforts since. These efforts initially focused on the strict protection of
biodiversity-rich areas, and now almost 15% of the land area is classified as protected areas
(1,999 nature reserves). Recently, the protection efforts have been complemented by measures
aiming at sustainable utilization, by the use of market-oriented mechanisms and by more
participatory methods. After ratifying the Convention, China quickly prepared and approved its
national Biodiversity Action Plan (BAP) in 1994. The BAP has since provided guidance to
international and national conservation efforts - the number of international governmental and
non-governmental stakeholders has grown progressively over the past decade.
7. After ten years of implementing the CBD and the BAP, Chinese agencies at national and local
levels (including non-governmental agencies) have acquired a wealth of experience in the field of
biodiversity conservation, on which to base future policies and initiatives.
8. China has initiated a series of economic, political and social reforms over the past two decades. In
each case, the approach has been to first ground-test the new approaches in a small locality; then
evaluate and make adjustments; and then replicate and disseminate widely through central
government agencies. This ‘demonstration-first’ approach has been considered very successful
internationally, and through it China has avoided many errors and major shocks.
9. The three principal national agencies involved in this proposal, the Ministry of Finance, the State
Environmental Protection Agency and the National Development and Reform Commission have
all expressed their strong commitment to the objectives and approach (see meeting minutes in
Annex 6)
Context
Biodiversity in China – Global Significance
10. By any definition, China is one of the most biodiverse countries in the world. China’s land covers
over 9.6 million km2 and it has over 3 million km2 of seawater under its jurisdiction. It stretches
over 5,500 km from north to south, covering 50 degrees of latitude and 5 climatic zones1. It
crosses two bio-geographic realms (the Palaearctic and the Oriental) and has several large
mountain ranges. Climatic and geological diversity have led to a great diversity of ecosystems
and species. Moreover, as many parts of China were protected from previous glaciations, many
important species survived the last glaciation in China. Accordingly, China is a centre of origin
for many important commercial species, and China is also the only home of many pre-tertiary
relic species, for example the Giant Panda and the Cathay Silver Fir.
1
Namely: cold-temperate, temperate, warm-temperate, sub-tropical and tropical.
4
11. In this document, it is only possible to provide a very general introduction and some illustrative
facts of China’s biodiversity. Annex 1 provides more detailed information.
12. China contains a broad diversity of ecosystems including forest, desert, grassland, freshwater
rivers and wetland, coastal/marine and agricultural2 ecosystems. Within each of these broad
categories there is a vast diversity of specific ecosystems in China. For example, desert
ecosystems cover 20% of the country, and include 4 sub-types according to growth forms and
dominant plant species. These include some of the most northerly deserts on earth. Grassland
ecosystems include meadows, savannah and steppe, with, for example, 77 different formations of
meadows already identified.
13. At the species level, China accounts for approximately 10% of known species in the world. For
example, recent data suggests that China hosts 2,200 species of algae (13.3% of world total),
1,329 species of bird (14.7% of world total) and 2,804 species of fish (12.1% of global total). The
number of endangered and endemic species mirrors the high species diversity. Information is very
incomplete, which is illustrated by the fact that during the period 1980-1986 approximately 500
species of insects and angiosperms were identified annually.
14. Genetic diversity is best considered in terms of species directly important to man – that is wild
relatives of commercial species and on-farm diversity. For wild relatives, China is considered one
of eight centres of origins for crops in the world. Approximately 1200 species of crops are
cultivated worldwide, and it is estimated that more than 290 of them originated in China, where
their wild relatives are still found. On-farm diversity is also very high, with an estimated 500,000
varieties of the 600 domestic plant species, and 590 varieties of domesticated animals and
poultry.
15. Each region of China has significant biodiversity. Whereas the southwest and southern regions
may be richest in terms of number of species, all other regions have unique and diverse
ecosystems, all have unique and endangered species, and all have commercially important species
and genetic diversity.
Benefits of Biodiversity to People, Society and the Economy in China
16. Chinese society benefits from its biodiversity in many direct and indirect ways. However, it is
very challenging to measure biodiversity’s contribution to society, and even more difficult to
monetize it. Different methodologies are used to measure the contribution, and each methodology
faces problems of incomplete information, and challenges of how to suitably account for
biodiversity’s long-term value.
17. The most complete monetary estimate of China’s biodiversity value was prepared by the
Biodiversity Working Group of the China Council for International Cooperation on Environment
and Development (CCICED) in 1995. The findings are summarized in Table 1.
2
An agricultural ecosystem is hereby defined as an area where most of the land is devoted to agricultural activities,
although it may include small islands of natural forests, wetlands etc. In many cases, an agricultural ecosystem will
have been created through anthropogenic modifications over many centuries, even millennia.
5
18. Despite the uncertainties, the figures in Table 1 illustrate that biodiversity clearly makes a very
important contribution to socio-economic development in China.
19. The figures in Table 1 only give an indication of the overall value of biodiversity. At present,
there is little information on:
 The distribution of these benefits across regions, sectors and across the decades;
 The costs of the ongoing degradation of biodiversity, and the distribution of these costs;
 The benefits of potential measures to conserve biodiversity, and the distribution of these
benefits.
These difficulties have made it even more challenging for policy and economic development to
appropriately account for the value of biodiversity.
Table 1: Estimated annual economic benefits of biodiversity in China
Product/Service
Carbon sequestration (forests)
Soil and water conservation
Recreation/tourism
Contribution to agriculture
Direct food harvest
Firewood
Medicinal plants
Construction wood
Rattan/bamboo
Wildlife heritage
Fisheries
Contribution to animal husbandry
Carbon sequestration (rangelands)
Environmental cleaning
TOTAL
Estimated $billions
/year3
140-200
20-48
20-30
6-8
5-7
5-12
5-20
8-15
4-6
4-7
15-20
4-6
7-17
14-25
257-421
Estimated $billions
/year4
616
6910
710
535
11
30
78
269
1638
400
Status of Biodiversity and the Immediate Causes of Biodiversity Loss
20. As explained in the previous section, China’s biodiversity is vast and complex, and also varies
across China’s vast territory. Likewise, the status or condition of the biodiversity, and
biodiversity trends, also vary greatly. The trends vary from county to county, province to
province, and also over time. For example, over a short period, trends may be reversed in one
county, yet they may consolidate in a neighbouring county or province. Whereas the trends may
be generally positive in one part of the country, the general picture may be very negative in
another part of the country. Likewise, the exact nature of the underlying causes of biodiversity
loss is very site-specific, and can change over time. The actors involved and the incentive
structures vary from county to county, and evolve over the years. Bearing in mind this diversity,
the following paragraphs provide general information and illustrative examples on biodiversity
trends.
3
The figures were cited from a CCICED report published in 1995.
The figures in this column were quoted from the book of China Biodiversity: A Country Study, which was
published in 1998 by the government.
4
6
21. China’s forest coverage increased from an historical low of 85 million hectares in 1949 to over
160 million hectares in 2002, and they now cover 17% of the land. Most of the forests are located
in the Northeast and Southwest of China, with other smaller forests scattered around the country,
primarily in the south-central areas. Despite these historically unprecedented increases in forest
coverage, most studies indicate that the quality of the forests has continued to decline, in terms of
biodiversity and in terms of age and biomass. The reason for this is that most of the new forest
results from reforestation schemes leading to thinly covered, mono-species plantations. This
declining forest quality continues today, albeit more slowly, in most parts of China. In the
Northeast, the main actors in this deterioration are the state-owned companies, over 80 of which
employ over one million people. These companies continue to engage in large-scale legal logging
above sustainable rates in the higher quality forests. In the Southwest, logging is widely banned,
and most degradation is due to unsustainable harvesting by households on family and
community-owned land for locally used timber and fuel. Illegal cutting by locally owned
enterprises is still an issue in some localities in the Southwest.
22. The wetlands in China are distributed across the country. In each area, they have been degraded
in terms of quality and quantity. In the Northeast, over 90% of the vast wetland plains have been
drained and converted to farming. These large-scale drainage schemes, funded by national and
local governments, lead to short-terms gains for both state-owned farms and small-scale farmers.
These drainage schemes are continuing, albeit at a much smaller rate than in previous years. In
the Northwest and Southwest, local climate change is a factor in damaging wetlands. This
continues to be exacerbated by small-scale drainage schemes (often by individual herdsman and
farmers) and by the large number of dams built or under construction5. Local governments and
the Ministry of Water Resources are sponsoring much of the dam construction. In addition to
drainage, over-fishing is causing widespread problems in many wetlands. This is usually by
individuals, but in some cases is by enterprises owned by the county government. Finally,
pollution is a major cause of wetlands degradation near to cities. This is particularly the case in
the middle and lower reaches of the Yangste, and in all wetlands in the more industrialised
eastern provinces.
23. Steppe grasslands have been degraded largely as a result of national government policy during
the period 1950-1990. These policies pushed unsustainable exploitation, causing grasslands to be
converted to unsuitable cropland, and led to the over-stocking and over-grazing of the remaining
grasslands. During that period, local governments made great efforts to meet or surpass
unrealistic national targets, and local herdsman and enterprises saw the opportunity to make
profits. Despite many changes in national policy, these factors continue to play an important role
at many localities, and the population of important indicator species is declining and disappearing
from some parts. Pests (hoppers and mice) and invasive species also play a role in declining
grasslands. Unique grassland ecosystems are largely found in the North and Northwest of the
country.
24. China’s unique desert ecosystems are also being degraded. The deserts lie mostly in the
Northwest. Although the total desert area is increasing due to desertification, the quality and
diversity of deserts is declining. Deserts ecosystems are being damaged due to:
 the physical damage caused by large-scale, government-run mining;
 the physical and chemical damage caused by small scale illegal mining for precious metals;
5
It is estimated that there are as many as 80,000 small, medium and large-scale dams in China.
7


local people collecting wood for fuel and keeping livestock that overgraze the shrubs, and;
the small-scale conversion of oasis land to agriculture (by local governments, in line with
local poverty alleviation campaigns).
Illegal hunting, often by outsiders, is contributing to the loss of some desert species.
25. Unlike most of the important ecosystems listed above, China’s coastal and marine diversity is
mostly found in the wealthier parts of China, near to and along the eastern coast. Past economic
development has greatly damaged these ecosystems, and many individual species are now locally
extinct or threatened. The remaining biodiversity faces a series of threats originating from a range
of socio-economic actors, of which the most important are:
 large upstream dams sponsored by central and provincial government;
 large-numbers of small-scale legal conversions of marsh and mangroves to farms, to cotton
or to aquaculture by local people, by local enterprises or by township governments;
 over-collection of key species by local people;
 pollution from cities, from transport and from the oil industry;
 construction of harbors by provincial governments.
26. Finally, the unique agricultural ecosystems developed over the past millennia have greatly
declined in quality over the past few decades, and this trend is continuing, although more slowly.
One factor is the many township enterprises, established in the 1960’s and 70’s, that are polluting
traditional agricultural land. Also, traditional farmland is being converted to urban infrastructure
(near the Eastern cities) or to tourist facilities (in the Southwest). Even when farms remain,
farmers are choosing to cultivate a smaller number of crops and varieties. For example, generally
more than 10 crops and sometime up to 50 could be collected from even one farmer’s land during
1980s. In addition to several staple crops (such as rice, wheat and maize), a wide range of
indigenous crops including many kinds of legumes, oil crops, fruit trees, vegetables, cotton and
other textile plants were cultivated. However, since the 1990s, many crops were refused by
farmers because of the economic situation. At present, especially in Eastern and Southeast China,
most farmers have only one main crop and possibly some vegetables. Moreover, because
government agencies strongly support the process of modernization, most varieties are no longer
found on farms. For instance, 384 of 400 varieties of peanut used in Shandong province in 1950
are no longer used by farmers. Overall, the number of varieties and the wealth of indigenous
systems and practices continues to decline.
The Underlying Drivers of Biodiversity Loss
27. Behind the diversity of actors and local incentive structures affecting biodiversity across China
lies a complex fabric of inter-related social and economic trends and forces. These trends and
forces, or drivers, are shaping people and society. They have many common characteristics across
China. These drivers are briefly introduced below and discussed in more detail in Annex 2.
28. Demography and demographic developments are an important driver, having a vast impact on the
natural resource base. The population is large and the natural resources per capita are small.
Moreover, the population is young, which can also lead to greater pressure on some natural
resources. Finally, although many rural people are moving to urban areas (and leading to a greater
demand for agricultural and rural products), the population in the countryside continues to grow.
8
29. Poverty is also an important driver of natural resource use, leading to a short-term mentality for
decision-making. Also, the incidence of poverty places a great pressure on national and local
governments to rapidly alleviate poverty, which in the short-term can often be most easily done
through rapid infrastructure and development projects, often having a negative impact on the
environment and biodiversity.
30. Another important social driver is the rising level of environmental awareness, particular in the
large towns and cities, which leads to pressure to conserve biodiversity. However, the growing
middle class, and increased social awareness, leads to rises in overall consumption and changing
consumption patterns, both of which are major drivers of society in China, and both of which are
likely to have indirect negative impacts on the natural resource base and the biodiversity.
31. Economic development is obviously a major driver. Firstly, the overall growth has inevitably led
to increased demand for resources. Secondly, local policies of placing growth before all other
objectives has meant that resources are often exploited unsustainably, and that little attention has
been placed on avoiding pollution. Thirdly, development in promoted economic sectors drives
changes of the natural resource base, with the biggest interactions involving the agricultural,
forestry, water, land resources, energy, trade and tourism sectors. Economic and sectoral
development policy is perhaps the biggest single factor driving society to have a negative impact
on the natural resource base.
32. Technological changes also affect the way people and society utilise natural resources, and
provide opportunities for more sustainable utilisation. This includes both soft and hard
technologies. These technologies may allow China to avoid the growth and degradation pattern
followed by many industrialised countries, allowing a sustainable exploitation if wisely used.
However, the Chinese government still emphasises physical infrastructure as the solution to
economic, social and environmental problems, whereas this may not always be the optimal route,
and often leads to unanticipated, unintended impacts on biodiversity.
33. Finally, an important driver of the economy and society in China is the governance framework
and the ongoing reform of the economic, cultural and administrative structures. Over the
long-term, as the Chinese society continues its fundamental evolution, this may turn out to be the
most important driver of environmental change in China. At present, of particular note, are the
initiatives to improve the functioning across the different levels and sectors of government and
society. Firstly, more and more powers are being decentralised to local governments. Local
governments are to act consistently with national directions, but enjoy a lot of freedom to take
decision, and often it may take many years before local governments are able to respond to
changes in the national direction. Also, this increasing power being invested in local
decision-makers is not always accompanied by an equal uptake of responsibility by these
decision-makers. Secondly, increased attention is being given to ensuring coordination across
government sectors. Thirdly, at all levels, moves to a more participatory planning and
management of resources are underway, which partly means the skills and responsibilities of
communities can be exploited. Finally, there is the slowly increasing role given to experts, NGOs,
and the private sector in the design, management and implementation of natural resource plans
and programmes.
9
Project Rationale and Objectives:
The National Response to Biodiversity Loss
34. The previous sections have shown how and why China’s globally unique biodiversity is under
threat. This section describes the present responses to that threat.
Nature Reserve System
35. At the highest level, China’s efforts to conserve biodiversity have been guided by China’s
Agenda 21 and the National Biodiversity Action Plan (both 1994). Initial attention focused: on
the establishment of a system of strictly protected areas (‘Nature Reserves’); on research, and; on
responding to specific directives of the CBD. Direct funding the construction and management of
nature reserves was relatively small at about 4 million USD from central government in 1994, but
increased rapidly in recent years to about 40 million USD in 2002. This does not include many
government-funded activities that indirectly impact biodiversity, such as ex-situ facilities and
ecological engineering like reforestation, grassland rehabilitation and wetland restoration. Surely,
as the country’s economy gets better and better, the funding will continue increasing at a rapid
rate
36. Over the years, the government has also moved to establish a comprehensive legislative
framework, including the Law on the Protection of Wild Animals (1989), the Environmental
Protection Law (1982, amended in 2000), the Forestry Law (1985, amended in 1998), the
Grassland Law (1985, 2002), the Marine Environmental Protection Law (1982, 2000), the Sand
Prevention and Control Law (2002), the Fishery Law (1986, 2000), the Water and Soil
Conservation Law (1991), and the Land Law (1986, 1999). The State Council has also issued
some complementary administrative regulations such as the Regulation on Nature Reserves6 and
the Regulation on Wild Plants Protection. Competent ministries related to environmental
protection and natural resource management under the State Council as well as the people’s
governments of provinces, municipalities and autonomous regions have promulgated
departmental rules and local administrative regulations, in line with the national laws.
37. The Government has moved to strengthen the institutional framework for biodiversity
conservation, within the framework of environmental protection. The State Environmental
Protection Administration (SEPA) takes the lead in coordinating biodiversity conservation,
developing regulations and guidelines, monitoring, and in interactions with the UNCBD. Several
inter-ministerial mechanisms and working groups have been established with specific mandates,
of which the most important is the Steering Committee for the implementation of the CBD
(CBDSC). This Committee, established by the State Council in 1993, is composed of 20 central
government agencies (Annex 3 provides a list of members of the CBDSC, and an introduction to
its present roles and responsibilities). SEPA provides the secretariat for the CBDSC.
38. Several other government agencies play key roles in managing natural resources, and, in line with
the relevant legislation, also have responsibility for conserving biodiversity on the land they
manage. The most important of these are the Ministry of Land and Resources (MLR), the State
Forestry Administration (SFA), the Ministry of Agriculture (MoA), the State Oceanographic
Administration (SOA), the Chinese Academy of Sciences (CAS) and the State Administration of
Traditional Chinese Medicine (SATCM).
6
Plans are underway to upgrade this regulation to a Law.
10
39. Despite the comprehensive legislative coverage and institutional framework, the system of nature
reserves has many structural weaknesses including:
 Not all important ecosystems are adequately represented;
 Local management capacity can be inadequate;
 The national management system is fragmented and uncoordinated;
 The financing system is fragmented and input-oriented, and finance is short;
 Data, monitoring and information bases are not appropriate for planning and
decision-making;
40. There have also been some initiatives by local (provincial, county and township) governments to
protect biodiversity, including enforcing national policy and legislation, passing of local
legislation in line with national legislation, establishment of nature reserves, etc. The depth and
success of these initiatives varies from locality to locality. In general, policy and laws are issued
at the national level, and implementation is the duty of local governments. In cases when national
policies are not clear or are conflicting, local governments can select priorities amongst the many
national objectives.
41. By the end of 2003, 1,999 nature reserves of different types and levels had been established in
China (not including nature reserves in Hong Kong and Macao Special Administration Region
and Taiwan province), covering a total area of 143.98 million ha and accounting for 14.37% of
the total national land area. 226 of these are national nature reserves, the remaining are
established at the provincial or county level. The national government generally provides initial
infrastructure for the national reserves, whereas local governments must provide the operating
costs, even for the national reserves. Ownership and management responsibility of the nature
reserves is distributed across a range of national agencies - including SFA, SEPA, MOA, MLR,
SOA.. The annual budget for nature reserves has grown rapidly in recent years, and is
approximately $350 million from central government for the period 2001 – 2006. A range of
ongoing efforts, many with support of international agencies, are strengthening the management
of individual nature reserves and the nature reserves system.
42. Most of the above initiatives adopt a protection approach to conserving biodiversity. The
approach is to designate a biodiversity rich area for conserving, and then attempt to implement a
ban of all production or exploitive economic activities in the area. Often, the agency responsible
for the protected area, such as the line ministries or the local government, is also responsible for
production activities and for economic development in areas adjoining the reserve.
43. In February 2004, at the COP-7 meeting under the Convention on Biological Diversity (CBD), as
a member of the Conference of the Parties, the Chinese Government adopted the Programme of
Work on Protected Areas (UNEP/CBD/COP/7/21; Decision VII/28). The overall objective of the
Programme of Work is to establish comprehensive, ecologically representative and effectively
managed national and regional systems of protected areas -- by 2010 for terrestrial systems and
2012 for marine systems. In addition, the Programme of Work includes over 50 specific
time-bound output targets.
Land management outside of nature reserves
44. In addition to the nature reserve system, the national government has initiated several large-scale
programmes related to nature and biodiversity conservation. The most important of these are
briefly described below.
11
45. The National Natural Forest Protection (NNFP) programme and the Sloping Lands Re-conversion
Programme (SLP) focus respectively on reducing erosion due to deforestation and the unsuitable
cultivation of sloping lands. The combined national budget is $40billion over 10 years7. The
NNFP provides subsidies to logging companies and local governments to stop logging, it retrains
loggers, and it supports reforestation and forest maintenance. For example, during 1998-2002,
315 million hectares of land was closed to logging under the NNFP. The main targets for the SLP
are the individual households and farmers. For example, farmers are paid to convert agricultural
land to forest (Grain-to-Green programme) and are given the right to use the trees. 3.8 million
hectares of land was converted during 1998-2002. The State Forest Administration (SFA) is
responsible for overseeing implementation of these two programmes.
46. The Land Consolidation and Rehabilitation Programme currently includes Land Consolidation
Programme and Land Reclamation and Rehabilitation Programme. The former restrains the
conversion from traditional agriculture land to industrial land, and commits to the improvement
of agricultural production condition, agriculture field quality, and its ecological environment. The
latter programme focuses on recovery of land productivity and environmental improvement
through land rehabilitation from land destruction caused by industrial production, natural
disasters etc. From January 2001 to July 2003, funding of USD 597 million was arranged through
different projects by central government with additional provincial financial input for the land
consolidation and rehabilitation. It is predicted that USD 40 billion will be invested by central
government for the programme by 2010. The Ministry of Land and Resources is responsible for
the implementation of the programme.
47. In 1998, the State Council issued the Environmental Ecological Construction Plan, and in 2000
the State Council issued the Guidelines on Ecological Environmental Protection. The Plan and the
Guidelines, coming from the highest levels of government, provide both technical guidance and
funding for ecological protection, including biodiversity conservation. In order to operationalise
the Guidelines, SEPA and SDPC introduced a new conservation tool: Ecological Functioning
Conservation Areas (EFCA). The plan is to establish 110 EFCAs, of which 10 will have national
status. The EFCAs are established in critical ecological zones, with the aim of stimulating
environmentally friendly investments, and combining nature conservation with development and
poverty alleviation. EFCAs are typically large, and there may be several nature reserves within
one EFCA, as well as land allocated to agriculture and forestry and other economic activities. The
EFCA would aim to give a coherent guidance to land-use across the area. The EFCA are an
attempt to encourage sustainable utilisation of biodiversity (as opposed to strict protection), as
well as to address the issue of conserving biodiversity that lies outside nature reserves.
48. National and local government agencies are also cooperating with international agencies in order
to strengthen biodiversity conservation at many critical sites around China. Most of these are
focussed on a nature reserve, and have secondary objectives related to disseminating lessons
learnt, feeding experience into policies and national practices. These multi-level projects aim to
demonstrate new practices and develop new biodiversity management technologies. Many also
include poverty alleviation components. This includes several projects financed by GEF through
UNDP and the World Bank.
49. Finally, there is growing but still small response to biodiversity challenges from the
non-governmental community, including local communities, local NGOs and volunteers, and
7
Approximately 50% of this is provided by national government, on the condition that the remaining is mobilized
by local governments or social sources of funds.
12
national NGOs. These agencies focus on awareness raising, education, monitoring and alerting
the government and media to problems.
Inadequacies of the Present Response - The Baseline
50. The sections “Country Drivenness”, “Context” and the preceding sub-sections of “Project
Rationale and Objectives” set out the current situation in China with regards to the conservation
and sustainable use of biodiversity. The situation can be characterised by decades of massive
pressure on biodiversity values as priority has been given to economic development. Some
recent attention paid to ecological issues and biodiversity conservation has reduced the rate of
decline, but has not yet reversed the situation. More specifically:





