Report on the attendance of the

Seventh Meeting of the Conference of Contracting Parties

to the Convention on Wetlands (Ramsar, Iran, 1971)

held in San Jose, Costa Rica from 10 to 18 May 1999

South Africa was represented at the 7th Meeting of the Conference of Contracting Parties (COP) to the Convention on Wetlands (Ramsar, Iran, 1971) by an official delegation of five persons. The meeting was held in San Jose from 10 - 18 May 1999 and focussed on the interrelations between human societies and wetland habitats, with a general theme of "People and Wetlands -The Vital Link."

Over 1 000 delegates attended the meeting representing 116 Contracting Parties (CPs) to the Convention, a number of other countries, partner organizations and non-government organizations. The programme included five technical sessions, on Ramsar and Water; National Planning for Wetland Conservation and Wise Use; Involving People at All Levels in the Conservation and Wise Use of Wetlands; Tools for Assessing and Recognizing Wetland Values; and Frameworks for Regional and International Cooperation Regarding Wetlands.

Delegates considered several substantive agenda items, including reviews of Convention implementation in each region, the Convention Work Plan and Ramsar budget for 2000-2002, and regional categorization of countries under the Convention. Thirty resolutions and four recommendations on policy, programme and budgetary issues to advance the work of the Convention into the next century were considered and adopted. A number of these resolutions are of significance to the implementation of the Convention in South Africa over the next three years.

This was the first COP which went to a vote. This was on a purely political issue (Iran challenging Israel's right to be in the Asian region).

With the steadily increasing number of CPs, changes were made to the management structure of the Convention. The African region now has three members on the Standing Committee (Algeria, Togo and Uganda). Mr G I Cowan (leader of the South African delegation) was elected to be one of the three African scientists on the Scientific and Technical Review Panel of the Convention.

A number of meetings related to the Conference were also attended by members of the delegation including two of the African Region, and a Wetlands International Board of Directors meeting.

COP7 constituted a significant step in Ramsar's development and demonstrated that efforts to broaden its scope, beyond the focus on protecting wetlands as habitat for waterfowl and into the wider context of sustainable development, conservation of biodiversity and global water issues, are beginning to bear fruit. Support for this aim at COP7 was widespread, resulting in a number of useful resolutions and recommendations, including guidelines on developing national wetland policies, involving local communities in wetland management, international cooperation, awareness and education, and integrating wetland conservation into river basin management. The continued commitment to this course of action at COP7 was welcomed by the South African delegation. The steadily growing suite of tools emerging from the workings of the Convention is providing increased opportunities for constructive and incisive interventions to be made in a number of areas relating to the conservation of wetlands.

In spite of successfully clearing several political hurdles, most participants agreed that the meeting had been less than successful in some regards. Some felt that COP7 had equipped the Convention with the necessary framework to realize its broadening objectives, only to have expectations dampened by delegates' unwillingness to increase the funding for the Bureau to function effectively.

With the worsening global water crisis, it is anticipated that wetlands and their crucial role in the water cycle will come to assume an increasingly higher profile in global politics. The expansion of the Convention's scope into highly politicized areas such as water resource management carries potential risks as well as benefits, heralding the intrusion of political realities into what has previously been a placid environmental process. Future COPs can therefore expect a more politicized atmosphere, for which future South African delegations will need to be accordingly prepared. With its increasing emphasis on broader developmental issues, and a range of products to support CPs in expanding their scope, the Convention can continue to play an important role as a tool in promoting the effective conservation and wise use of South Africa's wetlands.

A number of recommendations are made based on the experience of attending COP7 in San Jose, focussing on implementation of the undertakings made by all CPs at the meeting, and the needs of wetland conservation in South Africa.

1. Implementation of the South African wetland inventory project should be expedited. Funds to do so will have to be sought as a matter of urgency

2. The national wetland conservation policy in terms of the policy on biodiversity must be completed and a strategy to implement it developed and implemented.

3. A training programme for wetland conservation, management and the wise use of their resources must be developed for both South Africa and southern Africa.

