to
the Sixth Meeting
of the
Conference of Contracting Parties
to the
Convention on Wetlands of International Importance
Especially as Waterfowl Habitat (Ramsar),
Brisbane, Australia - March 1996
1. Basic informantion on measures taken by Contracting Parties
1.1 The name and address of the Administrative Authority responsible for implementing the Convention in South Africa is:
1.2 Since December 1992, three sites (Ndumo, Natal Drakensberg Park and Seekoeivlei) are to be designated by South Africa for the List of Wetlands of International Importance:
1.2.1 Ndumo
Ndumo Game Reserve (10 117 ha, 26o53'S, 32o16'E,) is situated at the junction of the Usuthu and Pongolo floodplain systems. The Pongolo river runs through the reserve, from north to south, while the Usuthu river forms the northern border of the reserve and the international border with Moçambique. There are two major semi-permanent floodplain pans and many smaller ephemeral pans within the reserve.
The Pongolo floodplain has been estimated to have yielded up to 500 000 kg of fish per annum to the local people in the early 1980's. Overfishing in the areas outside the reserve has resulted in the breeding stock there being greatly reduced while that in the reserve is intact. Upstream migration of fish during flooding means stock for the entire floodplain is protected within the reserve.
1.2.2 Natal Drakensberg Park
The Natal Drakensberg Park (242 813 ha) is crescent-shaped, and stretches from latitude 20o 05' to 29o 55' South, and longitude 29o 45' to 29o 44' East.
The Natal Drakensberg is the most important high altitude watershed in southern Africa, in terms of water yield. It is the principal water source (catchment) area for the three largest rivers in Natal (the Tugela, Mkhomazi and the Mzimkulu), which are of major significance for the industrial economy of both Gauteng and Kwazulu-Natal. The Tugela-Vaal Scheme (which exports water from Kwazulu-Natal to Gauteng), is totally dependent on the Tugela catchment basin.
The wetlands of the Drakensberg play a key role in the hydrological cycle, and are of particular significance for the maintenance of regular streamflow patterns, and the high water quality levels. Within Kwazulu-Natal numerous farming communities, villages, and a number of large towns, are directly dependent on the above rivers for their water supplies.
The Drakensberg catchments consist of an inter-connected system of wetlands, ranging from open water bodies such as mountain tarns, a variety of vleis and marshes, to an intricate network of stream and river courses. These wetlands are present throughout the altitudinal gradient of the mountains, from the Afro-alpine to the Afromontane Belts. The networks of interconnected wetland systems are distributed in a complex mosaic, occupying a variety of positions in the landscape, ranging from small hanging wetlands, high on valley sides, down to the extensive watercourses.
The Natal Drakensberg, which forms part of the eastern escarpment of southern Africa, is an extremely rugged area that includes three altitudinal zones: the Montane zone (1280 - 1830 m); the Sub-Alpine zone (1830 - 2865 m) and the Alpine Zone (2865 - 3500 m).
The only Afro-alpine vegetation in southern Africa is shared between Lesotho, the Eastern Cape and Natal. The Afro-alpine Belt contains extensive wetlands, which, by virtue of their extremely limited distribution on the Sub-continent, possess great rarity value. The most extensive and best conserved Afro-alpine wetlands in the country are conserved in the Park.
Also present are the most important Montane Belt wetlands in Natal. The Montane Belt is somewhat more widespread in Kwazulu-Natal than the Afro-alpine Belt, but the Park contains the most extensive and some of the best conserved Montane wetlands in the country.
The Drakensberg wetlands are of major importance for nature conservation, because of the variety of natural communities associated with them. These communities support an impressive list of endemic and Red Data plants and animals.
Almost the entire wetland system is in pristine or near-pristine state, since a high proportion of the Natal Drakensberg Park has been in public ownership and conserved as one or another form of protected area, from the turn of the century.
1.2.3 Seekoeivlei
The Seekoeivlei Nature Reserve (2727'-2741'S and 2934'-2937E, 3721ha) is a newly proclaimed nature reserve in the Free State. The wetland consists of a floodplain drained by the Klip River, a tributary of the Vaal River. The floodplain has numerous oxbow lakes (ca 220) which are seasonally flooded. This is a wetland of particular importance as it is the largest one on the southern African Highveld.
The Seekoeivlei wetland plays a vital role in regulating flow and in maintaining the highest water quality standards of the upper Vaal River, which is the major water source of the highly industrialized and densely populated Gauteng.