The last two decades of economic development has had a largely negative impact on the
environment and the conservation of biodiversity values
Increasing attention has been paid to environmental protection, albeit from a very low
baseline. The focus however has been reducing industrial and urban pollution through
large-scale clean-up and targeted enforcement schemes.
Past national government policies aimed at increasing economic production led to large-scale
ecological deterioration. Wetlands were drained for agriculture, logging was carried out at
unsustainable rates, grasslands were converted to cropland and the quality of desert
ecosystems and agricultural ecosystems declined as they were exploited.
Tragic events such as the 1998 floods have illustrated the economic costs of ecological
deterioration, raising the consideration given to ecological issues and biodiversity
conservation.
Even where policy shifts have been made (such as those that have led to an increase in forest
cover) the quality of ecosystems continue to decline and threats remain to biodiversity
values.
51. The reason there is still a general decline in ecosystem health and biodiversity values is that some
fundamental weaknesses and inadequacies remain in the present response. The most important
of these are summarised below:

Whereas at the highest level the commitment to biodiversity conservation by the Chinese
authorities is clear, there is often a disconnect between national policy and local
implementation. National policy directives cover many issues: social, economic and
environmental. Local governments may not be able to address all the issues simultaneously
and so they set priorities: they are quite often unable to address biodiversity concerns.
Notably, in general, the more local the level of government, the weaker the voice to conserve
biodiversity. Local governments are under pressure to provide income and livelihoods and to
meet important short-term production targets set from above, and there is little real incentive
for conserving biodiversity;

Responsibilities for biodiversity conservation are dispersed across many government
agencies, involving actors at all levels. It is therefore challenging to have a systematic,
coherent response. As a result, synergies are lost, mandates overlap and compete, and
efficiency is low. For example, there is little coordination between the NNFP and the EFCA
approach. It is also difficult to determine priorities and sequences without a coherent guiding
framework;

The present response focuses almost uniquely on ‘protecting’ biodiversity and can be
considered an ‘end-of-pipe’ solution to biodiversity loss. It focuses on the symptoms, not the
13
drivers. Biodiversity is affected by the large number of investment and planning decisions
taken at township, county and provincial level. These decisions are influenced by the drivers
discussed in the previous section;

Planning, which is the most effective tool guiding development of the country, is undertaken
by planners who are not fully aware or convinced of the need to promote major measures for
conserving biodiversity;

Some national ministries have mandate covering both production and protection, and
production tends to be given priority;

Whereas the challenges are complex, diverse and integrated, the response is often
sectoralised and fragmented;

Policy-makers believe there is a conflict between poverty alleviation and biodiversity
conservation;

Biodiversity conservation is largely founded on a ‘one-size-fits-all’ approach. As described
above, the threats and drivers of biodiversity loss are very site specific. Hence site-specific
solutions and measures have to be designed and implemented;

Projects supported by the international community can be fragmented, over-ambitious, and
can respond to international criteria rather than China’s needs.
52. China is diverse and there are many notable exceptions to each of the above. However, in general,
the problem to be addressed by the proposal can be stated as: globally significant biodiversity
values in China continue to be eroded by the combined underlying drivers of; demographic
forces, patterns of economic development, poverty and its equity related issues, consumption
patterns, and governance.
53. Finally, the present social, economic and political climate in China is evolving rapidly. These
changes in society may present unique, one-off opportunities that can be exploited for improving
biodiversity conservation in China8. It is difficult to fully exploit these unique opportunities
through the present biodiversity management structure and system.
A framework for the Conservation and Sustainable Use of Biodiversity – The Alternative
54. In order to redress the fundamental governance (policy, institutional, managerial and incentive)
weaknesses in the current approach to biodiversity conservation, and to exploit unique
opportunities, and to significantly lessen threats to biodiversity nationally, the Government of
China is proposing a new goal: to address the governance drivers of biodiversity loss. In this
case the term governance is used broadly to encompass; policy and planning, institutional
coordination and capacity, the “vertical” connect between national policy and local
implementation, incentives, management and technical expertise.
55. It is proposed that the best way to address these existing weaknesses in the baseline is to
coordinate the responses of all stakeholders (socio-economic planners, line agencies, investors,
8
Key social and policy initiatives in China which may provide a unique vehicle for improving biodiversity
conservation include: entry into WTO; the urbanization process; the hosting of the 2008 Olympics and associated
national pride and responsibility; the ‘all-round well-off’ (xiao kang) initiative.
14
national institutions, provincial and local government decision-makers, biodiversity managers,
communities, as well as donors and NGOs). To achieve the goal, the Government of China is
calling for a new and innovative partnership, with the capacity and ability to leverage changes in
the current systems and practices.
56. The partnership is to be built around a multi-level, multi-phase, multi-component, well-funded
framework of activities for conserving biodiversity, many of which are new and innovative in
China (The China Biodiversity Partnership Framework – the CBPF). The CBPF contains the
required short-term measures to conserve biodiversity and use it sustainably, and the required
longer term measures to modify the drivers of biodiversity loss. The CBPF will help the
government directly address the fundamental issues affecting biodiversity in China. The CBPF is
to become fully integrated into the national development process. The partnership members will
jointly take responsibility for implementing the CBPF activities – leading directly to the
conservation and sustainable use of much of China’s biodiversity. The partnership approach will
ensure that a holistic and integrated response can be given to the complex and diverse challenges
facing biodiversity in China.
The Objectives
57. Overall, the proposal will build momentum around the programmes of the many partners, leading
to a shift in the national approach to biodiversity conservation and sustainable use, to a fuller
integration of biodiversity into development at all levels, and providing a vehicle to address the
many weaknesses listed above. Specifically, the proposal shall:










Develop a critical mass of support and activities for successfully addressing the drivers of
biodiversity loss in China;
Provide a strong platform for interactions and communications between international
organisations and central government policy-makers and technical experts;
Provide a vehicle for developing, testing and up-scaling truly innovative approaches;
Provide a flexible and responsive mechanism, able to recognise and exploit opportunities;
Encourage coordination and synergies amongst Chinese partners;
Encourage a progressively large number of biodiversity stakeholders to act within a single,
coherent framework;
Improve communication amongst partners, initially between Chinese and international
partners;
Develop synergies amongst the initial partners;
Strengthen coordination, harmonisation and synergies across individual projects and
activities;
Coherently implement the activities in the CBPF – with individual activities designed to
address weaknesses in the present approach to biodiversity conservation.
Participation in the Partnership
58. Initially, the Chinese agencies represented in the CBDSC and some provincial governments will
participate in the partnership. The following international agencies will also be invited to
participate: GEF, UNDP, UNEP, World Bank, EU, SICP, IUCN, TNC, WWF, CI, BP and UNF.
There is already good collaboration with UNEP, EU, SICP, TNC, CI, WWF and UNF. All the
agencies have already expressed a strong interesting in wanting to participate in the CBPF and
discussions are ongoing with IUCN.
15
Management of the Partnership
59. A joint mechanism for strategic management of the framework will be established, including an
equal number of national and international members, under the chair of the Chinese Government.
Each committed international partner will be represented. This management mechanism will
focus on coordination and strategic guidance, and will not be involved in the management of
individual projects implemented by partners.
Development of the Partnership
60. Over-time, the Partnership will be allowed to expand to include provincial and local government
agencies in China, non-governmental organisations in China, and other international partners
supporting biodiversity. It is expected that Chinese sectoral government agencies will play a more
active role in the Partnership. The development is to be progressive, first involving a select
number of provinces and counties, and select sectoral government agencies. Once the Partnership
is fully operational in these pilot regions and sectors, it can then be allowed to grow to include all
concerned provinces and sectors.
Focussing the Activities of Partners: the China Biodiversity Programming Framework (CBPF)
61. The framework will focus its activities into a strategic set of four inter-connected themes: (1)
strengthening the overall enabling environment for biodiversity conservation; (2) mainstreaming
biodiversity conservation into socio-economic sectors and development; (3) protecting
biodiversity inside protected areas, and (4) protecting and sustainably utilising biodiversity lying
outside of protected areas. Hence, the activities cover the required short-term measures to
conserve biodiversity (Themes 3 and 4), and the required longer term measures to modify the
drivers of biodiversity loss (Theme 2). Theme 1 will provide the overall direction and
coordination, and further ensure that activities are to become fully integrated into the national
development process. Outcomes will be developed for each theme during the PDF-B phase,
clearly identifying measurable indicators of their impact.
62. Theme 1 Activities in this theme will develop national capacity to strategize, to plan, to
coordinate and communicate, to develop and enforce comprehensive and cross-cutting polices
and laws and to mobilise resources. For example, in this Theme, over the medium-term, the
government intends to revise and update the BAP and to improve coordination across agencies
and develop synergies. This Theme should also strengthen SEPA’s overall capacity to provide
rapid, flexible, site-specific support to biodiversity conservation across China. This theme will
also include activities aiming at strengthening the operational synergies between biodiversity
conservation and poverty alleviation. Potential outcome: strengthened national enabling
environment
63. Theme 2 No matter how many efforts are directed at biodiversity conservation, they will always
be small compared to investments directly targeting economic development in China. Influencing
these investments is therefore necessary if biodiversity conservation is to be sustainably achieved.
In this Theme, over the medium term, the aim is to influence policies, programmes, plans and
projects in the range of economic sectors driving biodiversity loss (principally agriculture and
forestry, but also water resources, land resources, energy, transport, tourism and construction).
This may include: implementing the new EIA law; strengthening SEPA’s influence over planning
and decision-making at all levels, modifying local incentive structures. Finally, this theme will
also aim to mainstream biodiversity conservation into poverty alleviation initiatives. Potential
16
outcome: biodiversity considerations mainstreamed into socio-economic planning, investments
and decision-making
64. Theme 3 Protecting biodiversity inside protected areas is dependent on the existing nature
reserve system, which is overseen by SEPA and is implemented by several national agencies. In
this Theme, over the medium-term, the government intends to review and revise the present
nature reserve system; to introduce new reserve classification systems; to broadly build reserve
management capacity; to strengthen and broaden financial support to the system and determine
ways to ensure financial sustainability; to strengthen information databases and monitoring; and
to ensure coordination and coherence across the protected areas. Potential outcome: strengthened
and simplified national protected area system, providing greater biodiversity representation,
management and monitoring
65. Theme 4 A large part of China’s biodiversity is found outside of nature reserves. Until present,
this has been largely neglected, and measures to specifically target this biodiversity are needed. In
this Theme, the main mechanism to be developed and implemented is the EFCAs. Local land-use
planning will also be used as a mechanism for biodiversity conservation. Potential outcomes:
improved landscape level planning for biodiversity; biodiversity-supportive incentives
influencing the actions of land managers, mainstreaming biodiversity considerations into rural
industries and other relevant government sectors.
66. Annex 4 provides detailed information on the role of national and international agencies in the
CBPF.
GEF Critical Catalysis Role in the Partnership
67. The partnership represents a new approach to biodiversity conservation in China. GEF support
gives essential credibility to the partnership, and ensures that full national commitment can be
forthcoming. Also, GEF is the only facility with sufficient credibility and neutrality to encourage
international donors and NGOs to participate in the Partnership. Meanwhile, many GEF concepts
and experiences will be incorporated in the establishment of this partnership.
68. In order to ensure that the partnership can achieve its goals, GEF commitment should be
long-term and flexible, based on reaching pre-agreed milestones and targets. GEF’s long-term
commitment will:






Generate similar long-term commitment by key national agencies;
Help generate similar long-term commitment by the core group of international partners;
Allow the government to work confidently and progressively on expanding the Partnership.
Partnerships will be multi-dimensional; involving local, national and international
organisations from both government and non-government sectors;
Allow the government to work confidently and progressively on introducing truly innovative
approaches to biodiversity conservation and sustainable use;
Leverage long-term funding from national, local government and other partners;
Ensure GEF can provide support at national and local level, and link all the levels
in-between.
69. GEF will support the partnership over a ten-year period in a series of performance measured
phases. This approach is in-line with the GEF’s new Strategic Approach to Enhancing Capacity
Building. The PDF-B phase will be used to ensure the phases provide a logical series of
capacity building blocks, across all four themes. Performance and progress indicators will be
17
established in the PDF-B phase and will need to be met before the CBPF interventions continue
to the next phase.
Expected outcomes and activities of the Proposal:
70. Unlike previous biodiversity initiatives, the ultimate entry point for this proposal will be the
national development plans, and related provincial and sectoral plans. All partnership activities
are fundamentally driven by these national plans, and the supporting activities of SEPA. At the
same time, the CBPF is designed to ensure that site and time specific solutions to biodiversity
challenges are found and implemented.
71. As with all reforms and innovative approaches in China, a ‘demonstration-first’ approach will be
adopted. The partners will focus their activities into demonstration sites or demonstration
provinces. Lessons will be learnt and the approaches and practices refined. In later phases of the
partnership, the successful measures will be replicated or disseminated by the national
government agencies. The exact details of these demonstration sites will be determined through
the PDF B, although some partners have already tentatively identified focus areas (see Annex 5).
Themes
Theme 1: Strengthening the national enabling environment for conserving and sustainably
using biodiversity.
72. This Theme will cover: strategising, biodiversity planning, developing national policy and
legislation, coordination, communications across stakeholders (including non-biodiversity
government decision-makers) and providing effective national support to biodiversity initiatives
at all levels across the country. This Theme will draw on the findings from the other Themes, and
so all partners will contribute to this Theme.
73. Typical Activities may include:
Continuous strengthening of biodiversity visioning and planning
 Establishing and strengthening visioning and planning mechanisms, including the CBDSC;
 Monitoring implementation of the National BAPs and consideration of need to update it
periodically;
 Developing provincial level planning processes and BAPs;
 Developing conservation plan based on eco-regional assessment to support the National
BAPs and provincial level conservation planning.
 Integrating the findings of demonstrations and the results of innovative local activities into
national action plans.
Continually reviewing and strengthening biodiversity policy and legislation
 Strengthening SEPA policy capacity;
 Continually reviewing and revising policy – notably in light of the findings and lessons
learnt through the partnership;
 Develop economic and other incentive mechanisms to encourage provincial governments to
address conservation issues more systematically and more effectively, including through
provincial conservation action plans.
 Develop operational mechanisms to implement the new EIA law with respect to biodiversity
impacts.
18
Awareness raising of key decision-makers
 In the environment sector;
 In national government and political agencies;
 In targeted provincial and lower government agencies;
 In the private sector.
Making biodiversity conservation and poverty alleviation complementary
 Establish working group on poverty alleviation and biodiversity;
 Commission studies on the linkages between poverty alleviation and biodiversity
conservation, and determine mutual areas of concern;
 Develop a strategy for ensuring biodiversity conservation supports poverty alleviation, and
vice versa.
Making biodiversity conservation and rational use of land resources complementary
 Establish working group on rational use of land resources and biodiversity;
 Commission studies on the linkages between rational use of land resources and biodiversity
conservation, and determine mutual areas of concern;
 Develop a strategy for ensuring biodiversity conservation supports rational use of land
resources and vice versa.
Strengthening national coordination
 The establishment of the CBPF’s management and monitoring mechanisms;
 The harmonisation and rationalisation of the internationally supported projects into the
CBPF;
 The harmonisation and rationalisation of nationally supported projects into the CBPF;
 The identification, selection and design of demonstration and pilot projects;
 The collection, assimilation and dissemination of lessons learnt through the Partnership;
 The identification and attraction of additional partners, and notably the bringing of existing
ongoing GEF supported projects into the general CBPF.
Adaptive management of the CBPF through monitoring of the partnership’s impact on globally
significant biodiversity values
 Development and management of a sophisticated monitoring framework, to monitor the
partnership, its effectiveness, and implementation of the CBPF. This will include the use of
impact indicators to inform the Steering Committee of the partnership’s effectiveness and
readiness to more from one programme phase to next in any given theme.
 Coordination of existing monitoring processes and data sources relevant to biodiversity
outcomes
 Agreed process of adaptive management, based on regular reviews of the impact of the
partnership in terms of increasing the conservation and sustainable use of biodiversity in
China.
 A specific focus on identifying, articulating and measuring the links between the achieving a
shift in the national approach to conserving biodiversity (i.e. the implementation of the
CBPF) and actual biodiversity gains on the ground. This will involve detailed analysis of
the “horizontal and vertical” links and the development of methodologies to measure the
CBPF’s achievements at the local.
 Create mechanisms to link the CBPF’s monitoring outcomes to the policy planning process
and socio-economic planning process
 Dissemination of best practice and development of methodologies for replication
19
Theme 2: Mainstreaming biodiversity into socio-economic plans, planning and investment
decision-making.
74. Two sub-themes will focus respectively on: planning and planning processes, and; and
investment decisions taken locally.
Sub-theme 2.1 Mainstreaming Biodiversity into the design and implementation of the Five-Year SocioEconomic Development Plans;
75. Five-Year Socio-Economic Development Plans are the single most important drivers of
socio-economic development across China. They incorporate latest policy and national strategic
thinking and they are backed-up by a significant budget (typically several tens of billions of
US$). The comprehensive national plan is complemented by sectoral and sub-national plans;
these cover all socio-economic sectors and all provinces and follow national guidance. The
present Plan, the Tenth, covers the period 2001-2005. The Eleventh plan will cover 2006-2010.
Preparation of the Eleventh plan is to be undertaken during 2004 and final appraisal will be in
mid-2005.
76. The objective of this sub-theme would be to ensure that both the design and the implementation
of the Eleventh five-year plan (and all subsequent plans) are fully supportive of biodiversity
conservation objectives, and that all possible opportunities or synergies for exploiting the plan to
help biodiversity conservation are taken.
77. Through this sub-theme, biodiversity will be adopted into the heart of the development process in
China. This will allow biodiversity conservation to evolve with the national governance
structures and processes, for example hand in hand with evolution to ‘rule-by-law’,
decentralization, and a market-oriented economy.
78. Activities will be divided into three equal phases of approximately three years, and may include:
Phase 1 – Revised Plan Preparation
 Establish a high-level working group consisting of national economic planners and national
biodiversity planners. Establish appropriate task forces under this working group, with
national and international experts;
 Advocate the importance of biodiversity conservation to national socio-economic objectives;
 Undertake international study to determine how three different countries have integrated
biodiversity into national planning or development processes;
 Develop tools for integrating biodiversity concerns into all elements of the Plan,
simultaneous to Plan development, including guidelines, targets and impact assessment
tools;
 Specifically, develop tools and mechanism for linking biodiversity conservation with
national poverty alleviation plans;
 Closely follow and support each step and mechanism in the Planning process;
 Develop specific biodiversity conservation components of the Plan. For example, this may
include fiscal measures related to trade or supporting NGOs;
 Develop a monitoring mechanism to ensure biodiversity objectives of the Plan are realised
and that the funds are being disbursed effectively;
 Secure additional funding for biodiversity conservation in the framework of subsequent
Plans;
 Identify several sectoral (for example agriculture, land resources or water) and 2 provincial
plans for piloting in Phase 2. This activity may focus on a specific programme or activity
20
within the piloted sector, such as the Land Use Planning, the Land Consolidation and
Rehabilitation Programme, the Sloping Land Conversion Programme;
Phase 2 – Revised Plan Implementation
 Implement all the complementary and additional actions identified in Phase 1, working with
the national working group and task forces;
 Uptake and application of the lessons learnt from local level to the national level;
 Establish, for each piloted sector and each piloted province, separate high-level working
groups;
 Using a similar methodology as Phase 1, but with specific expertise and tools, integrate
biodiversity concerns into the plans and planning processes of the piloted sectors and
provinces;
 Monitoring, and adaptive management at the national level;
Phase 3 – Evaluation, lesson-learning, and up-scaling
 Uptake and application of lessons learnt, dissemination of best practice;
 Monitoring, and adaptive management at the national level and in the sectors and provinces
piloted in Phase 2;
 Extension of lessons learnt, and mechanisms, to other provinces and sectors.
Sub-Theme 2.2 Integrating biodiversity considerations into investment decision-making at key local
levels in China
79. It is the plethora of small, medium and large-scale investment decisions that impact biodiversity
across China. Influencing these is essential to biodiversity conservation. These decisions are
taken by a vast diversity of actors, ranging from households, to county government and county
level production companies, through provincial government to national governments.
80. The focus of this sub-theme is the township, county and provincial level decision-makers. This
sub-theme will ensure that location and time specific solutions to biodiversity loss are found and
implemented.
81. At the country and township, the activities will directly target the investments by enterprises, as
these account directly for most biodiversity degradation. The activities will establish sustainable
mechanisms to provide technical support, information support, incentives, risk management
support and possibly financial support so that enterprise investments can be biodiversity friendly.
In the second phase, investments to directly harvest (sustainably) biodiversity will be identified
and promoted.
82. Given that enterprises are strongly influenced by decisions taken by township, county and
provincial level governments, this Sub-Theme will also look to influence these decisions.
Currently, these government decisions are driven almost uniquely by the need to generate
economic growth. The activities will aim to change this incentive structure in local governments,
to provide a motivation for biodiversity favourable decisions.
83. Indicative activities include:
Phase 1