4. Designation of new sites to the List of Wetlands of International Importance by South Africa should be considered.

5. The initiative to develop and implement a strategy for an information, education and awareness programme for the South African Wetlands Conservation Programme should be supported and provided with the necessary resources

6. For future COP's, a more critical evaluation of resolutions is called for if they are to have any meaning. Such evaluation must address the feasibility of implementation, taking into account such aspects as human and other resources, or capacity in general.

7. The issue of African sub-regionalization needs to be revisited before the next COP. The SADC countries should play a much stronger role in such organizational aspects.

Contracting Parties to the Convention on Wetlands (Ramsar, Iran, 1971), also known as the Ramsar Convention, meet every three years to assess the progress of the Convention and wetland conservation to date, share knowledge and experience on technical issues, and plan their own and the Bureau's work for the next triennium. There have been seven such Meetings of the Conference of the Contracting Parties since the founding of the Convention.

The Seventh Meeting of the Conference of the Contracting Parties (COP7) to the Convention was held in Costa Rica, the first developing country to host such a meeting. The conference was held in San Jose from 10 - 18 May 1999 and focussed on the interrelations between human societies and wetland habitats, with a general theme of "People and Wetlands -The Vital Link." Approximately 1000 participants attended the COP, including representatives from 116 Contracting Parties (CPs) to the Convention, observer states, national and international NGOs, other convention secretariats, intergovernmental institutions, donor agencies and wetland scientists.

South Africa is a founding member of the Convention, becoming the fifth Contracting Party in 1975. Since then, South Africa has actively participated in the activities of the Convention, with delegations in attendance at all preceding COPs, playing a role in keeping the work of the Convention abreast of changing world perceptions, priorities and trends in environmental thinking.

This was an important meeting for South Africa, and was attended by a delegation of five persons:

As is customary, the opening ceremony included general statements from an increasingly long list of persons representing various organizations. In welcoming the delegates, Delmar Blasco, Secretary-General of the Convention, highlighted the importance of COP7 in reviewing implementation of the Convention, identifying remaining challenges, establishing clearly defined objectives for the next three years, and enabling CPs to achieve progress in the conservation and wise use of wetlands. He stressed that the Convention should not move away from protecting wetlands as habitat for birdlife, but should also be seen within the broader context of sustainable development. He stated that COP7 would broach many crucial issues relevant to today's international agenda, and expressed hope that the many resolutions before the COP would advance the objective of mainstreaming wetlands and making them a common concern for governments as well as society at large.

The first group of plenary sessions was orientated toward reporting back on the workings of the various components of the Convention; the Bureau, Standing Committee, Scientific and Technical Review Panel and Regional Representatives.

In further plenary sessions, delegates considered several substantive agenda items, including reviews of the implementation of the Convention in each region, the Convention Work Plan and Ramsar budget for 2000-2002, and regional categorization of countries under the Convention. Also considered and adopted were thirty resolutions and four recommendations on policy, programme and budgetary issues to advance the work of the Convention into the next century. In addition, a Memorandum of Understanding was signed between the Ramsar Secretariat and the World Heritage Centre.

The occasion was also used to officially launch the 4^th edition of the Directory of Wetlands of International Importance (on a compact disc (CD)) as well as the Global Review of Wetland Resources and Priorities for Wetland Inventory (also on CD), both by Wetlands International as part of their technical support for the Convention.

Delegates convened in the closing plenary to elect representatives to serve on the Standing Committee for the next triennium, based on proposals from each region. Africa will be represented by Togo, Algeria and Uganda. Spain offered to host COP8, which should take place in 2002.

In his closing remarks, Secretary-General Blasco stated that COP7 had been intense and productive. He emphasized that in technical terms, the Convention had been significantly strengthened by the battery of tools that delegates had adopted, but noted, however, that on some issues, COP7 had not managed to find a solution that fully satisfied all CPs.