It performs an important ecological role in that it supports large numbers of locally resident as well as migratory waterbirds. Although the wetland does not have a very high plant diversity, it harbours a rich species diversity of waterfowl and other birds associated with water.
1.3 Contributions to the the Ramsar Budget made by South Africa to the Ramsar budget since December 1992 are:
- Annual contribution of SFR 10 013.00
- Support for three delegates from other countries to attend the African Regional Meeting held in Nakuru, Kenya during 1994.
2. Further information on wetlands designated for the List of Wetlands of International importance
2.1 No wetland in South Africa has been deleted from the List or had its boundaries restricted. It is likely that the Orange River Mouth Wetland will have its boundaries in South Africa restricted when the border between South Africa and Namibia is moved to the centre of the Orange River, but it is hoped that Namibia will include that area within its designated wetlands, and possibly even extend its total area.
2.2 There has been no change in the legal status or degree of protection of listed sites in South Africa since December 1992.
However the complex known as the Greater St Lucia Wetland Park comprising of the St Lucia System, the Turtle Beaches and Coral Reefs of Tongaland, Lake Sibaya, and the Kosi System have been proposed for World Heritage Site status. The nomination is dependant on acceptance by the communities affected by such designation, as well as South Africa ratifying the convention.
2.3 The following listed sites' ecological character has changed, is changing, or is likely to change as a result of technological developments, pollution or other human interference:
2.3.1 Barberspan
At the turn of the century, the upper reaches of the Hartz River were diverted to flow through its fossil channel into Barberspan, probably changing it from intermittantly drying up to being a perennial pan. It was the permanence of water that made the pan so important in the area, leading to its designation to the List by South Africa in 1975.
Indications from recent reseach in progress indicate that slow siltation is taking place, which in the long run may well change the ecological character of the site. Further research is needed to confirm these suspicions.
As the site was designated with this process well under way, it is felt that Barberspan should not be placed on the Montreux Record. However the process will be monitored by South Africa.
2.3.2 Blesbokspruit
Grootvlei Proprietary Mines Limited, whose properties are adjacent to the listed wetland, are threatened by underground flooding. The rate of this flooding is unpredictable, and at some stage will flood the shafts of the mine. Predictions have been made that if the mine does not pump the water out of the mine, the mine will be flooded and the water will eventually rise to the surface in the Nigel area. In terms of the Minerals Act, 1991 (Act 50 of 1991), an Environmental Management Programme Report (EMPR) was submitted in which permission was requested to pump between 40Ml and 65Ml of this floodwater daily from the mine into the listed site, Blesbokspruit.
The Department of Mineral and Energy Affairs requested that the Department of Environmental Affairs and Tourism make a decision as to whether it is acceptable to pump this underground mine water into the Blesbokspruit or not.
No information about the impacts of an altered hydrological regime and changes in water quality on the listed site are available. Uncertainty about the quality and quantity of the discharge further complicates the evaluation. In addition, almost no information is available concerning alternative options and mitigation measures. The consequences of the mine closing also needed to be evaluated. Projections made suggest that the discharge water will be of poor quality, and may not meet the Department of Water Affairs and Forestry's minimum requirements for the water users in the system. This is also of major concern since the Blesbokspruit is a feeder to the Vaal River system, which supplies water to most of Gauteng.
Given the lack of information, and taking into account South Africa's obligations in terms of Article 3.1 of the Convention, the Department of Environmental Affairs and Tourism recommended that an environmental impact assessment (EIA) be undertaken. In response, the Director General of Mineral and Energy Affairs on 28 June this year and in terms of section 39 (5) of the Minerals Act (No 50 of 1991), appointed environmental consultants to conduct an EIA on the discharge of mine water into the Blesbokspruit.
The details of the terms of reference for the EIA have been determined in consultation with the Department of Environmental Affairs and Tourism, the provincial nature conservation agency and the Department of Water Affairs and Forestry.
At this stage, and until further information regarding a potential change in ecological character of the site is available, it is not necessary to place the site on the Montreux Record. This will however remain an option should more information become available which could imply that the discharge of underground mine water may change the ecological character of the site.