Selection of 4 representative counties in 2 provinces;
Establish high-level working group in each county;
Review of ongoing activities to conserve biodiversity in the county and establish data-base;
21








Participatory appraisal of the incentive structures facing government decision-makers in the
provinces, counties and townships regarding biodiversity conservation;
Design and support of revised incentive-structures, involving changes in the promotion and
reward procedures; improved regulation of production sector; increased responsibility and
ownership of biodiversity resources; technical support to development of biodiversity
friendly investments, and small grants programme for biodiversity conservation;
Analysis of enterprises in the counties and identification of sectors having strongest
interaction with biodiversity;
Participatory appraisal of investment decisions and decision-making process;
Development of EIA guidelines applicable in the selected counties, with an appropriate focus
on biodiversity impact;
Development of biodiversity friendly technology;
Facilitate the development of both an NGO and a private consulting sector capable of
supporting governments, enterprises and communities in biodiversity conservation
initiatives;
Design and implement training and awareness raising programmes.
Phase 2 – monitoring and extension throughout the pilot provinces and into next set of provinces
 Monitoring and evaluation of the Phase 1 pilot counties and provinces;
 Develop a strategy for stimulating new investments in the sustainable use of biodiversity in
the counties;
 Identification and introduction of suitable market-oriented incentives for promoting the
sustainable use of genetic resources with a view to achieving economic development;
 Implementation of the strategy in the initial pilot counties, for example through undertaking
feasibility studies, using fiscal measures to lower investment risks, providing training to
lending and investment institutions, and developing financial (loan) agreements. A
framework for Biodiversity Service Companies may be developed9;
 Extension of the successful approaches to all counties in the pilot province;
 Undertake large scale awareness raising and education programmes;
 Identification and selection of a second, larger group of pilot counties in other provinces;
 Participatory design of revised incentive structures for this second group of pilot counties;
 Provision of tools and skills;
 Monitoring and evaluation.
Phase 3 – monitoring and extension nation-wide, to all sectors.
Theme 3: Protecting biodiversity inside protected areas
84. This Theme will cover: a review of the present nature reserve system; the introduction of a new
reserve classification system; the development of a coherent national reserve management
system; the broad building of capacity to manage nature reserves; the strengthening and
broadening of financial support to the system; the strengthening of information databases, and;
improving the monitoring of biodiversity and of its conservation in reserves.
85. Given the critical role of protected areas in biodiversity conservation, the partnership will serve
as a collaboration mechanism to help implement the COP-7 Programme of Work on Protected
This approach would be similar to the ESCO approach to financing energy efficiency investments – all the risks
associated with an investment would be pooled into one dedicated, trained company.
9
22
Areas, including specific targets and timetables (see Annex 8 for examples of targets and
timetables).
86. Indicative Activities may include:
Strengthening the national nature reserve system
 Review, and if necessary, revise classification of nature reserves, in line with IUCN
classifications, and in line with economic and cultural conditions in China;
 In connection with the latter, review and if necessary revise the present list of protected
areas, to ensure all ecosystems are adequately covered, and the overall protected area system
can be managed and financed;
 Review, and if necessary revise, the present ownership, management and financing structure
for protected areas, possibly through establishment of an independent ‘national parks
service’;
 Complete protected area system gap analysis at national and regional levels based on the
requirements for representative systems of protected areas;
 Support upgrading of existing Nature Reserve Regulation to a national Law;
Establishing a mechanism for ecological services to provide sustainable financing for biodiversity
conservation
 Consider establishing the ‘China Conservation Fund’, and attract support from private sector
(e.g. through CDM or similar carbon trading mechanism);
 Mobilize public support;
 Advocate governmental investment;
 Determine mechanisms, including legal and institutional requirements for managing the fund
in order to achieve all objectives of the CBPF
 Explore sustainable finance mechanisms around payments for ecological services
Improving the effectiveness of individual protected areas:
 Developing manager/staff capacity on the ground, possibly through the development of a
“China Conservation Institute”, which would include a central coordinating body as well as a
network of trainers/institutions throughout the country;
 Strengthen the biodiversity network in protected areas, and include monitoring of the
effectiveness of protected areas;
 Develop criteria for effective PA management and a evaluation mechanism, working with
the governmental agencies and NGOs .
Strengthening management of key protected areas
 This activity is ongoing and is supported through several international projects, including
some supported by GEF (UNDP and World Bank).It includes: Biodiversity Monitoring
 Demonstrating the application of long-term multi-temporal environmental monitoring by
advanced remote sensing techniques
Theme 4: Protecting and sustainably utilising the biodiversity lying outside of protected areas.
87. Activities in this Theme are divided into three categories. The first aims at improving the local
land-use planning system. The second aims at supporting and developing the EFCA concept as a
tool for conservation. The third aims at developing the corridors between nature reserves, and
ensuring an appropriate connectivity of the nature reserves. Several projects will be initiated to
demonstrate options and to build overall capacity. Indicative activities include:
23
Developing local biodiversity and land-use planning capacity
 Establish cross-sectoral biodiversity steering committees at local levels;
 Introduce new land-use zoning and planning procedures, and develop capacity, and prepare
plans;
 Develop provincial level Biodiversity Action Plans;
 Ensure that all infrastructure projects respect new plans and provincial BAPs;
Developing capacity for eco-regional planning and develop eco-regional plans:
 Identify eco-regions in China as the assessment units;
 Within each eco-region, identify clusters of important sub-eco-regions;
 Identify conservation targets and conservation goals, shared by all stakeholders, for each
eco-region and each sub-eco-region;
 Assess major threats to the biodiversity within eco-regions and develop strategies to
reduce the threats;

Develop eco-region wide conservation strategy to fully protect biodiversity within

eco-regions;
Feed eco-regional assessment results into national planning and budgetary processes;
Operationalise the EFCA Concept
UNEP/GEF is currently developing a project concept with SEPA to implement an EFCA in the
Quinling Mountain Area. This proposal will be used as a first demonstration of the EFCA
approach. UNEP and SEPA will then work within the CBPF to share and replicate the outcomes
across other EFCAs10.
Demonstrate effective corridor protection by diversifying plantations (focus in southwest China):
 Estimating the total economic value of different biomass coverage in corridor areas, using
models;
 Establishing a long term monitoring mechanism to measure biodiversity conservation and its
ecological benefits and economic benefits;
 Developing appropriate techniques and necessary supporting mechanisms (e.g. nurseries for
diversified, indigenous species);
 Developing an approach to financing corridor protection, possibly through the SLP
programme and LCP programme, also involving alternative community livelihoods;
 Developing capacity for local resource managers, governmental officials and community
leaders on land and resource management and sustainable development.
Conserving Genetic and On-Farm Biodiversity
 To strengthen the national institutional capacities for in situ conservation, on-farm
conservation and sustainable utilisation of genetic resources;
 To carry out in situ conservation programmes for crops of major importance to the local food
security, in areas to be defined through preliminary studies with the assistance of advanced
tools and facilities, incentive measures and the promotion and backing of participatory
initiatives;
This is a good example of the way existing donors initiatives will act as “building blocks” within the CBPF.
The CBPF will support the ability of the initiatives to achieve national outcomes and will also act as a mechanism
for replicating and disseminating successful outcomes.
10
24

To adopt and utilise advanced tools for the analysis of genetic diversity (for example,
biochemical and molecular markers), in combination with GIS for monitoring and
management.
Sustainability (financial, social, environmental) and replicability of the full project
88. The proposal aims to alter the approach to development and conservation in China, and as such
all changes should be permanent and sustainable. By influencing the incentive structures, the
planning processes, and the decision-making processes, the impacts should be permanent and
sustained.
89. The proposal supports important national initiatives, notably the five year planning process and
the ongoing reform process. By supporting these initiatives, the proposal is both ensuring that it
is connected into national priorities, and ensuring it will be maintained into the future.
90. The Chinese government has sizeable funds at its disposal, and is already investing significantly
in nature and biodiversity conservation, hence the financial sustainability should be assured
through this government commitment. In addition, activities within the proposal are to determine
innovative financial mechanisms for conserving biodiversity.
91. The proposal will create a strengthened partnership, which is to be mutually beneficial to all
partners, and which grows and evolves in line with demand. This should ensure the institutional
sustainability of the programme outcomes.
92. The proposal has activities focusing on policy and legislation, and this should ensure that
outcomes are enshrined in law or policy – further ensuring institutional sustainability;
93. The proposal aims to demonstrate the economic and monetary value of biodiversity, and raise
awareness of key stakeholders in China of the value of biodiversity. Together these outcomes
should lead to a sustainable commitment to biodiversity conservation at key levels in China, and
so help overall sustainability;
94. The proposal will also have a direct impact at local levels, strengthening the consultancy sector,
the local expertise, and the NGO sector. These permanent outputs should also contribute to the
sustainability of the programme outputs.
Country Eligibility:
95. China ratified the UNCBD on 5 January 1993.
96. The proposal is fully in line with GEF Operational Strategy and Programmes, including the
guidelines for Pipeline Entry review criteria and Strategic Business Planning: Directions and
Targets (April 2003).
97. The proposal is in line with Strategic Priorities BD-1 and BD-2 of the above-mentioned paper.
The concept paper does not aim to address all issues under these two strategic priorities.
However, they will be detailed during the PDF-B phase.
25
Stakeholders involved in project:
Stakeholders
98. National government agencies. The government agencies are the CBDSC. MOF, SEPA and
then the agencies represented in the CBDSC. Through the proposal, it is expected that the
CBDSC can be expanded to include the Ministry of Commerce, the Ministry of Land and
Resources and Ministry of Water Resources. These agencies will all be full members of the
Partnership. The leading national agencies involved in the proposal are SEPA, NDRC, MOF,
MoFCOM, MLR, SFA and MOA.
99. The National Development and Reform Commission (NDRC) is responsible for preparing and
monitoring the implementation of national socio-economic plans, and for overseeing the local and
sectoral planning process. The NDRC will be a key stakeholder in all activities related to
mainstreaming biodiversity into socio-economic plans and planning process.
100. International partners. The principal international partners are the European Union, World
Bank, The Nature Conservancy, Conservation International, WWF, the UN Foundation, BP,
World Conservation Union (IUCN). All of these are to be full members of the Partnerships, and
all are to start financing activities in the CBPF. Annex 5 provides a brief outline of the ongoing
and proposed activities of these partners. As mentioned in footnote 10, existing partner
initiatives will act as building blocks within the CBPF and will fully contribute to the
achievement of its themes.
101. Local Governments. In the first phase, a small number of provincial and county governments
will participate in the proposal. Pilot projects will be implemented within all Themes of the
CBPF. The selection of these piloted provinces is to be finalised during the PDF B. The local
governments will be fully responsible for the pilot activities within the framework of the
Partnership and the CBPF, and will be responsible for demonstrating new, successful approaches
to conserving biodiversity in their jurisdiction. In return, the local governments will receive the
full technical, political and financial support through the Partnership.
102. Other International and National NGOs. Representatives of national NGO s will play an
advisory and consultative role (see below). As the Partnership becomes increasingly operational,
it is hoped that a number of additional donors (e.g. SIDA, NORAD, DFID), international NGOs
(e.g. WWF) and national NGOs can be become full partners in the Partnership. GEF support will
actively seek to make this happen, in ways that generate benefits for all partners, and for the
Partnership as a whole.
103. Private Sector Pilot projects at the county level will require the full participation of local
enterprises if they are to be successful. The initial aim will be to develop a full understanding of
why local enterprises are motivated to make investments that harm biodiversity, and then to
consensually determine a way to alter the incentive-structure. Later, the proposal will seek to
increase the sustainable utilisation of biodiversity, finding ways to make a profit and generate
income through activities that sustainably utilise, and so increase the value of, biodiversity.
Market mechanisms (such as investment facilities, strengthened consulting sector, risk reduction
arrangements) will be used to stimulate these investments.
104. Others Annex 4 provides a clear indication of the role of the many stakeholders in the
Partnership and in implementing the CBPF. Clearly, at this stage, the information is general and
26
indicative. The specific roles will be determined in the PDF B, and in early Phases of the proposal
for activities scheduled for later Phases.
105. Another important partner is the China Council for International Cooperation on Environment
and Development (CCICED). This high-level body undertakes studies and provides policy advice
to the highest level of Chinese government on all environmental issues. SEPA provides the
secretariat. Initially the CCICED will be invited to observe in partnership activities, and during
the PDF B the relationship can be determined.
Institutional Arrangements for Implementing GEF Funded Activities
106. The CBDSC will act as a Steering Committee. The CBDSC will be responsible for:






giving guidance on main programme activities;
appraising and approving main programme outputs;
communication between all concerned national and local agencies in China;
identifying and resolving conflicts, developing synergies amongst the agencies;
feeding lessons, guidance from the CBPF to all concerned national agencies in China;
ensuring new and ongoing related initiatives are fully supportive of the Partnership;
107. An Advisory and Consultative Group (ACG) will be established, to ensure communication
between the GEF programme and non-governmental stakeholders. The ACG will consist of a
limited number of representatives of Chinese NGOs, local NGOs, non-governmental experts and
possibly media and youth associations. Annex 6 provides information on the possible
membership and responsibilities of this group. Generally, tasks of the ACG will be:


information exchange between GEF programme and non-governmental community;
feeding lessons and findings of non-governmental community into the GEF programme
activities and approaches.
108. MOF and SEPA will be responsible for executing the overall proposal. SEPA will establish a
project management office responsible for day-to-day management of the proposal.
109. As the demonstration and pilot projects within the programme become operational, separate
pilot project management offices will be established in the concerned national or local
government agency. Appropriate executing arrangements will be developed for each pilot project.
Information on project proposer:
110. The joint proponents are the Ministry of Finance (MOF) and the State Environmental
Protection Administration (SEPA) of the People’s Republic of China (PRC). MOF is the
government window ministry and national focal point of the GEF, and State Environment
Protection Administration (SEPA) is mainly responsible for making policy and monitoring
environmental conditions around the country.
111. As part of the government, MOF oversees issues related to fiscal revenues and expenditures,
fiscal policies. Its main responsibilities include:
 Formulating and implementing strategies, policies, and medium- to long-term development
and reform programmes in the area of public finance and taxation;
 Participating in macroeconomic policymaking;
27


Providing policy advice on macroeconomic regulation with fiscal instruments;
Formulating and implementing policies regarding income distribution between the central
and local governments and the state and enterprises.
112. The ministry also initiates and implements policies, rules, and regulations of central
government’s domestic and foreign borrowing, and prepares plans for government bond issues. It
administers external negotiations/consultations on loans with the WB, ADB, and bilateral
agencies; it also represents China in international financial organizations, and is responsible for
replenishing contributions to GEF and other agencies.
113. The State Environment Protection Administration (SEPA) is in charge of environmental
protection on behalf of the government. It’s main responsibilities include:





To formulating the national environmental policy, laws and administrative regulations, to
conduct environmental impact assessment of major economic and technical policies,
development planning and key economic development plans, to formulate and monitor the
implementation of the national plan for ecological conservation in key regions and river
basins
To supervise the activities of exploiting and utilizing the natural resources with ecological
impacts, the important ecological environmental construction and the recovery of ecological
damage; to supervise ad examine the environmental protection in various types of nature
reserves, tourist attractions and forest parks; to supervise and examine biodiversity
conservation, wild animals and plants protection, wetland conservation and desertification
prevention and control; to supervise the management of nature reserves and to provide
suggestions to the State Council concerning whether to approve the establishment of new
national nature reserves of various types
To guide and coordinate the efforts in dealing with major environmental problems involving
different departments, localities, river basins and regions; to participate in the development
of national programme for sustainable development.
To formulate and organize the implementation of various regulations of environmental
management;
To formulate the national principles for addressing the global environmental issues; to
manage the international cooperation for the environmental protection; to participate in the
coordination of important international environmental activities; to participate in the
negotiation of the multilateral environmental agreements; to manage and coordinate as the
national focal point for the domestic implementation of the multilateral environmental
agreements;
114. SEPA is involved in almost all international environmental cooperation efforts; notably, it is the
lead agency in the CBD Steering Committee. Within SEPA, the Foreign Economic Cooperation
Office handles communications with international organizations and bilateral donors, As part of
SEPA, this office may provide assistance to the line ministries and local governments in
preparing environmental projects/programmes.
28
Financing Plan of Full project
115. All Partners will take responsibility for implementing the CBPF. Initial indications provide the
following tentative figures over the 10 year period:
Chinese government:
GEF:
EU:
TNC:
CI/UNF/BP:
WWF:
SICP:
US$15 million
US$10-20 million
US$3.4 million
US$0.285 million
US$2– 3 million
US$>2.3 million
to be determined, however $11,400 co-financing is confirmed for the
PDF-B phase
116. The activities within the CBPF will mostly aim at biodiversity conservation, yet will have some
impacts on environmental protection and more generally on sustainable development. In the
proposal, GEF support will only contribute to those activities having global benefit, and will
make a contribution in proportion to the global benefits. A full Incremental Cost Analysis will be
made during the PDF B.
117. Annex 5 provides further information on the funding plans of the international partners.
IA coordination and Linkages to GEF and IA programmes and activities
118. The CBPF represents a central element of UNDP’s Country Programme. UNDP is already
playing a vital coordinating and facilitating role. The proposal will therefore contribute to
UNDP’s programme objectives. UNDP will also build links between the CBPF and other
components of its Country Programme, particularly in the areas of poverty reduction and
governance (refer to the Second Country Cooperation Framework 2001-2005).
119. UNDP and UNEP have begun discussing the complementarity between the CBPF and the
Quinling Mountain Area concept and will continue this dialogue throughout the project design
phase.
120. Discussions have been held between UNDP and the World Bank both at the Country Office
level and between GEF Regional Coordinators. The proposal incorporates existing WB-GEF
projects, not just as important sources of lessons learned, but also as contributors to the thematic
outcomes.
Annexes
1. A brief introduction to the global significance of China’s biodiversity
2. Drivers of people, society and the economy in China.
3. The Steering Committee for the Implementation of the United Nations Convention on Biological
Diversity (CBDSC).
4. CBPF Programming Framework
29
5. Introduction to the Activities of the Main International members of the Partnership
6. Initial Terms of Reference for the Advisory and Consultative Group
7. Justification of Partnership in China Biodiversity Conservation
8. Minutes of Meeting between MoF, SEPA, NDRC and UNDP on 16 January 2004
30
Annex 1: A brief introduction to the global significance of China’s biodiversity
I
Biodiversity Richness
As one of the world’s richest countries in terms of biodiversity, China owes its great natural richness
to its large size, great range of physical conditions and the fact it contains ancient centers of evolution
and dispersion with many areas that served as Pleistocene refuge during the glacial time.
The total area of China is 9.6 million square kilometers (km2), and the seawaters under its jurisdiction
cover more than 3.0 million km2. China’s vast territory stretches 5,500 kilometers from north to
south, spanning 50 degrees of latitude and 5 climatic zones, namely: the cold-temperate, temperate,
warm-temperate, subtropical and tropical zones; and its eastern coastline is as far as 5,200 km from
its western border. The plateau and high mountains occupy over 50% of the total area of land.
Biogeographically, China is also one of only three megadiversity countries that span two major
bio-geographic regions, i.e., the Palaearctic and Oriental Realms. China encompasses many areas
that were not affected by glaciation, and thus there are numerous rare and precious species of animals
and plants as well as pre-tertiary relics that are extinct in other parts of the world, such as the Giant
Panda, the Yangtze River Dolphin, the Dawn Redwood, and the Cathay Silver Fir.
Characteristics of Species
China accounts for 10 per cent of the total number of species in the world. According to new
statistics, the total number of all existing species in China is over 100,000, including fungi(8,000),
Bacteria (5,000), Algae (500), Mosses(2,200), Ferns (2,600), Gymnosperms (200), Angiosperms
(25,000), Insects (40,000), Fish (3,862), Amphibians (274), Reptiles (387), Birds (1,329) and
Mammals (513). Otherwise, many new taxa and new records are being described and reported
annually.
Within the 233 hotspots set off by WWF, 17 of them lie in China, including 12 terrestrial eco-areas, 4
wetland and 1 marine, most with symptom of transboundry. China is well known for its unique
species of animals and plants many of which are strictly confined in distribution. For example, the
monotypic genus and species, Cathay Silver Fir, only occurs in the southern parts of China, the
Yangtze River Dolphin only lives in the lower reaches of the Yangtze River, the Giant Panda and the
Golden Monkey are confined in their distribution to the south-western mountainous regions, Sichuan,
Gansu and Shaanxi. The numbers of endemic genera and species of some selected groups of fauna
and flora are shown in the following table.
Table Number of Endemic Genera or Species in China
Taxa
Mammals
Birds
Reptiles
Amphibians
Fishes
Bryophytes
Pteridophytes
Gymnosperms
Angiosperms
Known gen. or
spp.
513 spp.
1,329 spp.
387 spp.
274 spp.
2,804 spp.
494 gen.
224 gen.
32 gen.
3,116 gen.
Endemic gen.
or spp.
77 spp.
99 spp.
133 spp.
175 spp.
440 spp.
8 gen.
5 gen.
8 gen.
232 gen.
%
15
7.4
34.3
63.9
15.7
1.6
2.2
2.5
7.4
31
Based on the investigation, the situation of 40% of ecosystems in the status of serious degradation
with lower bio-production has retarded the social development. Among 640 endangered species listed
by CITES convention, 156 China species, about 25% of total species, face the great challenge of lost
of genetic diversity. As one of the three sources of cultivating corps, the destructed habitats of
wildlife species with precious genetic resource has significantly influenced the sustainable
development of China.
Ecosystem Diversity
China has a vast territory with complex climate, varied geomorphic types, a large river network,
many lakes, and long coastlines. Such complicated natural conditions inevitably form diversified
habitats and ecosystems. The terrestrial ecosystem can be divided into several types such as forest,
shrubland, meadow, steppe, savannah, desert, tundra, and marsh among others. The aquatic
ecosystem can be classified as marine, rivers, and lakes.
Forests
The forested area in China is small with unbalanced distribution and a variety of types. The total
forest area is approximately 11.5 million hectares (ha) and covers of about 12% of China’s total land
mass. The proportion of forest coverage ranges from 55% to 4% in various provinces. Forest cover
can be roughly classified as coniferous forest, broad-leaved deciduous forest, and coniferous and
deciduous mixed forest. Meanwhile, it consists of 212 formations indicated by the dominant
species, co-dominant species or characteristic species in arbour layer. In addition, the bamboo
forests of China are equally rich, with 36 formations, and the shrublands are fairly complicated with
113 formations.
The coniferous forest in China consists of taiga (44 types), warm temperate coniferous forest (5
types) and subtropical and tropical coniferous forest (27 types). The temperate coniferous and
deciduous broad-leaved mixed forest is mainly distributed in Northeast China. The Broad-leaved
deciduous forest involves 42 main types widely distributed over hilly areas and mid or lower
mountainous areas in the temperate zone, the warm temperate zone and the subtropical zone of China.
Historically, it is the zonal vegetation of the warm temperate zone and that has been severely
degraded. The Broad-leaved evergreen forest is found in the subtropical zone. Tropical monsoon
forest and tropical rain forest cover a small area in southern China, occupying only 0.5% of the
total area, but host 25% of the total number of species in the country. These forests are mainly
distributed in the southwest part of Yunnan Province, Hainan Island, southern Guangxi, and
southeastern Tibet. Twenty-four main types are dominated by more than one characteristic species.
These tropical forests have been seriously depleted in the past half-century, thus protection of the
remaining tropical forest is a priority for conservation of biodiversity in China.
Meadows, Steppes and Savanna
The dominant species are mesophytes and perennial plants. They can be divided into various types:
typical meadows (27 formations), saline meadows (20 formations), marsh meadows (9 formations)
and high cold meadows (21 formations).
Steppes in China consist of perennial xeric herbs, occur from temperate to tropical zones, and are
ecosystems that developed in the hydrothermal conditions of semi-humid and semi-arid regions.
There are 45 formations of steppe, roughly classified as meadow steppe, typical steppe, desert steppe
and high cold steppe. Steppe can be found in temperate semi-arid zones, such as the Qinghai-Tibet
Plateau and arid mountainous areas with dominant species of needlegrass, fescuegrass,
Aneurolepidium, Cleistogenes and wormwood respectively. The total area of temperate steppe in
32
China is 315 million ha. Due to over exploitation and over-grazing, the steppe regions have
deteriorated and the degenerative area has been estimated to be 30% of the total.
Influenced by the warm air mass from the South China Sea and Indian Ocean, the tropical regions are
covered with tropical forests, while the arid savannah in China can only be found in the xerothermic
(both dry and hot) valley in southern Yunnan and some parts of Hainan Island. However, some
tropical forests have become secondary savannah.
Desert
Desert covers a total of 20% of the landmass and is mainly found in the northwestern region of the
country. It can be divided into four types, according to growth forms of dominant plants: (i)
arboureous desert, (ii) shrub desert, (iii) semi-shrub and small semi-shrub desert, and (iv) cushion-like
small semi-shrub desert. The numbers of plants, animals and microorganisms in this ecosystem are
relatively small, and the food chain within the ecosystem is simple. The dominant plants are Saxoul,
Przewalsk Ephedra, Common Beancaper, Nitraria, Songory Reaumuria and Ceratodes. Among
animals, lizards (reptiles) predominate, not only in species numbers but also in population size.
There are a number of animal species representing the desert fauna, such as Bactrian Camel, Wild
Ass, as well as many rodents like Jerboas and Gerbils. The Przewalski’s Horse has been extinct in the
wild for years and a re-introduction project is now underway.
Wetlands
Wetlands in China extend over an area of 25 million hectares and include some of the most
biologically diverse and threatened ecosystems in Asia. China’s wetlands are habitats for
endangered or endemic plants and animals, and are crucial staging and breeding areas for migratory
bird populations including many globally threatened species. Natural wetland habitats extend into
38 million ha of man-made wetland habitats comprised of rice fields and other socio-economically
important wetland areas. The 25 million ha of wetlands includes: 11 million ha of marshes and
bogs, 12 million ha of lakes (natural and artificial), and 2.1 million ha of coastal salt marshes,
mudflats and beaches. Approximately 80% (20 million ha) of China’s wetlands are freshwater
wetlands. Wetlands are distributed extensively in all regions of China, from the northernmost bank
of the Heilongjiang River in the north to Hainan Island and the islands of the South China Sea in the
south, and from the coastline in the east to the arid Northwest Region. They even exist in the
Pamirs. The great variety of such natural conditions in these different zones gives China's wetlands
distinctive characteristics.
11 birds listed as top-ranked species and 18 animals listed as second-ranked in the Annex of the
China Conservation Law of Wild Animals have been kept under the meticulous protection by Chinese
government as well as the typical wetlands. At present, China’s 21 wetlands are described as globally
important wetlands in the “Directory of Asian Wetlands” with area of 3.03 million ha. Chinese
government has invested to build 353 wetland reserves and scheduled to build 333 new wetland
reserves in the next 10 years, by that time, the total reserve area will occupy more than 90% of natural
wetland area.
Freshwater ecosystems
Inland freshwater ecosystems are distributed mainly in the Qinghai-Tibet Plateau, Xinjiang and Inner
Mongolia autonomous regions, Guizhou-Yunnan plateau, Jianghan Plain and Sanjiang Plain.
Among numerous rivers, streams and lakes in China, there are 22 rivers longer than 1,000 kilometres
and 2,848 lakes larger than 1 km2. Lakes in China are rich in aquatic biological resources and
species, provide habitats and the growing environment for different varieties of phytoplankton,
zooplankton, aquatic vascular plants, and freshwater fish feed that breed in these lakes, of which
about 690 species and subspecies are endemic to China. Many lakes are connected with rivers with
similar species composition.
33
China is one of the largest producers of freshwater fish in the world. The Silver Carp, Bighead and
Grass Carp are well-known aquacultures.
Marine ecosystems
China’s seawater covers three climatic zones (warm-temperate, subtropical and tropical), and there
are a number of coastal and marine ecosystems, such as the coastal flat, estuarine, coastal wetland,
mangrove, coral reef, marine island and oceanic ecosystems. There are 1,694 species of fish
recorded from China’s seas, consisting of 175 chondrichthyes and 1,519 teleosts. From the total of
2,804 fish species recorded, 440 are endemic.
In addition, there are 17 formations of tundra, alpine cushion-like and alpine mobile sand vegetation,
with small distribution areas.
Genetic Diversity
Genetic diversity is probably the central issue for biodiversity. A species, in a sense, is a unique
gene pool as it consists of numerous genotypes. Therefore, the species diversity on earth is
representative of the diversity of genes, but the latter goes far beyond the scope of the species
diversity. Like the profuse biodiversity of China, China’s genetic diversity is also very rich. This is
obvious just by noting the percentage of Chinese species to the total of the world. Conserving the
genetic diversity both from the wild population and captive breeding animals and cultivated plants is
essential to species conservation especially for those rare and endangered species.
Agriculture has a long development history in China, whose cultivated crops, fruit trees and cash
crops all occupy important positions in the world. There are more than 600 species of domestic plants
and over 100,000 varieties, or cultivars. China is one of the eight original centres of crops in the
world. Of the roughly 1,200 species of cultivated crops in the world, about 200 originated in China,
accounting for about 17% of the total. China also has many varieties of domesticated animals and
birds. According to 1989 statistics, there were over 590 varieties of domesticated mammals and
poultry, including 66 kinds of horses, 20 asses, 73 cattle, 20 water buffalo, 50 yaks, 4 camels, 79
sheep, 43 goats, 113 pigs, 109 chickens, 35 ducks, 21 geese, and 3 turkeys. Conservation of genetic
diversity is vital in order to maintain the evolutionary potential of a species as well as to maintain the
genetic resources for the long-term ability of agriculture to meet human needs.
II In situ conservation
II.1. Construction and management of facilities
By the end of 2003, 1,999 nature reserves of different types and levels had been established in China
(not include nature reserves in Hong Kong and Macao Special Administration Region and Taiwan
Province), covering a total area of 143.98 million ha and accounting for 14.37% of the total national
land area. 226 of these are national nature reserves with the area of 88.713 million ha, the remaining
are established at the provincial or county level. The nature reserves in China are more and more
recognised in the world. More than 24 natural reserves have joined the World Man and Biosphere
Protected Area Network. 21 protected areas have been listed in the Inventory of Wetland of
International Importance. 7 natural reserves are listed in the World Natural Heritages.
The first China’s reserve was setup in 1956. For the development over half of a century, a reserve
system with wide distribution, variant categories and comprehensive function has been established,
including 1,999 nature reserves, more than 1,000 forest parks and 690 scenic spots, with the area
coverage of 15% of the national territory. Otherwise, Chinese government currently puts forward the
construction of international reserve with Mongolia, Russia and other surrounding countries, for
enhancing the cooperation in the field of adjacent eco-area and migratory species conservation.
34
In the past 10 years, Chinese government carried out emergent protection strategy under the rapid
growth of China’s economy, 85% of terrestrial ecosystem, 85% of wild animal population and 65%
wild plant population, especially precious and endangered wild plant, have been put under the
management of natural reserve.
From 1998 to 1999, China formulated the development plans for nature reserves in each province,
autonomous region and municipalities. On basis of these plans, the national plan of nature reserve
development has been formulated, and the targets and approaches to the construction of nature
reserves for 2010 have been determined.
In 1998, the State Council issued the Notice on Further Strengthening the Management of Nature
Reserves, requiring right co-ordination of the current and future benefits, the local and whole benefits,
and the relation between development and protection. It timely stopped or corrected some
construction projects that might otherwise bring adverse impacts on nature reserves. For example,
according to the original plan, the Weining section in Guizhou of the Neikun railway would go
through the experimental zone of Caohai Nature Reserve, and the passenger stations and cargo
stations would be build in the protected area. SEPA, therefore, requested a special environmental
assessment on this arrangement, and decided to stop the construction of passenger stations and cargo
stations in the protection area. As a result, the adverse impacts on the species in the protected area
were avoided.
For the problems encountered in the construction of nature reserves, some protected areas are seeking
approaches and ways to co-ordinate the development of the protected areas and the development of
the local communities, and have conducted management activities with community involvement.
They also improved the knowledge and techniques of the local communities through training, in order
to reverse the poverty status there by making income through multiple ways. For example, under the
support from Ford Foundation, the Caohai National Nature Reserve implemented a project that
combined the poverty relief and environmental protection. This is a typical example of success. The
protection of the habitats critical for biological diversity is ensured through sustainable use of the
natural resources.
II3.2. Ecological recovery and protection
The State Council approved and promulgated the National Ecological Environment Construction Plan
and the Compendium of National Ecological Environment Conservation, implementing the principle
of “to protect the ecosystems and to construct the ecosystems at the same time” and “to attach equal
importance to the pollution prevention and to the ecological conservation”. Deforestation on natural
forests is prohibited, and the restoration and reconstruction of the degraded ecosystems are
extensively conducted. Since the initiation of the pilot project of natural forest protection in 1998, a
total of 51.33 million ha of forests, in upper reach of Yangtze River, in mid and upper reaches of
Yellow River and in the Northeast and in Inner Mongolia, have been effectively protected. The
recovered forestation area totalled 5.988 million ha. From December 6, 2000, the state started a
comprehensive project for protection of natural forestry resources. The project consists of two major
parts: one is to effectively protect the 917 million mu forest in upper reach of Yangtze and in
mid/upper reach of Yellow River, to increase the grassland by 220 million mu, to increase the forest
coverage by 130 million mu, therefore, making the forest coverage increased from 17.52% to
21.24%; the other part is to reduce the commercial timber production by 7.515 million cubic meters
in key state-owned forestry areas in the Northeast and in Inner Mongolia, therefore, to effectively
protect the 495 million mu of forest. As of the end of 2000, a total of 1.363 million ha of forests and
grasslands had been restored from cultivated farmlands in 193 counties in 17 provinces and regions
across the country.
35
II.3. Protection of rare and threatened species
From 1997 to 1998, China promulgated the China Red Book on Endangered Faunas. The book
composes of 4 volumes, covering species of birds, animals, amphibians/reptiles, and fishes. It
provides the status and trend of species distribution and population, classes of being endangered and
reasons for being threatened. In 1999, China promulgated the first batch of National Key Wild Flora
under Protection, which includes 246 flora species in 8 categories.
A significant achievement has been made on the protection of the rare and endangered species in
China. Thirty-three nature reserves for Giant Pandas have been established, with 165 thousand ha of
the habitats and 643 thousand ha of protected area. During 1991 to 2000, China Research Center for
Protection of Giant Panda, located in Wolong of Sichuan Province, bred 49 baby pandas in 32
embryos, of which 37 are survival. This made a wonder of artificial breeding of Giant Panda. The
number of Nipponia nippon has increased from 7 when it was first found to more than 200,
progressively breaking away from extinction. In Yangtze Crocodile Nature Reserve and Research
Center for Artificial Breeding in Anhui Province, the number of Yangtze Crocodiles has increased
from 200 to 9000 in ten years through artificial breeding. In Hainan Datian National Nature Reserve,
the number of Eld's deer has increased from initial 26 to over 800. In Shishou Nature Reserve in
Hubei Province and Dafeng Elk Nature Reserve in Jiangsu Province, the population of elks has
reached over 600, and a successful test of wild breeding has been conducted. Germplasm resources of
over a thousand of rare flora species and trees like Davidia involucrata, Cathaya argyrophylla
Ormosia hosiei have been effectively protected and got propagated in nature reserves.
International cooperation on nature reserves
The construction and management of nature reserves in China have received broad attention and
support from the international society. GEF has supported China on its management of nature
reserves, conservation and sustainable use of biological diversity, and the protection of bio-diversity
in nature reserves in Luobupo of Xinjiang Region. Under the support of CIDA, China implemented
the conservation of biological diversity and community development project in Inner Mongolia. The
duration of the project is 5 years. It will establish demonstrations of biological diversity protection in
Xieerduosi National Nature Reserve, Xilingele Grassland National Nature Reserve, Dalinuoer
National Nature Reserve, Saihanwula Regional Nature Reserve, Lake Dalai National Nature Reserve,
and Keerqin National Nature Reserve. China and the US have conducted a cooperative research on
marine nature reserves. WWF continues its support on the protection of Giant Panda and its habitats,
including projects of conservation and development in Pingwu of Sichuan, Baima Snow Mountain in
Yunnan and the surroundings. IFAW has supported the national evaluation and selection for
commending outstanding organizations and individuals in the management of nature reserves. It also
supported the activities for anti-poaching of Tibet antelopes in Aerjin Mountain National Nature
Reserve in Xinjiang and the Kekexili National Nature Reserve in Qinghai.
International convention
China acceded the International Convention for the Regulation of Whaling in 1980, Convention on
International Trade in Endangered Species of Wild Fauna and Flora in 1981, Convention for the
Protection of World Culture and Natural Heritage in 1985, International Tropical Timber Agreement
in 1986, Convention on Wetlands of International Importance Especially as Waterfowl Habitat in
1992, and Convention on Biological Diversity in 1993. China also ratified the United Nations
Convention on Prevention and Control of Desertification in December 1996, signed the Rotterdam
Convention (PIC) on August 24, 1999, and signed the Cartagena Protocol on Biosafety on August 8,
2000. China actively participated in the negotiation on the above international conventions related
36
with conservation of biological diversity, and took a serious attitude towards the participation in the
relevant international meetings and activities.
In 1981, the Chinese government and the Japanese government signed the Sino-Japan Agreement on
the Protection of Migratory Birds. In 1986, China and Australia signed the Sino-Australia Agreement
for the Protection of Migratory Birds and Their Habitat. In 1988, China and the former Soviet Union
signed the Agreement on Fishery. In 1993, China and Russia initialled the Agreement for the
Protection of Fish Propagation in Border Water along Heilong River and Wusuli River. In 1990,
China and Mongolia signed the Cooperation Agreement on Protection of Natural Environment.
Multilateral cooperation
China is a sponsoring country of GEF and a donor as well. The Ministry of Finance (MOF) oversees
GEF matters in China and the State Environment Protection Administration(SEPA) is the technical
support agency. China ratified the Convention on Biological Diversity and the United Nations
Framework Convention on Climate Change in 1993. In order to implement the provisions of the
conventions and fulfill its responsibilities, China has cooperated closely with GEF. China GEF
projects involve a large scope of activities including biodiversity conservation, energy conservation
and utilization of new energies, greenhouse gas emission control, and capacity building. Among
them, about 80% are in climate change and 15% are in biodiversity. These have brought about
tremendous impact to environmental protection in China. At present, GEF is playing an irreplaceable
role in the world and China will further its cooperation with GEF.
China Nature Reserve Management Project funded by GEF started in the second half of 1995. The
World Bank is the implementing agency, and the domestic executing institutions are the State
Forestry Administration, provincial forestry departments in Yunan, Hubei, Jiangxi, Shaanxi and
Fujian, nature reserves of Xishuangbanna in Yunnan, Lake Poyang in Jiangxi, Wuyi Mountain in
Fujian, Shengnongjia in Hubei, and nature reserves of Fuping, Zhouzhi, Niubeiliang, Dabaishan and
Changqing in Qinling, Shaanxi, and Wuyishan Nature Reserve in Jiangxi, and Changqing Forestry
Bureau in Shaanxi.
On February 24, 1999, GEF approved the project summary of Conservation and Sustainable Use of
Wetland Biodiversity in China. The project started formally on July 19, 2000, and cosponsored by
GEF, UNDP and Australian Agency for Development Assistance. The duration of this project is 5
years (2000-2004). The project scope covers the Sanjiang plain in Heilongjiang Province, the coastal
wetlands in Yancheng of Jiangsu Province, wetlands in Lake Dongting in Hunan Province, and
Ruoergai swamp wetlands in Sichuan and Gansu. The implementation of the project will not only
give a better protection of the wetland biodiversity in the project areas so as to effectively ensure the
local sustainable social and economic development, but also make a demonstration and gain
experiences for wetland conservation nationwide.
With the support from GEF, China also implemented the project preparation for wetland biodiversity
conservation in Sanjiang plain, the project of biodiversity conservation in Luobupo Nature Reserve
(e.g. wild camel), and the project of National Biosafety Framework of China. China also took part in
the project of biodiversity conservation in Tumen River area.
With the support from the World Bank, China implemented the project of national afforestation, the
project of development and conservation of forest resources, the project of forestry development in
poverty areas, and the project of sustainable forestry development. The implementation of these
projects accelerated the pace of afforestation and promoted the conservation and management of the
forest resources. It also helped the realisation of the target for increasing the forest coverage and
facilitated the sustainable forestry development.
37
Bilateral cooperation
China actively conducted the bilateral cooperation in the field of biodiversity conservation. Under the
support from Canadian International Development Agency, China and Canada jointly implemented
the project of Policy Study on Sustainable Management of Nature Reserves in China, the project of
Capacity Building on Regulation and Technical Guidelines for Biosafety Management in China, and
the project of Biodiversity Conservation and Community Development in Inner Mongolia Region.
During July 5-7, 2000, the Third Meeting of Tri-Party Committee of China, Mongolia and Russia on
Joint Nature Reserves was convened in Manchuri, Inner Mongolia Region of China. The three parties
discussed on the implementation of the Agreement between China, Mongolia and Russia on Joint
Establishment of Nature Reserves, and summarised the problems encountered and the experiences
gained. From July 14 to 20, 2000, the Sino-Mongolia Workshop on Transboundary Nature Reserves
was also held in Manchuri.
China and Germany convened the China-Germany 2000 Environmental Cooperation Conference in
Beijing. The two countries cooperatively implemented the project of Afforestation in West Shaanxi,
the Second Phase of Ecological Afforestation in West Shaanxi, the project of Prevention of
Desertification and Afforestation in Chifeng of Inner Mongolia and Chaoyang of Liaoning Province,
the project of Ecological Afforestation in Hebei Province, the project of Natural Resource
Conservation in Nature Reserves of Sichuan Province, the project of Monitoring and Management
Information System of the Three-North Protective Forest System, and the project of Forestry
Education, Training and Advanced Studies.
China and Netherlands implemented the project of Forest Resource Conservation and Community
Development, and the project of Monitoring of Desertification using Remote Sensing.
On July 15, 1998, China and Japan signed on the project of Equipment for Soil Conservation in
Upstream of Hanjiang River, in which the grant from Japan was used to build up water conserving
forest at upper reach of Hanjiang River and seed-breeding in Hubei Province. China and Japan also
conducted a joint investigation and study on black-tide, a study on subtropical circumfluence, and a
study on the environmental load from rivers at specified areas in the East Sea and its impact on the
marine ecosystems.
In 1997, China and the United States signed an agreement on sister mangrove nature reserves. In
1999, the two sides convened the Sino-US Workshop on Management of Marine Nature Reserves in
China, discussing extensively on experiences, technologies, practices, problems and measures
regarding the management of marine nature reserves. At present, the two countries are conducting
cooperative studies in Sanya Coral Reef Nature Reserve in Hainan, Mangrove Nature Reserve in
Guangxi, and the Ancient Coast and Wetland Nature Reserve in Tianjin. The formulation of mid and
long term cooperation plans for integrated coastal management is now underway.
In 1997, the First Meeting of the Joint Committee for Sino-Korea Cooperation on Marine Science and
Technology was held in Korea. As of today, the Joint Committee has met for a total of 4 times. In
1996, the cooperative project of oceanic circulation dynamics in the Yellow Sea was initiated. In
1998, the project of sedimentation dynamics in the Yellow Sea started.
In 2000, SEPA together with the Italian Ministry of Environment and Territory (IMET), launched the
Sino-Italian Cooperation Programme for Environmental Protection (SICP). The Programme
implements pilot projects, provides technical assistance, and participates in co-investment activities
for several environmental sectors.
A joint Programme Management Office (PMO), composed of personnel provided by both IMET and
SEPA, has been established with the task of directing SICP activities. The PMO is headed by an
Italian and a Chinese programme manager who refer to a Steering Committee that includes IMET,
SEPA, the Italian Trade Commission Beijing (ICE), and the Italian Embassy in Beijing.
38
Non-governmental cooperation
In 1996, China joined IUCN as a country member. The two sides jointly convened the First Forum on
Biological Diversity in Asia. In April 2000, China joined the Wetland International. China also
conducted a joint project with WWF for protection of Giant Panda and its habitats, and also jointly
conducted an international workshop on conservation and management of biological diversity in
Tibet. IFAW supported China on commending of nature reserves in China and the work of wild life
protection. Relevant societies and non-governmental organizations in China also attended some
international meetings regarding the biological diversity which are organized by international NGOs
39
Annex 2: Drivers of Society and People in China.
This Annex provides a brief introduction to the main drivers of biodiversity loss. Drivers are
generally defined as ‘the broader trends and forces which shape people and society’. Clearly, these
trends are numerous, complex and diversified across China and it is not possible to review them in
one short Annex. This Annex is based on a more in-depth (but still superficial) analysis of
environmental change in the China Human Development Report (UNDP, 2002) and on the findings at
a short expert workshop in Beijing in November 2003.
Population growth and changes
The large-scale migration of people, from rural areas to urban areas, from agriculture to industry, and
from poorer eastern regions to the west is generally seen as a being good for biodiversity, as it
relieves pressures on natural resources in rural areas. However, it is contributing to a loss of
indigenous knowledge. Also, it contributes to the expansion of urban areas into rural and agricultural
areas, having likely knock-on negative impacts on biodiversity.
The overall large population in China, and the limited resources per capita, also leads to high pressure
on the resource base and on biodiversity.
Finally, although population growth rates have slowed, they are still high in many of the areas rich in
biodiversity, so population growth continues to be a source of threats to biodiversity.
Economic development (patterns)
The economic paradigm focuses on high levels of growth and places growth before environmental
protection, so this is not good for biodiversity. Moreover, the paradigm has also included
‘maximisation’ of growth, not sustainability or optimal growth, and this is bad for biodiversity.
It is noted that there is an option as to how the growth can be achieved, and a choice of sectors, which
may give some opportunities for having a better impact on biodiversity.
It is noted that the national government sets high production targets, and rewards the local
governments for meeting them or passing them. This system leads to a great pressure on the
biodiversity, as the production may not be compatible with local sustainability.
In China, the growth is still very dependent on the natural resource base, and will be for some time, so
it is difficult to achieve growth without unsustainably exploiting resources.
Finally, China traditionally favours growth led by large-scale physical infrastructure development,
which may not always be adapted to local conditions, and can impact biodiversity.
Poverty (and equity)
This is considered a fundamental driver of biodiversity loss. For poor people, survival is the only
issue. It is noted that, in China, the biodiversity rich areas correlate strongly with the high-poverty
areas.
40
Government efforts to reduce poverty can reduce pressure on natural resources over the medium term,
although they are often achieved through programmes and projects which are not designed to account
for all externalities, and can have negative impact on biodiversity. The prevailing government view is
to eradicate poverty before addressing biodiversity, rather than link the two objectives.
There are also many related equity issues. Generally, the benefits of unsustainable exploitation go
disproportionately to the rich and the powerful, whereas the costs (in terms of degradation and scarce
resources) are felt by poor. However, the benefits of biodiversity protection also go to rich/outsiders,
and too many costs (e.g. lack of access) go to locals. This applies between rich and poor countries, as
well as within China.
Consumption patterns
Many endangered species are consumed in South China, or exported, this has a negative impact on
biodiversity. Although in some ways this is becoming less fashionable, the growing economy means
that overall demand is increasing.
There is a growth in demand for some products in China (e.g. milk, meat), and this is leading to
increased pressure on resource base, and so is bad for biodiversity.
Some niche consumer opportunities are developing in China, e.g. for organic food or for certified
timber. These can have a positive impact on biodiversity.
The growing overall demand, in line with the growing economy, increases opportunities to generate
income and escape from poverty, and so could develop incentives for more sustainable harvesting.
Technology development
Overall, new and improved technologies should help achieve sustainable development, and so are
positive force. New techniques can increase efficiency and productivity, leading to better quality
products and more profit. Notably, some technology is specifically for poor people and farmers.
Information technology is also a positive force, it has reached almost everywhere in China. This also
saves energy and transport costs.
There may be some negative aspects for biodiversity associated with biotechnology. Finally,
increased ability to build big infrastructures (roads, tunnels, canals etc) may cause damage to the
natural resource base.
Water sector development
Water is a very important sector for biodiversity. For example, water sector developments have big
impact on wetlands. China is facing serious challenges in terms of water shortage. This is leading to
conflicts, to land degradation, and to major water storage and transfer schemes, all of which affect
biodiversity. It is also noted that there are some positive aspects for biodiversity of the major water
storage and transfer schemes.
41
There is very low awareness amongst decision-makers of the links between water and biodiversity.
Energy sector development
The scale of energy use, the source of energy, the shortages of energy, efficiency in use, and the