2.3.3 Langebaan
Since the completion of the Sishen-Saldanha railroad in the early 1970's and the commitment of the Saldanha harbour as a major port for the export of iron ore, the town of Saldanha Bay has experienced gradual industrial development. Consequently, the threat of pollution from industry, urbanisation and shipping to the proposed listed site was noted in the data sheet submitted when South Africa designated Langebaan to the List of Wetlands of International Importance in 1988. It is also worth noting that the threat of pollution was reported in the South African National Report in 1989. This in turn was published by the Bureau in the Directory of Wetlands of International Importance which was prepared for the Fourth Meeting of the Conference of the Contracting Parties in Montreux, Switzerland, during 1990.
The South African Iron and Steel Corporation (ISCOR) recently announced that it is soon to embark on the construction of a Corex steel smelter near Saldanha Bay. Controversy surrounding this project has resulted in various requests that the likelihood of change in the ecological character of the site be brought to the attention of the Ramsar Bureau. However, information presently available is not sufficient to indicate whether or not the ecological character of the site is likely to change as a result of this development and therefore does not warrant placing Langebaan on the Montreux Record yet.
In order to redress this lack of information, the Minister of Environmental Affairs and Tourism, Dr De Villiers, appointed a Board of Investigation into the Saldanha Steel Project on 7 June 1995 (in terms of section 15 of the Environment Conservation Act (Act 73 of 1989)). The Board of Investigation, chaired by Judge Jan Steyn, is to advise the Minister on:
- The status and implications of decisions that were taken in the past by the government authorities in accordance with developments in the Saldanha Bay area, and in accordance with undertakings which have already taken place;
- An evaluation of the objections raised against the proposed industrial development;
- Which powers the respective authorities have in this regard including the relevance of section 31 (A) of the Environment Conservation Act; and
- Any other issue which is a relevant consideration in the evaluation of the matter.
Since then however, a new issue has emerged which may impact on the ecological character of the listed site. South Africa and Iran are on the brink of finalising an agreement that will allow Iran to use the oil storage facility at Saldanha Bay. An envisaged tripling of oil shipping traffic is certainly a major concern and may have far reaching environmental implications especially with regard to the expansion of harbour facilities and the risk of oil pollution. At this stage, the situation is being carefully monitored by the Department of Environmental Affairs and Tourism.
Langebaan is not be to placed on the Montreux Record unless the Steyn Commission report recommends otherwise.
2.3.4 Orange River Mouth Wetland
The salt marsh on the southern bank of the Orange River, an integral part of the listed site has recently collapsed. It is apparent that the rapid degradation of the salt marsh is the result of a combination of impacts, both at and upstream of the listed site. These include:
- poor mouth management, and the consequent reduction in back-flooding frequency;
- dam construction upstream which has reduced the incidence of short return period floods;
- efforts to control mosquitoes which prevented tidal exchange between the estuary and intertidal salt marsh;
- the leakage of process water into the salt marsh which caused the dieback of affected vegetation and the mobilisation of marsh sediments; which in turn produced:
- a snowball effect of windblown dust which coated downwind vegetation foliage, the net result of which was an exponential rate of salt marsh collapse and a rapid change in ecological character of this part of the site.
In terms of the Minerals Act (No 50 of 1991) the diamond mining company, Alexkor, has drawn up an Environmental Management Programme Report. This report includes a proposed salt marsh rehabilitation programme. The rehabilitation or management programme will attempt to:
- re-instate the tidal exchange between the estuary and the salt marsh;
- control the leakage of process water into the salt marsh;
- manage the marsh substratum towards the tolerance range of salt marsh species;
- temporarily stabilise exposed marsh surface to eliminate windblown sediment impacts; and
- re-establish salt marsh vegetation according to natural zonation patterns.
An interdepartmental committee, the Orange River Mouth Interim Management Committee (ORMIMC) has been established. This committee, established by the Department of Environmental Affairs and Tourism is responsible for advising Alexkor on the implementation of their EMPR, and monitoring the rehabilitation of the listed wetland. The committee is made up of representatives from the Department of Environmental Affairs and Tourism, the Department of Water Affairs and Forestry, the National Parks Board, the Northern Cape Nature Conservation Service, Ematek (C.S.I.R.) and Alexkor from South Africa while Namibia has representatives from the Ministry of Environment and Tourism and the mining company, Namdeb Namibia.
Alexkor in turn has made it clear that the company does not intend to undertake any mining activities within the borders of the listed site. They also seem committed to scaling down on activities impacting on the wetland and have undertaken to address past impacts by for example removing a waste dump site and abattoir within the borders of the site. A section of the site is also used for agriculture by Alexkor while the Alexander Bay sewage oxidation ponds are situated within the borders of the site.
The ORMIMC will meet at least once a year to follow up on developments and monitor the situation. It is envisaged that the establishment of this management committee will not only be the first step towards improving the state of the wetland, but will foster better cooperation between all the stakeholders concerned with the Orange River mouth.
In terms of Article 3.2 of the Convention, and Recommendation 4.8 of the Conference of Contracting parties, the Orange River Mouth Wetland is to be placed on the Montreux Record.
2.3.5 Verlorenvlei
The water flow at the mouth of the lake has been manipulated over a number of years by obstructions illegally placed there. While having advantages to the local inhabitants, the backflooding seriously disadvantaged people upstream of the mouth. Changes in the salinity and hydrological regime had effects on the bird and fish life of the system.
In May 1992 the issue came to a head when the worried farmers approached their MP for help. As a result of a meeting between the relevant ministers, the then provincial administrator and senior officials, it was agreed that a committee of officials under the leadership of the Department of Environmental Affairs and Tourism would be responsible for drawing up a plan of action for the wetland.
The report, submitted in December, 1993 by the Department of Environmental Affairs and Tourism was accepted by the Minister and the provincial MEC.
The offending causeway is to be removed and a bridge is to be built by the Regional Services Council. In order to minimise the negative effects of groundwater extraction and multiple farm dams in the catchment area, the Department of Water Affairs and Forestry, in conjunction with the Department of Agriculture will plan and build a supply dam.
The listed site is on state land. This land is in the process of being transferred to the provincial administration with the intention that it be declared a provincial nature reserve.
As the problems are under control, Verlorenvlei should not be placed on the Montreux Record.
2.4 The status of the St Lucia System (entered onto the Montreux Record in 1990, subject to the Monitoring Procedure, initiated in 1991), which was mentioned in Kushiro REC C.5.1 (Ramsar sites in the Territories of Specific Contracting Parties is unchanged.
The environmental impact report on the proposed mining on the Eastern Shores of St Lucia was completed in 1992 and made available for comment. Comments were collated and published in 1993. The final phase of the EIA was the assessment of the independant review panel. The review panel was reponsible for:
- the impartial and critical review of the execution of the study;
- reviewing the EIR;
- conducting public hearings into the findings of the EIR;
- giving its judgement about the relative significance of the issues addressed in the EIR; and
- submitting its recommendations;
Their report with their recommendations was released on 10 December 1993. In essence the review panel recommended that no mining should be allowed in the Greater St Lucia Area, that the area should be declared a national park and should acquire World Heritage status.
The decision by the then Cabinet as to whether the proposed mining should be permitted was witheld pending the elections held in March 1994. Subsequently, the Government of National Unity has not made a decision pending the decision of the land claims commission, as a number of groups have laid claim to the area.
The St Lucia System is to remain on the Montreux Record.
2.5 Management plans have been prepared for the following listed sites in South Africa:
Barberspan, Blesbokspruit, De Hoop, De Mond, Langebaan, Orange River Mouth Wetland, St Lucia System, Turtle Beaches and Coral Reefs of Tongaland, Verlorenvlei, Wilderness Lakes and one of the new designated sites, the Natal Drakensberg Park.
Draft management plans are in place for the Kosi System, Lake Sibaya, and the other two new designated sites (Ndumu and Seekoeivlei).
2.6 The St Lucia System's boundaries are to be extended to include the wetland system lying within Mkuzi Game Reserve, namely the floodplain at the confluence of the Msundusi and Mkuze rivers, including the Nsumu Lake.
3. Wise Use of wetlands
3.1 A national wetland conservation policy is in the process of development. A draft policy is being revised in order to align itself with the new constitution and the Reconstruction and Development Programme.
3.2 A national Ramsar/wetland committee was established in South Africa in 1991 as a sub-committee of the Committe for Environmental Coordination in terms of the Environmental Conservation Act (No 73 of 1989). The composition of this committee has been revised in line with the interim constitution of the Government of National Unity. Convened and chaired by Department of Environmental Affairs and Tourism, the committee consists of representatives of the Department of Environment Affairs, the Department of Water Affairs and Forestry, the Department of Foreign Affairs, the Department of Agriculture, the National Pasks Board and from each of the nine new provinces. Individuals from NGO's and/or CBO's (community based organizations) are invited to participate in the committee's proceedings when relevant.