moves towards renewable energies are all major issues for biodiversity.
The biggest impacts on biodiversity are through:
o
o
o
The use of wood as a fuel. This is generally negative, but new technologies may lead to an
increased value of wood as a fuel, and encourage a sustainable harvest;
The use of coal – leading to pollution and to climate change;
The use of hydro-electricity from dams – of which there are approximately 80,000 of
different scales.
It is noted that the use of wood for fuel is very small in terms of national statistics, but it does have an
important impact on biodiversity.
The Clean Development Mechanism is related to energy and may open some opportunities for
biodiversity conservation or protection.
Transportation sector development
This can have negative impacts on biodiversity, through: habitat fragmentation, habitat loss, pollution
(e.g. ship waste). Transport can also facilitate the arrival and spread of invasive species, notably
through ballast waters.
The volumes of transport, of both goods and people, are rapidly growing in China.
Agricultural sector development
The sector is changing. There are changing demands, for example for meat increases, and for less
rice. This can impact biodiversity.
Food security is still an issue in China, and this can lead to inappropriate use of land, and so to
degradation and pressure on the resource base.
The area of cropland areas has now stabilised, and now agriculture is becoming more intensive, this is
probably good for biodiversity.
At places in China, agriculture is leading to over-grazing, pollution, land conversion (overall this
latter has stopped, but some important local examples continue). These are negative forces.
Increases in efficiency and the market economy may lead to less pollution (more strategic use of
chemical inputs). This is good for biodiversity.
Through the national programmes, lots of agricultural land is to be converted to natural land use, this
should be good for biodiversity.
42
Finally, the unique agricultural ecosystems are badly degraded, and this continues, with agricultural
development focussing on maximising production.
Other sectors important to BD
The above are just some of the more important economic sectors having an impact on biodiversity.
Other sectors having an impact include: tourism and recreation, forestry, fisheries, mining, and
health/medicine.
Globalisation
Globalisation is a major trend, affecting China, and affecting the people, society and ultimate the
biodiversity in China. Globalisation is felt through FDI, trade, development cooperation and MEAs.
Foreign Direct Investment (FDI) has mixed impacts on biodiversity:
o big companies bring good practices and good technologies to China, this is good;
o SME are more likely to seek only profits, and they leave pollution behind, this is bad for
biodiversity;
o Overall, the technology transferred through FDI is generally good.
Development cooperation is good for biodiversity, as many partners provides grants.
Trade is a bigger factor than FDI. Economic growth is driven by trade. This can have negative
impacts on the resource base. Specifically, the trade in some species (mushroom, rattan, chopsticks)
can be rather bad on biodiversity. However, trade can also force new standards (e.g. entry in WTO
may lead to raised environmental standards in China, and decrease the use of chemical inputs into
agriculture). Also, trade helps economic growth and industrial development, thereby reducing
poverty.
Governance
Decentralisation is an important process in China. This will have some good impacts (by increasing
efficiency) and some bad impacts (as local activities may be poorly regulated).
The slow move to ‘rule of law’ has got to be a good thing. For example, the adoption and
implementation of the land-use law, which clarifies rights, is making a big difference;
The slowly increasing participation (of civil society, of private sector) in planning and management
has also got to be a good thing;
Integration and coordination across economic sectors is slowly improving, this should also increase
efficiency, and overall have a good impact on biodiversity;
Market based instruments, which in some form have existed in China for over two decades, have still
not become a primary tool. The main tool for achieving key national objectives is the ‘administrative
approach’. MBI need lot of implementation capacity.
The policy preparation process is changing, becoming more consultative, this has to be a good thing.
Biodiversity policy remains unclear, not well-defined, nor well-funded. This is not good.
43
Annex 3. The Steering Committee for the Implementation of the United Nations Convention on
Biological Diversity (CBDSC).
With the support of former Environmental Protection Committee of State Council, the Chinese
government has established a Steering Committee for Implementing Convention of Biological
Diversity (CBDSC) with the SEPA taking the lead since 1993. The Steering Committee was then
expanded to compose of 20 central government bodies in 1995, and to expanded to compose of 22
central government bodies in 2004, including Ministry of Foreign Affairs, National Development and
Reform Commission, Ministry of Education, Ministry of Science and Technology, Ministry of Public
Security, Ministry of Finance, Ministry of Construction, Ministry of Agriculture, Ministry of
Commerce, State Quality Supervision Inspection and Quarantine Administration, State Forestry
Administration, State Administration of Radio Film and Television, State Administration for Industry
and Commerce, Customs General Administration, Xinhua News Agency, Chinese Academy of
Sciences, State Intellectual Property Office, State Oceanic Administration, State Administration of
Traditional Chinese Medicine, Remin News Agency, and Guangming News Agency.
CBDSC works as a national coordinating mechanism for the biodiversity conservation, and has
established the national focal point for the implementing of CBD, national focal point for biosafety,
and National Clearing House Mechanism for CBD implementation. The Secretariat of the CBDSC
sits in SEPA and is responsible for the daily business. The CBDSC holds member meetings annually
to discuss the national standpoint on the CBD implementation, and make decision on important
activities of national biodiversity conservation, as well as develop annual work plan for the CBD
implementation in China, and carried out a series of activities in biodiversity conservation and its
sustainable utilization.
With the coordination of the CBDSC, China has developed China’s Action Plan on Biodiversity
Conservation, completed the first and second China’s National Report on Biological Diversity,
Guideline of Nature Reserve Development Programme in China (1996-2010) and National Biosafety
Framework of China.
44
Annex 4: CBPF Programming Framework
(This framework to be reviewed, revised and validated as part of the PDF B process)
Long term objective
Medium term outputs
Leading
National
Stakeholders
Possible
Lead
International Partner11
Strengthened enabling environment for conserving and sustainably using biodiversity
Improved strategic
New BAP
SEPA, NDRC, all
EU/UNDP/IUCN
approaches and plans
members of expanded
TNC, WWF
CBD Steering
New vision
Committee.
GEF/UNDP/NCSA
Improved Coordination
mechanisms
Improved policy and
legislation
Adjusted relations between
central and local SEPA
agencies
National policies and
strategies more responsive
to grass-roots experience
Improved political
attention to biodiversity
Synergies and
communication amongst
stakeholders
Expanded and
strengthened Steering
Committee and possibly
some local affiliates
e.g. New Conservation
Law
Locally governments
consistently enforcing
national environmental
laws
Improved participation
and community based
management
Understanding of
economic contribution
of biodiversity
conservation
Partnership operational
and well-managed
MOF/SEPA
Expanded Steering
Committee for CBD
(CBDSC)
SEPA, State Council
UNDP/GEF
EU
WWF
EU/UNDP/IUCN, TNC,
WWF
Departments for
Institutional Reform
NGOs
TNC, WWF, CI12
NDRC, Concerned
agencies
Provincial governments
EU, all partners
SEPA, CBDSC
GEF/UNDP
All Partnership members
Biodiversity mainstreamed into socio-economic sectors, plans and investment decision-making
Integrating biodiversity
into 5YP
Integrating biodiversity
into sectoral plans
Provincial and county wide
planning and
decision-taking
Modified Budget
Planning and Biodiversity
working group
Sectoral 5YP, and BAPS
E.g., Revised
implementation of
grasslands law, land law
Tools developed,
including EIA
NDRC, SEPA
UNDP/GEF
Each Sectoral Agency
(SFA, MOA, MLR,
MWR, …)
SEPA
Private consultants,
NGOS
UNDP/GEF
EU
10 counties in 2 provinces
have biodiversity friendly
incentive structure in
place for government
decision-makers
Pilot provinces and
county
UNDP/GEF
EU
WWF
11
It is noted that several international donors are considering programmes of support to biodiversity conservation.
Through the PDF B, their optimal role in the partnership will be determined.
12
CI refers to the proposed CI/BP/UNF/UNDP proposal.
45
Enterprises aware and able
to conserve biodiversity
Sustainable use of
biodiversity contributing to
socio-economic
development
Key enterprises in 10
counties are investing in a
biodiversity friendly
manner
Investment mechanisms
functioning in a
financially viable manner
Private sector
UNDP/GEF, WWF
Private sector;
Local development
banks
Concerned agency
UNDP/GEF
Strengthening protection of biodiversity inside protected areas
Revise classification
system
Revise list of strictly
protected areas
Strengthen national
ownership and
management system
New approved system, in
line with IUCN
List that is internationally
considered adequate and
feasible
National Parks Service
Strengthening protected
area management
Improvements at
individual site level.
Systematic Conservation
Training
Scoring system to
evaluate effectiveness of
parks shows
improvements
Innovative financing
mechanisms successfully
demonstrated
Sustainable financing for
protected areas
SEPA, national
agencies, CBD SC
SEPA, CAS
IUCN, WWF
All agencies,
Departments for
Institutional Reform,
local governments
Local and national
government agencies
CI, WWF
CBDSC members
SEPA, local
governments
IUCN, WWF
World Bank GEF
Biodiversity II
UNDP GEF Wetlands
Project
Most internationally funded
projects
CI
WB/WWF Scoring
System??
TNC, CI, WWF
Strengthening protection of biodiversity outside protected areas
Improved eco-regional
planning
Operationalisation of
EFCA concept
Plans approved
Local land-use planning
protects biodiversity
Local plans and zones
implemented
Provincial BAPs
Funding to SLP
guidelines
Conservation Fund
established
Development of
biodiversity friendly
corridors and assuring
connectivity
5 national and 10 local
EFCA effective
SEPA, local
governments
SEPA
TNC
MLR
EU components
Provincial Government,
SFA
CI, WWF
UNEP GEF project
46
Annex 5.
Introduction to the Activities of the Main International members of the
Partnership
UNDP
Overall Objectives
To help China to integrate biodiversity conservation initiatives into national and local poverty
reduction strategy and governance reform process
Main Activities
UNDP will play a convening role for the establishment of the coordination framework and also conduct
site-level demonstration activities in the following areas (demonstration activities to be specified during
the PDF-B):
Continue to work in the areas that UNDP has been supporting (such as updating the National Biodiversity
Action Plan, marine biodiversity management, agro-biodiversity conservation, wetlands conservation,
community-based natural resource management) and scale up the experiences and results into national
policy and planning process;
Take advantage of UNDP’s leading role in China’s MDGs and related national campaign on Xiao-Kang
(All Round Well-Off Society), to integrate biodiversity considerations into all UNDP supported
programmes and projects and thereby mainstream biodiversity conservation into national poverty
reduction strategy and investment decision-making processes (Environmental Impact Assessment and
Strategical Environmental Assessment);
Promote the good governance in biodiversity conservation, e.g. through decentralizing decision-making
on biodiversity, supporting the drafting of Provincial Biodiversity Action Plans, strategic use of UN
Volunteers, enhancing Public-Private-Partnerships, and the institutionalization the protected area career
structure and training;
Provide capacity support in areas which require improvement as identified by the GEF-supported
National Capacity Self Assessment for Global Environmental Management (NCSA);
Systematically assess the effects of WTO on biodiversity conservation.
Regional Focus of the Activities
Nation-wide
Approximate Funding Level
95,000 US$
Main National Partners and Counterparts
National Development and Reform Commission
Ministry of Finance
Ministry of Commerce
47
State Environmental Protection Administration
State Oceanic Administration
State Forestry Administration
EU
EU
Overall Objectives of the Activities
To enable China's national biodiversity programme to sustainably manage its ecosystems, and to
contribute to the implementation of related international conventions
Main Activities
Activities for local implementation and feedback structure
Establish functioning cross-sectoral bodies to guide all vertical budgeting and implementing tasks and
monitor environmental impact of provincial sectoral policies & regulations; bodies should have
authority over budgets for biodiversity; authority to be associated with Provincial EPB for
supervision of biodiversity
Structure planning and land-use planning; writing & adoption of local land-use planning regulations
Write provincial biodiversity action plans and incorporate them into provincial legislation
Submit all sectoral development programmes and plans and infra-structural projects for EIA
Identify matching companies in Europe and China; provide forum and encouragement for
development of mutual interest; focus on biodiversity management
Activities for CBD steering committee
Rationalise structure of CBD steering committee
Under the committee, set up a budgetary commission reporting on all budgetary allocations from
central government and major international funding agencies
Under the committee, to set up a supervision commission to monitor all biodiversity tasks taken by
provincial governments
Assist SEPA to construct and implement a strategic framework and schedule.
Framework will identify and schedule key actions needed in all sectors to protect biodiversity
Write, edit and publish biodiversity strategies and action plans for all sectors; to be revised
periodically
Initiate routine public scrutiny of documents, budgets & expenditure and publish popular editions of
key documents
48
Activities for awareness and visibility
Incorporate in-depth understanding of biodiversity as a core subject State School of Administration
and Party School of CCCP
Write a text of biodiversity for 3.1 & initiate biodiversity & ecosystem stability as issues embedded in
decision-making, e.g. newsletter
Implement awareness campaigns on specified aspects of biodiversity and ecosystem stability
Implement an extensive biodiversity seminar programme for senior provincial officials in all sectors
of selected programme areas
Ensure sector extension activities inform authoritatively on biodiversity, its value and conservation
Implement an intensive public environmental awareness activities in the selected programme areas,
which may include practical work where appropriate
Publish/publicise all official documents related to biodiversity, ensuring that they are accessible in a
practical way to educationally disadvantaged members of the public
Create media releases designed to raise awareness for the importance of biodiversity protection on
local and national level, and to explain the role of international co-operation in this global task
Activities for policies and laws
Enhance and enlarge the scope of the policy-review think-tank within SEPA to cover legislation and
its implementation and to cover all sectors
Encourage establishment of similar but independent bodies for independent review of environmental
impacts policy, laws and its implementation
Prepare guidelines and procedures for EIA and SIA; include pilot and case studies
Encourage public discussion of environmental implications of legal issues
Develop guidelines for sustainable production, consumption and trade in defined species or taxa
Regional Focus of the Activities
NA
Approximate Funding Level
3,420,000 US$
Main National Partners and Counterparts
UNDP
Ministry of Commerce
49
State Environmental Protection Administration
CI
Overall Objectives of the Activities
CI and UNDP’s strategy is to capitalize on the government’s investment towards the environment to
effectively implement sound biodiversity conservation
Main Activities
Improve the effectiveness of protected areas (PAs) by significantly increasing their capacity and
local participation
Build institutional capacity by advocating governmental policies to streamline the PA management
structure, including World Heritage Sites
Enhance manager/staff capacity on the ground
Build upon existing monitoring activities to establish and enhance a biodiversity monitoring network
among protected areas
Develop criteria for effective PA management and an evaluation mechanism with governmental
agencies and NGOs, including the World Heritage Sites
Promote diversified governance of protected areas
Reverse the trend of monoculture plantations to diversified forests in order to maximize the
biodiversity impact of significant governmental investments in large corridors
Evaluate the biodiversity and the ecological functions of different types of forests, including carbon
sequestration and watershed protection, and compare the differences between diversified and
monoculture forests using selected sites
Establish models at the regional level (Southwest China), or at the programme level, (e.g. G2G), to
evaluate the benefit of regenerated forest and biodiversity, including carbon sequestration and
watershed protection, and provide training to more researchers
Establish a long-term monitoring mechanism to measure the effectiveness of natural forest restoration
and its ecological benefits in Southwest China
Develop appropriate techniques and necessary supporting mechanisms, such as the establishment of
nurseries, to diversify the monoculture plantations and implement them in selected counties
Develop a model of sustainable financing for natural forest restoration, which includes supporting
alternative community livelihoods and sustainable use of the forests
Build capacity of local forest managers and governmental official in land and resource management
Build sustainable development capacity of local community leaders and community governance
50
Establish a long-term sustainable funding mechanism for protected areas and restoration
programmes
Initiate the China Conservation Fund, a foundation under which activities described in this proposal
can be supported. In particular, the fund would focus on activities that current governmental
funding does not cover in protected areas and corridor restoration. These would include capacity
building, monitoring, land and resource management, and sustainable community development
Attract partners from the private sector to support the fund through corporate grants, cause-marketing
programmes, carbon offset investments, payments for watershed protection, and other means
Increase public awareness to mobilize support for biodiversity conservation
Mobilize government to increase the size of the fund, through direct investment and through policies
to encourage private-sector payments for ecological services
Identify relevant policies and legal support that needs to be in place to build and operate such a
foundation
Build an official network of partners to support this project
Study and resolve key technical issues related to the strategic components
Formulate and advocate recommendations for policy and institutional change
Develop and implement a public outreach and communications strategy
Regional Focus of the Activities
The demonstration activities will mainly be at south-west of China
Approximate Funding Level
2,850,000 US$
Main National Partners and Counterparts
NA
UNEP
UNEP GEF is currently developing a project concept with SEPA that will be consistent with the China
Biodiversity Partnership Framework. The UNEP GEF project has as its development goal:
Ecosystem services provided by Quinling Mountain Area (QMA) maintained (priority: water and
biodiversity). The project purpose/immediate objective is that biodiversity of QMA is conserved and
sustainably used.
The project will implement an Ecological Functioning Conservation Area in the Quinling Mountain
Area, through the execution of four project components:
51
Strengthening Nature Reserve Management
Rationale: Forest nature reserves are located in key watersheds and provide important ecosystem
services.
Objective: To maximize the contribution nature reserves make to the provision of ecosystem services
and to the conservation of biodiversity in the QMA.
Managing Biodiversity in the Productive Landscape
Rationale: Halting and/or mitigating destructive economic activities is crucial for conservation of
biodiversity in the QMA.
Objective: To mitigate impact of the productive sectors on the provision of ecosystem services and
biodiversity in the QMA.
Improving the Legal Framework for Regulating the Impact of the Productive Sectors on Biodiversity
Rationale: Policy, laws and regulations concerning resource management and economic development
under the framework of the EFCA within Shaanxi Province requiring strengthening and improved
enforcement.
Objective: To limit the impact productive sectors have on ecosystem services and biodiversity
through a strengthened policy and regulatory framework.
Monitoring Status of Biodiversity and Environmental Conditions Rationale: Required to measure
impacts of human activities on ecosystem services and status of biodiversity, key for measuring
performance of project over the long term.
Objective: To monitor the impact of human activity on ecosystem services and biodiversity and use
that information to inform resource management and economic development decisions (and policies
related to each).
TNC
Overall Objectives of the Activities
To constitute scientific teams to do several ecoregional assessments, which will ultimately be
integrated and spatially combined (rolled up) into a China-wide conservation blueprint
Main Activities
Select conservation targets (e.g., species, communities, and ecological systems) to be the focus of
conservation efforts within the ecoregional planning areas
Set conservation goals in terms of number and distribution of the targets to be captured in the
portfolio within each ecoregional planning area. These serve as initial hypotheses about the effort
required to conserve the suite of representative biodiversity within the planning area
Assess viability of conservation targets to determine the likelihood of long-term persistence
Identify and design a portfolio of areas of biodiversity significance, which, if conserved, would
effectively meet conservation goals
Identify preliminary threats to targets at areas of biodiversity significance and identify action steps to
address conservation of the portfolio
52
Assist with the development of a sustainable financing plan for China’s biodiversity, including
examination of a diverse mix of funding sources such as a new China Biodiversity endowment fund,
tourism-related fees, payments for ecological services, funds linked to resource extraction activities,
etc.
Timing and Sequencing of the Activities
Phase 1 – Project Organization (January to May, 2004)
Phase 2 – Launch, Team Building and Training (June to August, 2004)
Phase 3 – Initial (Pilot) Assessments in Upper Yangtze River Basin (August 2004 to December 2005)
Phase 4 – Build Out to National Level (January 2006 to December 2007)
Phase 5 – Project Conclusion (January to December, 2008)
Approximate Funding Level
285,000 US$
Main National Partners and Counterparts
State Environmental Protection Administration
State Forest Administration
State Oceanic Administration
Ministry of Agriculture
Ministry of Water Resources
National Development and Reform Commission
Chinese Academy of Sciences
Ministry of Construction
Ministry of Finance
SICP
There are currently six Sino-Italian (SICP) initiatives: (Strengthening Technology/Capacity of
Sustainable Agriculture, EcoSurvey, Strategy and Programme/Reduction and Phase Out of POPs,
Combat Desertification/Inner Mongolia, and Combat Desertification/Youth Participation. A full
analysis and description of their relationship to the CBPF will be undertaken during the PDF-B stage
– for which SICP is providing $11,400 co-financing.
WWF
Overall Objectives of the Activities
WWF’s overall objective is to help China protect, manage and restore biodiversity and natural
systems.
Main Activities
Promote Integrated River Basin Management in the Yangtze River Basin
Develop and promote models of sustainable community development in high-biodiversity areas
Sustainable Forest Management:
53
 Forest and timber certification
 Legal and Sustainable timber trade
 Enhanced management of collective forests
Improved Protected Areas Management (incl legislation, capacity building, monitoring, financing,
co-management with local communities, sustainable tourism management)
Restoration of degraded forest and freshwater systems (focus on Upper Yangtze Forests and Central
Yangtze freshwater systems)
Conservation of aquatic biodiversity through improved river management (incl. Siting and
management of large hydro projects, pollution control, fisheries management)
Protection of key coastal ecosystems
Improved grassland management and reduction of human-wildlife conflict on Tibet Plateau Steppe
Sustainable management of the Yangtze River Estuary
Small Grants Fund for Conservation in China
Developing and implementing Adaptation Strategies to mitigate effects of climate change in high
biodiversity areas
Private sector partnerships in production and marketing of sustainably-produced goods from
high-biodiversity areas
Demonstration of sustainable development planning/coordination at the
landscape/ecoregion/watershed scale
Poverty/environment: policy research, field demonstration and advocacy to resolve conflicts between
conservation and development
Regional and National-level planning tools and baseline research for biodiversity conservation.
(including mapping of High Conservation Value Forests, biodiversity priority setting for the Yangtze
Basin, biological assessments and priority setting for the Yellow Sea)
Expansion and strengthening of the Chinese Ramsar system
National education and awareness on biodiversity (incl formal education system, internet, television)
Regional Focus of the Activities
WWF focuses its work in Global 200 ecoregions in China, including: the Yangtze Basin, Amur
(Heilong) Basin, Yellow Sea, and Tibetan Plateau Steppe.
Approximate Funding Level
2,850,000 US$
Main National Partners and Counterparts
SFA, MOE, SEPA, CAS
54
Annex 6. Initial Terms of Reference for the Advisory and Consultative Group
The Advisory and Consultative Group (ACG) will be composed of some key international
organizations, national NGOs, academic institutes, universities, local communities and private
sectors.
At the beginning, the principal international partners include the European Union, The Nature
Conservancy (TNC), Conservation International (CI), World Conservation Union (IUCN), WWF,
Green Peace, International Fund for Animal Welfare, and the Italian Government. The national
participants include China Council for International Cooperation on Environment and Development
(CCICED), Institute of Botany of Chinese Academy of Sciences (CAS), Institute of Zoology of CAS,
Beijing University, Friends of Nature, Wild China, Global Village of Beijing, academic institutes and
universities in selected provinces, etc. In addition, some key private enterprises will be invited as the
group member. The representatives of these organizations will play an advisory and consultative role
to the design and implementation of the partnership programme.
Those, who are carrying out activities with substantive impact in biodiversity conservation in China,
will be selected as the member of the ACG. The ACG will advise on the design of the programme
and supervise the programme implementation through regular meetings and daily communications.
The members, meanwhile, function in information feedback to Programme Management Office
during their routine activities of research, conservation and local community involvement. The
programme, on the other hand, will support the members’ activities of investigation, supervision and
public awareness campaign with some oriented activities and corresponding budgets designed.
55
Annex 7: Justification of Partnership in China Biodiversity Conservation
With enhancing of China’s economic strength, the Chinese Government is increasing its investment
in eco-environment year by year. International cooperation is becoming more and more brisk, which
has resulted in participation of multi-agencies, organizations and sectors in biodiversity conservation.
However, for lack of unified development programme and coordinative management system,
problems such as inadequate coordination among agencies, blind investment, mixed investment
channels and disordered fund management have occurred in practice, which have had certain bad
influence on biodiversity conservation. Therefore, it is urgent to introduce in and learn from advanced
foreign experience to carry out unified arrangement, systematic management and strategic
programming.
The establishment of partnership is providing a precious opportunity for China’s biodiversity
conservation in policy environment improvement, management system innovation, manager and
public awareness raising, inter-sector and inter-regional management coordination, and funding
channel widening. With the partnership, sustainable development mode for biodiversity conservation,
which is in compliance with the principle of country drivenness and global environmental benefits,
will be established, so as to promote biodiversity conservation in China and in the world as well.
The advantages of the partnership establishment including the followings:
The coordination of policies, regulations and strategies of national biodiversity conservation. The
partnership could be functions as a mechanism for integration and consultation of the biodiversity
conservation and management in China. Although the CBD Steering Committee (CBDSC) has been
established, the members of CBDSC are composed of 20 central government bodies which intend to
emphasize on the demands of government and neglect the suggestions from local governments,
NGOs, local communities, and multilateral/bilateral international organizations. The partnership
could be act as a forum or platform and formed a good basis for the decision-making in biodiversity
conservation in China to take consideration of different stakeholders.
The coordination among projects/programmes implemented by different national government bodies.
At present, there are many biodiversity projects/programmes implemented by different ministries
without adequate communications among them, which leads to duplications and regional unbalance in
terms of project development and investment. The partnership will contribute to the coordination and
communication among different actors and improvement of their investment efficiency, as well as
promote the government input and its optimization.
The coordination the projects/programmes between central and local governments. The local
governments has increasingly concerned on the biodiversity conservation in recent years. Local
governments of each provinces, municipalities and counties have taken action on biodiversity
conservation to different extents. The projects/programmes of central government also invested a lot
in local places. The unbalances of local economic development and finance and the central
government investment have lead to the unbalance between the regional biodiversity
projects/programmes and its actual demands. The partnership will enhance the coordination and
communication between central and local governments, the local governments and international
societies and NGOs. It will also promote the active participation and input from local governments
and enhance their responsibility.
The coordination among the multilateral/bilateral projects of international organizations and
governments of foreign countries. With the opening policy and entry of WTO, increasing number of
international organizations in environmental protection has entered into China, and invested in
biodiversity conservation, and the bilateral projects in biodiversity conservation is increasing as well,
such as UNDP, UNEP, World Bank, Asian Development Bank, European Union, USA, Japan,
Australia, etc. The scale of investment and scope of biodiversity are also increasing. The partnership
56
will greatly increase the understanding of biodiversity among international organizations and foreign
governments, and the investment transparency. The partnership will also bring a good chance for
direct dialogue among different actors to ensure the right direction of investments and inclusion of
their action into national biodiversity planning
The guidance to implementation and coordination of biodiversity projects conducted by different
social entities (enterprises, NGOs, local communities, as well as individuals). The biodiversity
conservation has attracted wide interests of different social entities. However, there is no adequate
planning and exchanging mechanism to guidance their activities, which often leads to low efficiency
and conflicts sometimes. The partnership will provide a good platform for communication, dialogue,
and wide participation, as well as a good mechanism to promote the participation, coordination and
input in biodiversity conservation.
57
Annex 8. Minutes of Meeting between MoF, SEPA, NDRC and UNDP on 16 January
2004
Minutes of Consultation Meeting on Partnership for Conserving and
Sustainable Utilizing Biodiversity in China
（January 16, 2004）
After the meeting of China Coordination Group for Implementation of the Convention on Biological
Diversity on November 21, 2003, on which discussions were held on the project “Partnership for
Conserving and Sustainable Utilizing Biodiversity in China”, the United Nations Development
Programme (UNDP) and the State Environmental Protection Administration (SEPA) further modified
and perfected the Concept Paper. Based on this and suggested by the Ministry of Finance, China’s
window ministry of GEF, SEPA organized another consultation meeting on the Partnership project on
January 16, 2004. The meeting mainly briefed participants on the background and progress of the
project development and its preliminary framework and further reviewed the Concept Paper. The
meeting was presided over by Mr. Wang Dehui, Director, Office of China Coordination Group for
Implementation of the Convention on Biological Diversity. Attending the meeting were
representatives from major national agencies for comprehensive coordination including the National
Development and Reform Commission (NDRC), the Ministry of Finance (MOF) and SEPA as well
as UNDP. Minutes of the meeting is as follows:
After listening to the introduction to the concept of the PRC/GEF Partnership for Conserving and
Sustainable Utilizing Biodiversity, participants all fully agreed on the importance and necessity of the
project and reached consensus on the following points:
1. The project fully takes in comments and suggestions from relevant agencies in its design and gives
an overall consideration to problems in biodiversity conservation in China and solutions to them. The
project concept reflects the overall needs of the country and embodies in it country drivenness,
openness, flexibility and non-discrimination. All the agencies actively support and promote the
project development.
2. It is hoped that in the PDF B period, concrete contents, implementation measures and
organizational modality of the project can be decided the soonest possible. With the support of GEF,
full consultation should be conducted with international organizations, government agencies at
different levels, nongovernmental organizations and the private sector. The project will provide a
truly effective cooperation platform and communication modality, establish a long-term effective
partnership and combine and coordinate internal and external resources for biodiversity conservation
in China.
3. In integrating biodiversity conservation into national and local economic development plans,
special attention should be paid to address technical and capacity building issues and pilot and
demonstration activities should be well carried out.
The meeting highly appreciated UNDP for its efforts and support in the project development and
expected UNDP to submit the Concept Paper to GEF for its approval as soon as possible.
January 1６, 2004
58
Annex: Participant list:
Name
Title/Position
Agency
Wang Dehui
Deputy Director-general and
Department of Nature
Director of CBD Steering
Conservation, SEPA
Committee in China
Song Xiaozhi
Deputy Director-general
Foreign Economic
Cooperation Office,
SEPA
Sun Zhen
Director
Department of Regional
Economy, NDRC
Li Qian
Project Officer
International
Department, MOF
Guo Yinfeng
Senior Project Officer
China GEF Office
Sun Xuefeng
Deputy Director
FECO, SEPA
Wang Yexu
Senior Project Officer
FECO, SEPA
Chen Haijun
Project Officer
FECO, SEPA
Maria Suokko
Cluster Manager
UNDP
Li Rusong
Programme Officer
UNDP
59
Bibliography
ADB:
“Framework Brief for the PRC/GEF Strategic Partnership on Land Degradation in Dryland
Ecosystems” (8/02)
CCICED
Recommendations to the Government of China (11/02)
“Implementing the Natural Forest Protection Programme and the Sloping Land Conversion
Programme/Western China Forests and Grasslands Taskforce” (10/02)
Conservation International
Conceptual Approach to UNF/BP/CI Biodiversity Programme;
“Critical Ecosystem Partnership Fund, Ecosystem Profile, Mountains of Southwest China” (2002)
European Union
Minutes of meetings formulation mission, with SEPA, CAS, WWF, MOA, FAO, MOC, ADB
A Concept Paper for the EU-China Biodiversity Programme (10/03)
GEF:
The GEF Programmatic Approach: Criteria and Processes for its Implementation (4/00)
Strategic Business Planning: Directions and Targets (4/03)
GOC
“Environmental Impact Assessment Law” (9/03) Unofficial translation
SEPA:
“China’s Second National Report on Implementation of the CBD” (2001)
“Inception report on the Programmatic Project on Biodiversity Conservation in China” (2/03)
PDF B Proposal for PRC-GEF Biodiversity Programme (3/03)
SICP
“The Sino-Italian Cooperation Programme for Environmental Protection”, (2000-03)
The Nature Conservancy:
Project Documentation: Developing a Conservation Blueprint for China (11/03)
UNDP/GEF China:
Project Documentation: Biodiversity Management in the Coastal Areas of China’s South Seas(3/03)
Project Documentation: National Capacity Self-Assessments for Global Environmental
Management (11/03)
Project Documentation: China Wetlands Conservation and Sustainable use Project (various)
China Human Development Report (8/02) and draft contribution papers.
“Implementation and Enforcement of China’s Environmental Protection Laws” (updated, 2003)
UNEP/GEF China:
Project Documentation: Demonstration of Yangste River Basin EFCA (2003)
World Bank:
“China: Air, Land and Water; Environmental Priorities for a New Millennium” (2001)
60
PART II
- PROJECT DEVELOPMENT PREPARATION
A - DESCRIPTION OF PROPOSED PDF ACTIVITIES
121. The creation of this unprecedented partnership will require a PDF formulation process with unique
elements. The PDF-B process will establish a strong programme-level framework and an effective
enabling environment through four project components:
1. Establishment of the Joint CBPF Group
2. Development of the CBPF Results Framework
3. Preparation of a Common Monitoring and Evaluation Framework
4. Preparation of the Detailed CBPF Programme
1. Establishment of the Joint CBPF Group
122. The existing China CBD Steering Committee will provide overall guidance to the CBPF. PDF-B
activities will support the CBD Steering Committee to develop a Joint CBPF Group for all CBPF
partners. It will be chaired by the CBD Steering Committee Chairman and co-chaired by a
representative of the CBPF donor community. It is expected that key government bodies and all
relevant members of the GEF family (GEFSEC, UNDP, WB, UNEP, ADB, IFAD) will participate.
The first co-chair for the PDF-B phase will be the UN Resident Coordinator in China, but the
co-chair position will become rotational.
123. The Joint CBPF Group will play the role of a coordinator and will provide a platform for dialogues
among all partners. This Group will be responsible for developing and agreeing to the joint
PRC-donor results framework for the CBPF. It will ensure that government and donor investments
are defined and implemented in close relation to the agreed results. The roles and responsibilities
of CBPF partners will be agreed and established, and the partners will be organized in such a way as
to ensure the development of a proper foundation from which to launch planning activities related to
the four themes. The Joint Group will also approve the common CBPF M&E system and any
additional coordination measures. It will meet quarterly during the PDF-B phase or as agreed.
PDF-B Deliverables:



Agreed initial composition and structure of the Joint CBPF Group
Agreed Terms of Reference for the Joint CBPF Group
Agreed procedures for the Joint CBPF Group
PDF-B Activities:
124. The creation of the Joint CBPF Group will provide a means of organizing the institutional
arrangements for the CBPF. The PDF-B will focus significant time and energy on coordinating all
partners, and a description of preliminary activities is provided below:

Establishment of initial Joint CBPF Group. Proposed Group members, Terms of
References, and procedures for the Joint CBPF Group based on the reviews and analyses as
described below will be discussed in meetings. A Steering Committee meeting will be held
for the approval and the announcement of the establishment of the Group. Links to the
Europe-China Biodiversity Programme and the governance structure of the Europe-China
61




Biodiversity Programme will be ensured and coordinated with the Joint CBPF Group. The
CBPF will be kept open for new partners who are interested in biodiversity conservation in
China to join in at different stages, and procedures will be established for new partners
interested in joining the CBPF.
A review of the role and involvement of environmental and non-environmental key
ministries and administrations, including SEPA, NDRC, MOF, MOFCOM, SFA, MOA,
MLR etc. This activity will need to detail the mechanisms for operational involvement in
the CBPF (i.e. flow of funds, responsibilities for delivering CBPF interventions etc).
A review of the role and involvement of civil society, academia, NGOs, and the private
sector.
A review of existing coordination models in China (such as CCICED) and internationally,
especially in regards to the field of biodiversity. Based on this review, recommend
promising options for the Joint CBPF Group, and explore the possible linkages between
CCICED and the Joint CBPF Group.
A detailed institutional analysis, including a study of existing mandates, areas of overlap and
the barriers to institutional coordination. Outcomes from this analysis will also feed into
the risk analysis – which will be part of the CBPF’s Risk Management Strategy.
125. To support the above activities, a series of brainstorming sessions among all partners, workshops and
donor roundtables will be organized for discussion and consultation. Relevant progress reports will
be shared with all partners. Regular informal exchange among SEPA, MOF, UNDP, UNEP, WB,
ADB offices in Beijing will also be kept. To facilitate the work of the Joint CBPF Group, a CBPF
webpage and a donor coordination webpage (password entry link from the CBPF webpage) will be
created in both Chinese and English.
126. In addition to the formal PDF-B activities, UNDP will also encourage the following complementary
activities:
 Regular informal contact between GEF Task Managers in UNDP, UNEP, WB, and ADB
 The participation of GEFSEC and GEF Agencies in the Joint CBPF Group meetings
 Formal consultations between GEFSEC, GEF Principal Technical Advisors and Regional
Coordinators and Chinese delegation at GEF Council meetings.
2. Development of the CBPF Results Framework
127. The CBPF will develop a joint PRC-donor results framework that sets out the expected results and
agreed results, outputs and progress indicators. Participating partners will commit themselves to
organize their programmes in such a manner that they contribute to the expected results laid out in
the CBPF Results Framework. Participating donors will also agree to measure the success of their
contributions to the CBPF based on the commonly agreed programme impact indicators set out in the
joint Results Framework.
128. The Results Framework provides the focus for the CBPF, ties together the objectives of the four
themes of the programme and ensures that all partners contribute to the objectives through logical
outcomes.
PDF-B Deliverables


Common Results Framework of the CBPF
Agreed phasing and schedule of CBPF Programme interventions based on a logical
progression of proposed programme elements and activities
62





A matrix which details project objectives as defined for each of the four themes and the
corresponding partner/s responsible for coordinating these activities
A clear outline of GEF and non-GEF initiatives in support of biodiversity conservation that
have been supported to date in China tying together how these initiatives fit in with the
objectives of the four themes
A clear outline of CBPF partner activities and pipelines, identifying how these pursuits relate
to the objectives and needs of the programme
A clear indication of current and planned investments by the PRC Government for
biodiversity conservation and description of key programmes, explaining how these
initiatives fit into the objectives of the four themes
A clear strategy for advancing biodiversity management in China, including strategy for
relevant governmental agencies in the field of biodiversity conservation
PDF-B Activities:
129. An analysis of the capacities of the potential partners with respect to the four themes will be
conducted, including an identification and evaluation of their relevant activities and comparative
advantages. This also will include a review of partner planning activities and measures that have
already been undertaken. Particular attention will be paid to the activities and pipelines of GEF
Agency partners. This will help shape the CBPF, which will be supported by a series of parallel
projects. Research activities will be conducted by the Joint CBPF to explore the following topics
and how they relate and can be merged with the objectives of the CBPF:
 New and additional projects funded by: Government, UNDP-GEF, WB-GEF, UNEP-GEF,
UNDP-EU, UNF-CI, TNC, SICP, IUCN, and others when relevant.
 Existing projects under implementation or development, modified as necessary:
Government, UNDP, WB, UNEP, INGOs, IFAD, and others when relevant.
 Coordination with relevant projects and initiatives under the PRC-GEF Land Degradation
Programmatic Approach.
 An analysis of partner’s capabilities and/or ongoing projects with respect to the objectives
defined in the four themes.
130. Many of the other activities required to develop the Results Framework are tied to the detailed CBPF
Programme preparation (problem analysis, threat and underlying cause analysis, baseline analysis,
logical framework, etc). Feedback will be provided for modifying and improving the draft Result
Framework.
131. Consultative process will be undertaken through a series of workshops and regular informal contacts
to build consensus. Progress reports will be sent to all CBPF partners in Chinese and/or English.
3. Preparation of a Common Monitoring and Evaluation Framework
132. Once the Results Framework is agreed in principle it must be linked to a M&E system through the
development of impact and progress indicators.
133. Impact and progress indicators will be developed with the assistance of the EWG and will be flexible
enough account for all goals as stated in the four themes.
PDF-B Deliverables:

Agreed impact indicators that measure the CBPF’s results
63








Agreed progress indicators with benchmarks and milestones, particularly to measure
capacity and readiness to graduate from one programme phase to the next
Agreed indicators of capacity development for relevant elements of the CBPF Programme
(i.e. particularly Theme 1)
Measured baselines for all indicators. Baselines should be quantified as much as possible
Agreed and measurable targets for all indicators
Required monitoring actions to measure progress towards the targets
A Adaptive Management Framework
A Results Measurement Matrix
Develop CBPF Risk Management Strategy
PDF-B Activities:
134. Review of existing M & E frameworks adopted by CBPF partners, as well as their compatibility and
differences.
 Review of the potential risks and assumptions and the rates of likelihood that the risks will
be avoided and/or the assumptions will be held
 Link responses to the Programme Planning Matrix, Work Plan (monitoring activities where
necessary) and budget
 Development of CBPF Risk Management Strategy which is linked to the Results
Measurement Matrix via the risks and assumptions that have been identified
4. Preparation of the Detailed CBPF Programme
135. The CBPF Programme needs to build on the review and analysis of existing conservation initiatives
(see Section 2 of the Results Framework). In addition, it needs to be set in the context of land-use
planning and management.
PDF-B DELIVERABLES:











Outline of the land-use context (planning, management and tenure policies, regulations and
incentives). This will include links to the GEF-PRC Land Degradation Programme and the
Europe-China Biodiversity Programme
Outline the baseline scenario, building on the review of existing initiatives, lessons learned
and CBPF partner capacities
Establish the alternative scenario, based on the problem and threats analyses and the
baseline. This is also a part of the development of the CBPF Results Framework
Programme Planning Matrix (logframe matrix)
An environmental communication, awareness and education strategy for the CBPF
A Stakeholder Participation Plan for the CBPF
Co-financing secured and committed for the CBPF.
A final Project Brief and Project Document for submission, developed according to
prevailing UNDP/GEF formats and formulation guidelines.
Approval of the CBPF Project Brief by the China CBD Steering Committee
Endorsement of the CBPF Project Brief by the Joint Group
Endorsement of the CBPF Brief by the GEF Operational Focal Point of China
64
PDF-B Activities:















Justification of the global significance of the biodiversity values that will be targeted by
interventions of the CBPF. Results from this report will contribute to the Results
Framework and the incremental costs analysis.
Detailed problem analysis, building on the outline provided in the Concept Paper. The
analysis needs to include an examination of the threatening processes and underlying causes,
going beyond the drivers set out in the Concept Paper.
Review current status of the institutional arrangements of protected areas in China and
assessment of realistic options for change to be pursued.
Review current status of institutional arrangements in China for the biodiversity conservation
outside protected areas, and assess realistic options for change to be pursed.
Review economic and other incentive mechanisms of encouraging local governments to
address conservation issues more systematically and more effectively.
Conduct a horizontal analysis of environmental and non-environmental PRC ministries
and/or bureaus on the local, provincial, and national levels exploring how they can be
utilized to contribute to project objectives with respect to each of the four themes.
Define vertical linkages between ministries at the local, provincial, and national levels;
outline where these linkages are weak, and define strategies for improvement using
government and non-governmental resources to achieve specific project objectives.
Conduct an analysis of non-environmental PRC ministries to pinpoint areas where it my be
possible build cross-sector networking.
Conduct a review of existing participatory approaches and the success of these approaches,
both in China and internationally.
Identify vertical linkages to ensure practical
dissemination of approaches and results.
Assessment of socio-economic issues related to biodiversity conservation and its sustainable
use which need to be integrated into the CBPF.
Expand the links made in the Concept Paper to on-the-ground implementation, with
particular attention to the role and involvement of provincial and local level government.
Establish demonstration sites to carry out future project activities and designate which
partners will be responsible for activities at specific demonstration sites, and how project
objectives, as defined in the various four themes, will be fulfilled at these sites
Identification of priorities and scheduling of preferred intervention.
Roundtable discussion with partners for securing co-financing.
CBPF document building, which includes the achievements in the parts of Result Framework
and Common Monitoring and Evaluation Framework building.
136. A series of brainstorming sessions, workshops and necessary field trips for learning and training will
be undertake as the means of consultation, coordination, communication, consensus building and
participatory project development.
PDF-B Implementation Structure
137. A strong and effective implementation structure will be crucial to the success of the CBPF process.
The present PDF-B proposal will be implemented jointly with the parallel PDF-B project to develop
demonstration projects. The implementation structure for these two PDF-Bs will consist of the
following key components:
 A Programme Development Steering Committee (PDSC) which will be composed by key
partners
 A Programme Development Management Office (PDMO) which will be located in a facility
housed within SEPA, and appointment of the National Project Director. The PDMP will
65


serve as the daily management unit for PDF-B. A senior official of SEPA will serve as the
National Project Director, and other members will be recruited jointly by SEPA and by
UNDP.
An Expert Working Group (EWG), which will be composed of national and international
experts and will be designed to work alongside the Joint CBPF Group in planning related to
the four themes.
An Advisory and Consultative Group (ACG), which will be composed of key international
organizations, national NGOs, academic institutes, universities, local communities and
private sectors. The ACG will advise on the design of the programme and supervise the
programme implementation through regular meetings and daily communications. The
members, meanwhile, will also feed back to the Programme Management Office pertinent
information and lessons learned from their routine activities of research, conservation and
local community involvement.
B - PDF BLOCK B OUTPUTS
138. Major outputs of the PDF B will include: (i) Establishment and operation of the Joint CBPF Group,
(ii) Agreed CBPF Results Framework, (iii) Agreed Common Monitoring and Evaluation System, and
(iii) A UNDP/GEF Project Brief for submission.
C - JUSTIFICATION
139. From the above mentioned PDF-B outputs, we can see that this is not a conventional PDF-B process.
Extra efforts are needed to achieve the establishment of the Joint CBPF Group, common Result
Framework and Monitoring and Evaluation Framework, in addition to the Project Brief. The
Partnership for the Conservation and Sustainable Use of Biodiversity in China is a long-term
cooperation between Chinese Government and GEF in the field of biodiversity, participated by a
wide variety of stakeholders. It is a substantial, political and financial commitment by the
Government within a multi-level, multi-phase, and multi-component framework of activities to
conserve biodiversity, many of which are new and innovative in China. The review of current status
and development of a common working framework demand significant amount of PDF B time and
resources. It is essential to facilitate the dialogue among different government ministries and other
stakeholders to develop a Joint CBPF Group before the formal launch of the programme. The PDF B
grant will also support the participatory process of developing the programme framework and
facilitating common understanding of the fundamental concepts of CBPF, including programme
priorities, the results framework, and the common monitoring and evaluation framework.
140. The China Biodiversity Partnership Framework will be a platform for a wide range of national and
international stakeholders’ participation. Significant amount of consultation, coordination and
communication will be undertaken in order to achieve consensus and encourage participation in the
development process of the framework. The baseline scenarios of China biodiversity are rather
complicated due to the magnificent size of the country and the coverage of the Partnership being
sought. Coordination among related projects and programmes must be achieved in an efficient and
synergetic manner as targeted by the Partnership. Sufficient PDF-B time and resources must be
secured in order to complete these challenging tasks.
D - TIMETABLE
141. It is expected that the PDF-B phase will start in June, 2005 with a duration of 18 months. It is
expected that the Project Brief for the CBPF Programme will be submitted to the Council Meeting in
November 2006 for approval
66
E – BUDGET
142. The total PDF-B phase budget is US$ 850,000, which consists of GEF grant of $350,000 and
co-financing of US$500,000. The co-financing will be provided by major participants including the
Chinese Government, UNDP, the Ministry of Environment of Italy, and TNC. A detailed project
budget is provided below:
67
BUDGET
Key Activities
Timeframe
Responsible
Party
GEF Outcome
Q1
Q2
Q3
Q4
Q5
Q6
Source of
Funds
Amount
2005
(USD)
Amount
Consultants
GEF
Agreed initial composition and structure
of the Joint CBPF Group
80,000
OUTCOME 1:
Joint CBPF Group
Agreed Terms of Reference for the Joint
CBPF Group
24,000
10,800
24,000
Surveys & Investigations
13,200
10,800
24,000
Workshops
17,600
14,400
32,000
3,960
3,240
7,200
Surveys & Investigations
3,960
3,240
7,200
Workshops
5,280
4,320
9,600
1,650
1,350
3,000
1,650
1,350
3,000
Consultants
UNDP
10,000
Surveys & Investigations
Workshops
Agreed procedures for the Joint CBPF
Group
2,200
1,800
4,000
10,450
8,550
19,000
Surveys & Investigations
20,900
17,100
38,000
Workshops
20,900
17,100
38,000
11,550
9,450
21,000
Surveys & Investigations
11,550
9,450
21,000
Workshops
15,400
12,600
28,000
2,200
1,800
4,000
Surveys & Investigations
1,650
1,350
3,000
Workshops
1,650
1,350
3,000
1,980
1,620
3,600
Surveys & Investigations
1,485
1,215
2,700
Workshops
1,485
1,215
2,700
Consultants
Third Party
95,000
Consultants
Problem analysis, vision, and gaps
GEF
70,000
Consultants
Government
of China
Stakeholders analysis, who do what
OUTCOME 2:
Common Result
Framework
A matrix which details project objectives
as defined for each of the four themes and
the corresponding partner/s responsible
for coordinating these activities
UNDP
Common Results Framework of the CBPF
Third Party
10,000
Consultants
9,000
Consultants
68
90,000
Total (USD)
13,200
Consultants
Government
of China
Amount
2006
(USD)
19,800
16,200
36,000
Surveys & Investigations
14,850
12,150
27,000
Workshops
14,850
12,150
27,000
BUDGET
Consultants
Agreed impact indicators
GEF
70,000
15,400
12,600
28,000
Surveys & Investigations
11,550
9,450
21,000
Workshops
11,550
9,450
21,000
1,760
1,440
3,200
Surveys & Investigations
1,320
1,080
2,400
Workshops
1,320
1,080
2,400
1,980
1,620
3,600
Surveys & Investigations
1,485
1,215
2,700
Workshops
1,485
1,215
2,700
19,800
16,200
36,000
Surveys & Investigations
14,850
12,150
27,000
Workshops
14,850
12,150
27,000
13,332
10,908
24,240
Surveys & Investigations
9,999
8,181
18,180
Workshops
9,999
8,181
18,180
2,860
2,340
5,200
Surveys & Investigations
2,145
1,755
3,900
Workshops
2,145
1,755
3,900
2,640
2,160
4,800
1,980
1,620
3,600
Consultants
Agreed progress indicators with
benchmarks and milestones
OUTCOME 3:
Common M&E
Framework
Government
of China
8,000
Consultants
Required monitoring actions to measure
progress towards the targets
UNDP
9,000
A Adaptive Management Framework
Consultants
Third Party
90,000
Develop CBPF Risk Management Strategy
Consultants
Detailed problem analysis
GEF
60,600
Stakeholder participation plan
Consultants
OUTCOME 4:
Detailed CBPF
Programme
Government
of China
Programme Planning Matrix (logframe
matrix)
13,000
Consultants
UNDP
Co-financing secured and committed for
the CBPF
12,000
Surveys & Investigations
Workshops
Approval of the CBPF by the China CBD
Steering Committee,Joint CBPF Group,
and the GEF Operational Focal Point of
China
1,980
1,620
3,600
15,125
12,375
27,500
Surveys & Investigations
7,563
6,188
13,750
Workshops
7,563
6,188
13,750
Consultants
Third Party
69
55,000
BUDGET
Setting up of a Programme Development
Steering Committee (PDSC)
PDF-B Institutional
Structure
GEF
69,400
38,170
31,230
69,400
Government
of China
75,000
41,250
33,750
75,000
Setting up of a Programme Development
Management Office (PDMO)
Establishment of the Expert Working
Group (EWG)
Establishment of Advisory and
Consultative Group (ACG)
Sub-total
Total
GEF
350,000
GOC
130,000
UNDP
40,000
Others
330,000
850,000
70
Co-financing Sources (US$)
Name of Co-financier
(source)
Classification
Type
Amount
(US$)
Status
UNDP
IA
Grants
40,000
Agreed
Gov. of China
Government
Grants
70,000
Agreed
Equity
investments
10,000
Agreed
In-kind support
50,000
Agreed
Gov. of Italy
Government
Grants
120,000
Agreed
TNC
NGO
Grant
210,000
Agreed
500,000
Sub-Total Co-financing
Note: Government of China co-financing commitments for the two PDF-B requests under the
agreed CBPF Concept are closely linked, and the exact distribution of co-financing between the
two requests is indicative only.
71
PART IV – RESPONSE TO REVIEWS
UNDP Project ID: 2902 - China Biodiversity Partnership Framework (CBPF)
UNDP Response to GEFSEC Review Sheet
Pipeline Entry Review Criteria



Country Eligibility
Country Drivenness
Endorsement

Country be a party (ratified) to the Convention
appropriate to the project focal area (UNFCCC
or CBD) and
1.
For grants within the financial mechanism,
country be in conformity with eligibility
criteria decided by the COPs; or
2.
For grants outside the framework of the
financial mechanisms of the Conventions,
country be eligible for country assistance from
the UNDP or the World Bank.
Concept consistent with priorities of the country as
identified in:
 National reports/ communications to
Conventions

National or sector development plans such as
NBSAPs, energy sector plans, etc. (explain
how stakeholders were involved in
development of these plans and how project
idea evolved).

Recommendations of appropriate regional
intergovernmental meetings or agreements.

No endorsement is required at pipeline entry
but endorsement is required if PDFs are
requested.
72
Concept Agreement
Review Comments
UNDP Response
The country is eligible as
reflected in the proposal
Not required
Linkages to NBSAP and other
environmental planning processes
highlighted. Interested in
mainstreaming biodiversity in the
productive sector
Not required
Not required
Pipeline Entry Review Criteria


Programme Designation &
Conformity
Project Design
Identify:
 primary Operational Programme; strategic
priority or

Short-term measures; or

Enabling Activities
Outline the incremental reasoning of the concept,
including:
 Problem statement (a preliminary gap
analysis and the description of the two
alternatives should follow).

What would happen without GEF
(programmes & global environmental
consequences) – baseline scenario.

What would happen with GEF
(programmes & global environmental
consequences) – alternate scenario.
Concept Agreement
Review Comments
The project fits well with the
proposed Ops and activities
therein.
The Secretariat will need to
consider the results of the CEO
visit to China and his
conversations with the Chinese
government prior to the bilateral
meeting.
As the proposed programme is
broad and encompassing, very
ambitious and could have
significant positive impact in
China’s biodiversity if supported.
The following issues will need
further consideration:
1. GEF Secretariat role in
proposed Partnership. Given the
magnitude of the project, its
global significance and its
potential impact and the
possibility of supporting the
framework through various
projects or activities, it would be
important for the Secretariat to
play a strategic role directly, not
just through its agencies.
2. Long-term plans? Any phases
considered, potential GEF
long-term commitment?
73
UNDP Response
Not required
1. GEFSEC is expected to play a
strategic role in the China
Biodiversity Partnership
Framework (CBPF). This would
be welcomed by UNDP and SEPA.
The formal mechanism for this
involvement even during the
PDF-B phase will be the Joint
CBPF Group (please see the
attached explanation of partner
coordination for detailsAttachment IV-1).
There will also be other
mechanisms to ensure the strategic
role of the GEFSEC. The
GEFSEC will be invited to donor
roundtable meetings in Beijing,
there will be regular informal
consultations between GEF
Agency Task Managers and
GEFSEC Programme Managers
and there will be support for more
formal consultations between
GEFSEC, GEF Agency heads and
the Chinese Government during
GEF Council meetings
2. The Concept Paper does
envisage phases for the CBPF
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
3. Clear outline of underlying
causes, not only threats to
biodiversity loss need to be
included.
4. Global benefits and their
significance will need to be
defined at the specific project
sites, not nationally or regionally
within China.
5. Proposed alternative scenario
74
UNDP Response
programme.
para 54 first mentions the
multi-phased approach
paras 67 and 69
You will also note that the Themes
are structured in phases and that
the end of Theme 1 notes that
impact indicators will be used to
assess readiness to move from one
phase to the next.
3. The underlying causes of
biodiversity loss are introduced in
paras 27-33. Given the
complexities involved and the need
for detailed analysis to be
undertaken in order to understand
cause-effect relationships, they are
introduced as “drivers” of
biodiversity loss. More
information is provided in Annex
2.
4. The need to articulate global
benefits and their significance at
the specific project sites is
recognized. The CBPF results
framework and incremental cost
analysis will identify the global
significance of site interventions
and GEF funds will be applied in
accordance with the principle of
incrementality. This will be
detailed during the PDF-B phase.
As only an outline of the
incremental reasoning is required
at pipeline entry global
significance has only been
delineated at the national level in
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
needs to be strengthened by an
analysis of what is currently
being supported.
6. Given the complexity of the
project, a strong institutional
set-up would be needed. In this
context, SEPA’s institutional
capacity to play its proposed key
role on issues of cross-sectoral
coordination will need to be
clarified and the inclusion of
additional agencies within China
explored.
75
UNDP Response
the Concept Paper (paras 10-15
and Annex 1).
5. The Concept Paper provides a
brief overview of what is being
currently supported in para 34-47.
Nevertheless, a detailed analysis of
what is being currently supported
will be undertaken in the PDF-B
phase. An analysis of partner
capacities, relevant activities and
comparative advantages will be
completed.
6. The need for a strong
institutional set-up is absolutely
vital and we appreciate the
GEFSEC making this point.
SEPA’s institutional capacity
(including from the ongoing
support it is receiving from the
PRC-GEF Land Degradation
Programmatic Approach and other
donor-supported initiatives) will be
reviewed and assessed during the
PDF-B phase. Support will be
provided to SEPA and the CBD
Steering Committee to ensure
cross-sectoral coordination through
the establishment of the Joint
CBPF Group.
The involvement of line ministries
will be supported and is anticipated
in the Concept Paper (see para 58).
The CBPF will provide strong
support for involving line
ministries, provincial agencies and
non-government partners through
the EU funding. The need for
such involvement is centrally
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
7. It would be fundamental to
clearly outline the proposal
logical progression on proposed
programme elements and
activities.
8. Clear outline of GEF and
non-GEF activities supported to
date.
9. Some of the activities
proposed in suggested phases
seem to be already on going
through GEF and non-GEF
efforts in the country.
10. Baseline needs better
definition.
11. Are there any activities in the
portfolio that could be modified
to be more supportive of the
proposed programme?
76
UNDP Response
identified in the EU programme
(particularly the inclusion of
important partners that are
currently not members of the CBD
Steering Committee.
The NDRC also plays an important
role in ensuring the appropriate
cross-sectoral coordination occurs,
particularly with regards to Theme
2.
7. The logical progression of
programme elements will be set
out for Work Programme
inclusion.
8. & 9. A clear outline of GEF
and non-GEF initiatives that have
been supported to date will be
provided for Work Programme
inclusion. The CBPF has been
designed flexibly to embrace
existing GEF and non-GEF efforts.
Existing efforts will be modified
where possible and appropriate to
contribute to the CBPF’s
results-framework, but additional
funds will not be allocated to these
activities.
10. As per point 5 above, the
baseline and alternatives will be
clearly set out and explain for
Work Programme inclusion. In
the Concept Paper the sections
“Country Driveness”, “Context”
and paras 34-51 of “Project
Rationale and Objectives” cover
the baseline.
11. The possibility of modify
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
12. Environment communication,
awareness and education would
have to be strengthened given
substantive pressures that
biodiversity and biological
resources face nationally.
13. Clear indication of Chinese
investment in biodiversity
conservation needed, not just
what is being spent on sustainable
development.
14. Regarding the approach
defined for the productive
landscape, the Secretariat
suggests to integrate (or
mainstream) biodiversity in the
larger context of natural resource
management. The productive
landscape needs an integrated
approach with regards to
sustainable livelihoods and
ecosystem integrity. The
achievement of the global benefit
in the productive landscape is
77
UNDP Response
existing initiatives is addressed by
the Concept Paper (see Annex 4)
and will be explored during the
PDF-B phase. This point is made
more explicit in the attached
outline of partner coordination.
Refer also to points 8 and 9 above.
12. The need for strengthened
environmental communication,
awareness and education is
recognized and the GEFSEC
comment much appreciated. This
will be reflected in the PDF-B
proposal.
13. The development of a joint
PRC-donor results framework
during the PDF-B phase includes a
commitment from all partners
(including the Government) to
define and implement their
investments in close relation to the
agreed results. This will be
monitored through the common
CBPF M&E system. In this way,
it will be possible to provide a
clear indication of Chinese
investment in biodiversity
conservation from both domestic
and international sources.
14. This is an excellent point and
again, much appreciated. There
are 2 elements to the issue of
biodiversity in the larger context of
land management:
(a) this point has been made loud
and clear in the EU Biodiversity
Programme. Land-use planning
is a central focus of the approach,
Pipeline Entry Review Criteria

Sustainability (including
financial sustainability)
Indicate factors that influence continuation of
project benefits after completion of project
implementation.
Concept Agreement
Review Comments
UNDP Response
closely linked to sustainable
livelihoods. Local communities
best understand that in the
context of land use planning and
management initiatives. Stronger
integration of biodiversity
concerns into these efforts is
needed. To de-link biodiversity
conservation from land
management would jeopardize
the proposed intended success.
including the involvement of the
Ministry for Land and Resources
(currently not a member of the
CBD Steering Committee, but will
be invited to participate in the Joint
CBPF Group). Therefore GEF
resources can be applied
incrementally to the EU
programme to secure globally
significant benefits in productive
landscapes
(b) links to the PRC-GEF Land
Degradation Programmatic
Approach are missing from the
Concept Paper. This is an
oversight and they will be included
in the PDF-B proposal.
Clarification of the links is also
provided in the attached outline of
partner coordination.
The sustainability of the CBPF
programme will be tracked through
(i) the joint PRC-donor results
framework, and
(ii) the multi-phase approach and
the use of indicators to assess
readiness to move from one phase
to the next. The broad
sustainability strategy is to embed
incentives for more
biodiversity-friendly decisions into
the socio-economic planning,
investment and policy making
processes.
Potential risks and assumptions
will be included at Work
Programme inclusion, as they must
The proposed financial package
is attractive but. At this stage it is
difficult to consider its potential
sustainability. Thus far, proposed
long-term financial sustainability
is argued on government capacity
to continue funding after GEF
support suns out.
No indication of potential risks
are included. Given the
magnitude and scope of proposed
projects, it could face a number
of risks and assumptions that will
need to be clearly identified and
addressed.
78
Pipeline Entry Review Criteria

Replicability
Outline the potential for repeating the project
lessons and transferring experience elsewhere.

Stakeholder Involvement /
Intended Beneficiaries
Identify major stakeholders, relevant to project
objectives:
 Private sector
 NGOs
 Communities
 public agencies
 marginal groups in ecosystem-based projects
such as nomads, transhumants, young people
and women
 others

Monitoring & Evaluation

Financing Plan
Concept Agreement
Review Comments
High replicability potential in
China given the great number of
existing protected areas that
require long-term management.
Key stakeholders identified.
UNDP Response
be developed as the CBPF
programme is developed during the
PDF-B phase.
Not required
Not required
Not required

No estimation of project
preparation costs is included.
Indicative financial package
includes:
Indicate financing instrument, if known
Not required
GEF contribution: $30-50m
Government of China: $100m
EU: $20-30m
TNC: $12-15m
CI/UNF/BP: $20-30m
Others: Not yet determined

As expected, GEF contribution
will focus on incremental costs of
achieving global environmental
benefits. Annex 5 records
potential activities of main
Cost-effectiveness
79
Not required
Pipeline Entry Review Criteria


Co-financing
Core commitments &
Linkages

Indicate the nature of co-financing: whether
it is “initial” co-financing critical to project
success or “subsequent” co-financing which
would be mobilized during implementation.

If PDF-B is requested, provide preliminary
co-financing sources and estimated amount
Identify linkages to IA’s:
 Country/regional/sub-regional/global/sector
programmes.

GEF activities with potential influence on the
proposed project (design and implementation).
Concept Agreement
Review Comments
international members.
Refer to above
Apparently no UNDP funding is
included.
A very brief description of UNDP
programme is included. It would
be important that UNDP clarifies
its capacity to actually implement
a programme of this size and
scope. Co-financing would also
need to be assured as prior
experience in biodiversity (e.g.
Medwet project) have shown
significant changes on
co-financing.
Implementation/Execution
Arrangements:
A “programmatic approach” for
biodiversity conservation and
sustainable use, and their linkages
to sustainable development is
proposed.
Given the magnitude of the
proposed “programme” and the
depth and scope of proposed
activities, it would be important
to take into account the specific
role of the GEF Secretariat,
particularly in the proposed
80
UNDP Response
Not required
UNDP is planning to commit
$100,000 from core resources to
the PDF-B as an initial investment
and sign of its commitment.
UNDP will also provide support
services to SEPA in regard to the
Joint CBPF Group. The overall
commitment of core funds to the
CBPF will be worked out during
the PDF B process based on the
CBPF programme’s logframe and
taking into account UNDP’s
planning cycle in China (UNDP is
scheduled to develop a new
Country Programme for China in
early 2005).
UNDP Capacity to Support the
CBPF:

UNDP support to China in
biodiversity started in the
early 1990’s with support for
the development of China’s
first National Biodiversity
Strategy and Action Plan.
The current portfolio is valued
at over $80 million and
includes such GEF supported
projects as: Yunnan Uplands
biodiversity project, Wetlands
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
project or framework.
In addition, given the above, it
would also be important to work
out the relationship of projects
and activities of the IAs and EAs
within the overall framework, to
avoid duplication,
misunderstanding and other
others.
81
project, South China Sea
Marine Biodiversity project,
Agro-biodiversity project

UNDP plays a key role as a
trusted and neutral partner
bringing together the various
parties involved in
biodiversity-related efforts:
government, civil society,
academia and private sector
partners. UNDP chairs the
UN Theme Group on Energy
and Environment including all
UN Agencies working on
sustainable development. The
Theme Group is being
expanded to a Partnership
Forum which will also include
government, NGO and private
sector partners, to meet
regularly to discuss burning
issues related to sustainable
development. UNDP
participates in the Informal
Donor Group on Environment
facilitated by the Dutch
Embassy. UNDP is a member
of the China Council for
International Cooperation on
Environment and
Development (CCICED), and
actively participates in the
work of its Task Forces

UNDP’s Energy and
Environment (E&E) team in
China consists of 9 staff
members – 2 international and
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
7 national - headed by the
Assistant Resident
Representative (international).
All have a solid academic
background in environment
and extensive experience in
working with sustainable
development issues.

The E&E Team will be
strengthened by recruiting a
senior-level Environment
Advisor this spring who will
provide strategic guidance
especially in the programme
formulation, advocacy,
partnership building and
programme implementation.

Additional staff members will
be hired as needs arise.
Further, the UNDP China
Country Office benefits from
strong expert support from
sources within the UNDP
system. We have an effective
global network connecting all
136 Country Offices
worldwide for daily
discussions, expert advice,
experience sharing and best
practices. The Sub-Regional
Resources Facility (SURF) in
Bangkok provides substantive
support in form of expert
referrals, support in
programme formulation and
implementation.
Please see the attached outline

82
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
of partner coordination for the
role of the GEFSEC and GEF
Agencies

Consultation, Coordination
and Collaboration between
IAs, and IAs and ExAs

Identify relevant activities of other IAs (and
ExAs) in the country/region.

Outline coordination, collaboration between
IAs (and IAs and ExAs) in project design, if
any.
83
There are missing links to the
PRC/GEF LD Partnership and the
approach in the productive
landscape.
The link to the Land Degradation
partnership is important not only
from the conceptual point of
view. The proposed concept
mentions land degradation as
threat to biodiversity. The
Secretariat should make sure that
best practices from the LD
partnership will be used and up
scaled in the UNDP partnership.
This is so as projects under the
LD partnership are not only
OP#15 projects but also OP#12
projects, and hopefully others,
addressing land degradation as a
crosscutting issue. In addition, it
is important to use also the
capacity of Chinese organizations
involved in the LD partnership in
order to promote the in-country
exchange of expertise.
UNDP could benefit from the
experience in setting up a
partnership framework of this
nature. ADB as lead agency and
IFAD as partner are not even
mentioned in the concept
document. The structure of the
The missing links to the PRC-GEF
LD Partnership are recognized.
They are rectified in the attached
outline and will be included in the
PDF-B proposal. The CBPF
includes all donors and the Joint
CBPF Group provides a
mechanism to ensure all GEF
Implementing Agencies and
Executing Agencies can participate
based on their country programme
objectives, core competency and
comparative advantage.
The CBPF has been discussed with
UNEP and the resultant links are
indicated in the Concept Paper. It
was also discussed with the World
Bank prior to pipeline submission.
Subsequently, the proposal for
partner coordination (attached) has
been discussed with World Bank
(Robin Broadfield), UNEP (Mark
Zimsky) GEF counterparts. The
response has been very positive.
WB gave its support to the CBPF
and looks forward to participating
in the partner coordination
mechanisms. UNDP China
Country Office has also had
consultations among line
ministries, international donor
community, NGOs and private
sector. A Roundtable Meeting on
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
BD framework is not very clear
yet and will need further
discussion.
84
UNDP Response
CBPF was held on 29 September
2004 in Beijing. 49 people from
over 30 organisations attended the
Meeting. EU, WB, TNC, WWF,
UNESCO, Wetlands International,
Norwegian Embassy, IUCN,
Institute of Environmental
Development and Conservation
International, etc. all expressed
their strong interest in being part of
the Partnership. EU now decided to
their funds to UNDP for
implementing their 30 million
Euros EU-China Biodiversity
Programme to best explore
snergies between this CBPF and
their Programme.
Institutional coordination is
complex and needs to be addressed
carefully. The PDF-B will
dedicate significant focus to ensure
there is meaningful partner
coordination and the capacity to
ensure such coordination is
sustainable.
Further consultations with SEPA
and CBPF donor partners will take
place during the preparation of the
PDF-B proposal in order to finalise
the partner coordination
arrangements. UNDP will work
closely with the ADB to ensure
up-to-date lessons and feedback
from the Land Degradation
Programmatic Approach are
included. Opportunities for
coordinating PDF-B activities with
the Land Degradation Partnership
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
initiatives will be set out in the
PDF-B proposal and addressed
during the PDF-B phase.

Implementation/execution
arrangements

Explain how the IA will ensure a high quality
technical and financial implementation of the
project (e.g. international project coordinator,
supervision by country-based staff or HQ,
UNOPS, arrangements with other involved
agencies.
Council
Convention Secretariat
GEF Secretariat
Not required
Respond to comments from Convention Secretariat.
Respond to comments from GEFSEC on draft
project concept document.
85
The Secretariat would like to
have upstream consultation and a
bilateral meeting prior to
completing its view on the
concept.
Not required
In response to Mario’s comment
regarding the status of the
Wetlands project, this is also an
issue of concern for UNDP.
Significant time and effort has
been spent since the mid-term
evaluation tying to ensure
necessary changes to the project
arrangements are made.
UNDP-Beijing has worked
extremely closely with the State
Forest Administration (SFA),
AusAID, the project CTA and
UNDP-GEF on this and has
discussed the concerns with senior
officials in SFA, as well as SEPA
and MoF. The UNDP-GEF
Deputy Executive Coordinator has
made a special mission to Beijing
as a result, the UNDP-GEF
Regional Coordinator has made 4
missions to assist since the
mid-term evaluation, the UNDP
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
Resident Representative is due to
have his second meeting with the
SFA Administrator next week to
discuss the project and
UNDP-Beijing Programme
Officers are in daily contact with
the project and have at least
weekly meetings to resolve the
issues. UNDP is confident that
significant changes to ensure the
successful re-establishment of
project implementation will be
finalized rapidly. UNDP can
fully guarantee that the project will
not be allowed to continue without
substantive responses to the
mid-term evaluation.
Other IAs and relevant ExAs
Respond to comments from other IAs, ExAs on
draft project concept document
86
World Bank Comments 11 Feb
2004:
The World Bank welcomes this
ambitious proposal to develop a
comprehensive national
biodiversity conservation
programme. We think it
addresses the key issues, but we
have two strategic concerns (a) it
may be excessively focused on
national planning relative to
implementing conservation on the
ground and (b) it may not
adequately involve the provincial
administrations that are
responsible for biodiversity
conservation (i.e. is too central
government-focused). In
addition we think the proposal
(a) the need to focus on
implementing conservation on
the ground as well as national
planning is acknowledged and
has been also noted by the
Government of China. It is an
important issue that will be
addressed during the PDF-B
phase. It is also worth noting
that the 28m euro EU
Programme will be managed
by UNDP and includes 22m
euro for field level projects.
By building on synergies with
these activities, the CBPF will
have significant ground-level
focus.
(b) local implementation
of biodiversity policies and
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
can be strengthened in two
specific respects:
(1) It should better reflect the
many strategically very
significant "baseline"
conservation activities that have
been completed in recent years
and/or are ongoing. Of
particular relevance is the State
Forestry Administration's
substantial and innovative nature
reserves management
programme, which has been and
currently is supported by the
GEF, EU, WWF and the World
Bank through the recently
completed Nature Reserves
Management Project and the
on-going Sustainable Forestry
Development Project. For
example, the former project
developed a PA management
training curricula and completed
both a PA financing options
analysis and a
poverty/biodiversity nexus study.
And the latter is replicating the
protected areas management
tracking tool throughout the
entire
SFA Nature Reserves system (2/3
of China's total nature reserves).
This under-statement of the
baseline means there is
considerable duplication between
the proposed project activities
and completed or on-going work,
87
UNDP Response
development planning
processes is identified as a
critical issue (part of the
“horizontal-vertical” issue
in China) and will be
addressed specifically in
sub-theme 2.2 of the
programme.
(1) The need to fully detail the
baseline for Work Programme
inclusion is acknowledged.
See points 5 and 10 under “Project
Design” above. See also footnote
2 of the attached outline of partner
coordination. UNDP would
welcome WB’s contribution to this
area of the CBPF.
(2) A full description of the
EU-supported activities will be
included in the PDF-B proposal.
The EU proposal is just being
finalized and UNDP is in the last
stages of negotiations, so
unfortunately it has not been
possible to detail the EU role in the
Concept Paper.
For clarification, it can be noted
that UNDP expects to manage the
EU Programme as cost-sharing
(funds administered by UNDP).
The Programme comprises two
main components:
 6m euro for Policy
Advice and Central
Capacity Building
 22m euro for field
projects
Pipeline Entry Review Criteria
Concept Agreement
Review Comments
UNDP Response
particularly with respect to
Theme 3. To overcome this
weakness, we suggest the SFA,
the World Bank and WWF be
invited to contribute substantively
to the development of the project
proposal.
(2) The description of the
EU-supported activities in the
project proposal should be
harmonized with the scope of the
EU-China Biodiversity
Programme as summarized in the
EU's project documents. This
would clarify the EU's role.
STAP
Respond to comments from STAP on draft project
concept document.
Review by expert from STAP
Roster
Not required
Not required
88
Attachment IV-1
China Biodiversity Partnership Framework (CBPF)
Approach to Partner Coordination13

The CBPF works on a first principle that it is based on leadership and overall policy
guidance from the Peoples Republic of China (PRC) Government. This guidance will
come from the National Development and Reform Commission (NDRC), Ministry of
Finance (MoF) and the State Environmental Protection Agency (SEPA), through the
Chair of the CBD Steering Committee. The CBD Steering Committee is the core body
for the CBPF. The CBPF aims to strengthen the capacity of the CBD Steering
Committee to contribute to biodiversity-related policy matters and facilitate partner
participation.

The CBPF will build on lessons from the World Bank-UNDP collaboration in the Third
Environment Programme in Madagascar (EP3), the PRC-GEF Land Degradation
Programmatic Approach and the Energy Efficiency Programmatic Approach in China.
In particular the CBPF will have two main characteristics:

It will have a joint PRC-donor results framework that will guide the contributions
of all partners (lesson from Madagascar EP3)

It will support a formal mechanisms for all partners to coordinate - the Joint
CBPF Group (lacking from current approaches in China, but recommended by
the UNDP Energy & Environment Outcome Evaluation, 2003)

The CBPF will not aim to develop a joint programme, but will be supported by a series
of parallel projects

The parallel projects would cover three groups:

New and additional projects funded by: Government, UNDP-GEF, WB-GEF,
UNEP-GEF, UNDP-EU, UNF-CI, TNC, SICP, IUCN, others

Existing projects under implementation or development, modified as necessary14:
Government, UNDP, WB, UNEP, INGOs, IFAD, others

Coordination with relevant projects and initiatives under the PRC-GEF Land
Degradation Programmatic Approach

This will enable a direct linkage between financing source and results on the ground

The CBPF will develop a joint PRC-donor results framework that sets out the expected
results and agreed results, output and progress indicators
13
It should be noted that this outline of the CBPF framework is still only provisional and will be fully worked out
and agreed during the PDF B as the details of the work to be done and the commitments of the various parties
become clear.
14
Note that the Concept Paper has been designed to accommodate existing GEF initiatives with little modification.
The WB-GEF and UNDP-GEF Protected Area projects with SFA will be used as central planks in Theme 3.
Similarly, the UNEP-GEF concept in the Quinling Mountains will be used as the central plank of Theme 4 efforts to
operationalise Ecological Functioning Conservation Area. The UNEP-GEF concept will also contribute to other
elements of the partnership.
89

Participating donors will commit themselves to organize their programmes in such a
manner that they contribute to the expected results laid out in the CBPF results
framework

Participating donors will also agree to measure the success of their contributions to the
CBPF based on the commonly agreed programme impact indicators set out in the joint
results framework

All participating parties will agree to be held accountable for their contributions by
having them subject to a common CBPF M&E system. The M&E system will be
results-based and part of the CBPF’s overall adaptive management strategy

Additional measures will be considered during the PDF-B, including (1) participating in
joint outcome evaluations across projects within the CBPF; (2) coordinating the
preparation of annual project implementation reviews; (3) undertaking joint field
supervision missions; and (4) approving annual work plans prepared by the local
implementing agents at sites targeted by two or more CBPF partners
Institutional Mechanisms to Support Partner Coordination
The PDF-B will critically review the institutional arrangements proposed in the Concept Paper,
as the programme is developed.
The PDF-B will support the CBD Steering Committee to develop a Joint CBPF Group for all
CBPF partners. It will be chaired by the CBD Steering Committee Chairman and co-chaired by
a representative of the CBPF donor community. It is expected that all relevant members of the
GEF family (GEFSEC, UNDP, WB, UNEP, ADB, IFAD) will participate. The first co-chair
for the PDF-B phase will be the UN Resident Coordinator in China, but the co-chair position will
become rotational.
The Joint CBPF Group will be responsible for developing and agreeing the joint PRC-donor
results framework for the CBPF. It will ensure that government and donor investments are
defined and implemented in close relation to the agreed results. The roles and responsibilities
of CBPF partners will be agreed and established. It will also approve the common CBPF M&E
system and any additional coordination measures. It will meet quarterly during the PDF-B
phase or as required. The Joint CBPF Group will also provide comments on drafts of the CBPF
programme and appraise the proposal before it is submitted to the GEF Council.
90
RESPONSE TO GEF SECRETARIAT REVIEW COMMENTS ( 21 Dec 2004)
Country: China
Project Title: China Biodiversity Partnership Framework
GEFSEC Project ID: 2435
UNDP Project ID: 2902
Operational Program: 1,2,3,4
Implementing Agenc(ies): UNDP
The following are the main comments provided in the GEFSEC review, and responses thereto:
GEF SEC COMMENTS
1. Although the PDFB activities
reflect a strong focus and approach
at the framework/program level (to
develop a strong coordination
mechanism, national level policy
and planning, institutional capacity
building and others), the project
level activities to develop
demonstrative conservation projects
on the ground remain weak and
vague. Considering that the GEF
funding for this program has two
UNDP RESPONSE
In accordance with subsequent discussions with GEFSEC, the proposal has been split into
two separate PDF-B requests. The present proposal focuses on development of the CBPF
Framework only, and site-level demonstrations will be addressed in a parallel proposal.
REF:
Part II: Project
Development
Preparation
revised as per
discussions
with GEFSEC
in June 2005.
91
GEF SEC COMMENTS
pillars, one to develop an overall
partnership framework at the
national level, and another to
develop site specific demonstrative
projects based on existing gaps (in
parallel with ongoing and new
initiatives with other donors), the
PDFB activities should reflect
better balance and phased approach
for these two types of initiatives. In
this context, pls consider the
following issues and make it
explicit within the PDFB proposal:
a) Further clarify and explain
process to develop new site specific
demonstrative projects under the
program and each of the four
themes, including site selection
criteria development and, problem
analysis (including root cause
analysis), incremental cost analysis,
institutional analysis and other
requirements for each project.
b) Considering the scale and
complex nature of the project and
learning from other projects,
consideration to have a working
UNDP RESPONSE
REF:
b) The idea of working-groups for specific themes and areas has been actively discussed
amongst Partnership members, and will be further considered during the PDF-B phase.
There are clear advantages in such an approach, particularly for partners who have limited
resources and wish to focus on specific aspects of the overall initiative.
92
GEF SEC COMMENTS
group or task team among the
interested donors and relevant
government agencies for each of the
four themes, so that clear objectives
as well as relevant and strong
demonstrative projects are
developed under each theme with
strong ownership.
2. UNDP has responded during the
pipeline entry that they will provide
further information in the PDFB
proposal on both: 1) EU China
Biodiversity Program; and 2) lesson
learned and linkages to the GEF
Land Degradation Programmatic
Approach project. The PM did not
find additional information on these
projects in the PDFB proposal.
Considering the very important
collaboration and linkages with
these projects, pls provide
additional information and lesson
learned from these projects.
UNDP RESPONSE
However, as the Ministry of Finance has pointed out, the four themes are inter-linked in
nature and thus it is not always optimal for activities within individual thematic areas to be
developed in isolation. The working-group idea will be explored further during the
PDF-B formulation phase, through the Joint CBPF Group and other collaboration
mechanisms.
REF:
The EU-–China Biodiversity Programme aims to conserve specific ecosystems in China by
strengthening biodiversity management. It will develop the capacity of SEPA, as
secretariat of China Steering Committee to implement the Convention on Biological
Diversity, and establish effective systems of monitoring and feed-back, and seek to
strengthen the effectiveness of the Steering Committee itself. Innovative and replicable
mechanisms will be developed to integrate and strengthen institutional mechanisms for
policy implementation from provincial to local level through a series of ‘Field Projects’, to
be implemented in a variety of institutional and ecological local settings. The Programme
will emphasise environmental awareness and establish a common platform for
environmental communication and visibility. The attached copy of Financing Agreement
between the EC and PRC in Annex B which has already signed by the Commission and is
waiting for counter-signature by Government of PRC provided a detailed description of the
EU-China Biodiversity Programme.
At the highest level, The EU thinks that the EU-China Biodiversity should take place
within the China Biodiversity Partnership Framework, although still under development.
And operationally, the EU has decided to transfer 27.5 million Euros of the total budget of
30 million Euros to UNDP for implementing the EU-China Biodiversity Programme partly
because UNDP is also the focal point for the CBPF and synergies between the EU-China
Biodiversity Programme and the CBPF could be sought through this arrangements. The
Reference to
Paragraph
121
Reference to
ANNEX A
of this
Response:
Financing
Agreement
between the
European
community
and the
Government
of the
People’s
Republic of
China
93
GEF SEC COMMENTS
UNDP RESPONSE
Contribution Agreement between the EC and UNDP will be signed soon after the
Financing Agreement has been counter-signed.
REF:
The proposed Partnership Framework will link to and coordinate with the GEF Land
Degradation Programmatic Framework through a variety of channels, both within the
Executing Agencies (ADB and UNDP) and through established Government coordination
channels. Key Government agencies such as MOF, NDRC and SEPA are closely
involved in both initiatives and are ensuring coordination and information-sharing within
their respective organisations. Specific linkages and information-sharing will also be
established through the China GEF Office, which has a mandate to coordinate all GEF
programmes and projects in the country and serve as a clearing-house for lessons learned
and coordination requirements.
3. Particularly, with the anticipated
EU co-finance of $30M at the
project implementation phase, we
would like to have further
information on the EU's role and
participation, including possible
One of the lessons already learned from those two initiatives is that the relationship
between individual demonstration projects and the overall framework could be further fine
tuned to make individual projects better fit into the framework and more relevant to the
overall objectives the framework intends to achieve. Another lesson learned from the GEF
Land Degradation Programmatic Framework is that partnership with bilateral donors and
NGOs could be further developed. Lessons learned from these and other prior initiatives
also indicate a need for better evaluation mechanisms for proposed demonstration projectsthis lesson is reflected in the proposed Output 3.
The formulation process for the EU-China Biodiversity Programme has been carried out in
advance of the proposed UNDP/GEF project. The Programme is expected to be signed in
May 2005, with implementation starting immediately thereafter. Therefore, rather than
providing co-financing to the PDF-B implementation, the formulation process of the
EU-China Biodiversity Programme will provide the baseline information and consultative
and collaborative mechanisms on which the PDF-B will build. This contribution has not
94
GEF SEC COMMENTS
co-finance, to the PDF-B
implementation.
4. The proposal asks for a PDFB
budget of $500,000. While the
regular PDFB amount is $350,000,
pls provide clear justification for
the larger amount requested.
UNDP RESPONSE
been specifically reflected as parallel financing for the PDF-B since most of it will have
been completed prior to PDF-B inception, however the information collected and
stakeholder buy-in and awareness-raising achieved will significantly assist the PDF-B
process.
In accordance with subsequent discussions with GEFSEC, the proposal has been split into
two parallel PDF-B requests, both of which are within the $350,000 limit for PDF-Bs.
REF:
95
Part IV ANNEX A Financing Agreement between the European community and the Government of the People’s Republic of China (see
separate PDF file)
- 96 -