3.3 A national inventory of wetlands in South Africa is in progress. This is being undertaken by the Department of Environmental Affairs and Tourism. To date we have information on some 690 wetlands (obtained from literature), with locations of another 1200 mapped on the Department's GIS. Field verification has started.
4. International cooperation
4.1 International consultation on shared wetlands (Article 5) are taking place at two of our wetland systems, the Orange River Mouth Wetland and Ndumu.
4.1.1 Orange River Mouth Wetland
Besides the actions being taken as described in 2.3.4 above, it is however envisaged that while the rehabilitation measures are necessary, they may not solve all the problems in the wetland if carried out in isolation. Maintaining the water requirements of the mouth will require a coordinated strategy involving all the role players at and upstream of the site. The Department of Environmental Affairs and Tourism is therefore directly involved at steering committee level with the Orange River Replanning Study currently being commissioned by the Department of Water Affairs and Forestry. This study will provide a basis for government policy on the allocation of water in the Orange River Basin. This is also expected to provide a forum for negotiation concerning water allocation to the Orange River Mouth Wetland. In addition, the Department is involved with the Orange River Environmental Task Group which met for the first time in August this year. This task group will determine the environmental water requirements of the system as well as the impacts that proposed developments will have on the environment.
4.1.2 Pongola/Rio Maputo/Usuthu
The Pongola River-Rio Maputo-Usuthu River floodplains are located in South Africa, Moçambique and Swaziland respectively. The area is characterized by widespread poverty, thus subject to major development proposals. The area is also environmentally sensitive. It is one of the globally recognized centres of plant diversity as well as being an extensive wetland system. Any development intervention would therefore have to recognize this and preferably be undertaken in a socially, economically and environmentally responsible manner. Following meetings between officials of the three countries a common desire was expressed for the development of an international programme which will address the situation. An interim committee has been established with representatives of each of the three countries to formulate a proposal for a programme which will determine how the problems of poverty can be best addressed and the economic potential of the area be unleashed, with the least possible negative impact of the environment and its life support systems.
4.2 International consutations on shared wetland species are taking place through the Bonn Convention's (Convention on the Conservation of Migratory Species of Wild Animals) Agreement on the conservation of African-Eurasian Migratory Waterbirds.
4.3 No projects in South Africa were supported by the Ramsar Wetland Conservation Fund.
4.4 Until the 1994 elections, the role of international funding agencies in conservation and wise use of wetlands in South Africa was non-existant. Since the elections a number of such funding agencies have shown an interest in supporting South Africa's efforts. To date none of this funding has materialized.
5. Wetland reserves
5.1 Since December 1992, three reserves have been established at important wetlands:
5.1.1 Seekoeivlei, in the Free State has been discussed in point 1.2 above;
5.1.2 Verlorenvlei, in the Western Cape has been discussed in point 2.3.5 above.
5.1.3 Nylsvley Nature Reserve in the Northern Province has been increase in size by the aquisition of the farm Vogelfontein, thus securing under formal protection the upper reaches of the 70km long floodplain.
6. General comments on the Convention and its implementation
6.1 The Convention has been used in South Africa as the rallying point for a number of environmental issues (St Lucia System, Langebaan, Blesbokspruit and Orange River Wetland). Unfortunately, there are numerous misconceptions regarding the Convention (eg it has been dismissed as a "duck convention" by one consultant) and the role it and the Bureau has to play in this country (eg as an international policeman).
The SA Wetland Conservation Programme, initiated by the Department of Environmental Affairs and Tourism in 1990, is trying to rectify these misconceptions through articles in local publications, and with the publication of the South African Wetlands Newsletter, and the book Wetlands of South Africa. Wherever possible, staff participate in fora where the Convention and the programme can be promoted.
Continuous follow up is necessary to the high profile Monitoring Mission to the St Lucia System in terms of the monitoring procedure, undertaken by the Bureau. Regular inquiries through diplomatic channels may well have the desired effect that the Convention and the Contracting Parties remain interested in the outcome of this controversy.
6.2 Wider issues concerning future activities under the Convention which require consideration are:
- The Kushiro Statement is wide ranging. Contracting Parties should be encouraged to continue with the actions proposed in the Statement over the next triennium;
- The Convention should endevour to assume responsibility for wetland conservation related funding through the GEF; and
- Relationships with other conventions (eg Biodiversity Convention, Bonn Convention and the Convention to Combat Desertification) should be further developed to the benefit of the ideals of the Convention.
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