The regional report for Africa was presented by Anada Tiega, the Regional Representative on the Bureau. He noted significant progress made since the last COP and identified challenges to implementation in the African region, including the need to:

1. increase the membership of African countries to the Convention;
2. define suitable methodologies for wetland inventories;
3. coordinate between different sectors that have an impact on wetlands;
4. operationalize the synergies between Ramsar and other international processes;
5. make river basin organizations more responsive to user needs;
6. define a common approach to manage shared wetlands;
7. address wetland degradation at the source; and
8. implement wise use practices.

Inappropriate land-use practices, the increased prevalence of invasive species and pollution were identified as being the major threats to African wetlands. Frequent positive references made with regard to South Africa's Wetlands Conservation Programme included:

1. hosting the Southern African Sub-regional Ramsar meeting in Pretoria in 1998;
2. development of a wetland conservation policy which will complement and strengthen a number of other national policies;
3. reviewing of some eleven national Acts which have effects on wetlands;
4. integration of wetland-related issues into water and land-use planning frameworks; and
5. wetland rehabilitation projects.

Uganda has also made particularly good progress with the launch of its National Policy for the Conservation and Management of Wetlands last year. Many African countries were receiving international aid for their wetland conservation efforts, while others were soliciting such aid.

Reports from the other regions highlighted the following:

Asia: The Regional Coordinator for Asia reported that progress in implementing the Convention in this region was mixed and that significant challenges remain. These include the need to increase membership in Central and West Asia; enhance NGO involvement; mainstream wetlands into water and coastal zone policies; designate additional Ramsar sites; complete site management plans; enhance training; and monitor changes in ecological character.

Oceania: The Regional Coordinator highlighted achievements in implementing wise use guidelines, including development of wetland policy frameworks and use of impact assessments and economic valuation as tools to aid decision-making. Challenges in implementing wise use include the need to assist CPs to implement the Convention, build capacity, and utilize wise use frameworks.

Neotropics: The main achievements in the region since COP6 include increased attention to the conservation and rehabilitation of degraded wetlands and actions to enhance public awareness. Priorities for action include promoting transboundary and regional actions; strengthening efforts to integrate conservation and wise use of wetlands in planning and management at all levels; encouraging inclusion of wetland themes in school curricula; and developing comprehensive strategies to complete the identification of training needs and adopt a coordinated approach to sharing training resources and expertise.

Eastern and Western Europe: The Regional Coordinator highlighted achievements in implementing the wise use guidelines, including wide application of environmental impact assessment procedures; high priority assigned to restoration; and significant progress in implementing wetland policies and establishing national committees. Challenges in implementing wise use include the need for better integration of wetland policies into other sectors, mainstreaming of economic valuation, and stronger links with the private sector. He reported progress in implementing wetland education and public awareness programmes, and an increase in training opportunities. Other areas which require attention include national wetland inventories and better integration of wetland conservation into the management of transboundary rivers.

North America: Progress in the region was presented, including a wide range of impact assessment and wetland-related policy instruments; integrated and watershed approaches; experimentation with assessments and economic valuation of wetlands; wetland restoration initiatives; institutional capacities and cooperation; bilateral agreements on migratory birds; and donor assistance for wetlands projects. Challenges to implementation in the region include the need to finalize reviews of national policy frameworks and site management plans; continue rehabilitation efforts; complete inventories; build national networks of Ramsar sites; and pursue transboundary site designations.

Reports on the activities over the 1996-1999 triennium were presented by the Chair of the Standing Committee, the Chair of the Scientific and Technical Review Panel (STRP), the Secretary General and the Ramsar Database Officer.

A number of special interventions under the title "Themes for the Future" were made:

1. Water seen from space.
   Dr F C Diaz, an American/Costa Rican astronaut, made this special presentation.

2. The Ramsar Convention on Wetlands.
   A new video promoting the Convention and its activities was presented.

3. People and wetlands - the vital link.
   Lord Enniskillen, chairman of the Lake Naivasha Riparian Association, described the modus operandi of the association in the conservation of Kenya's privately owned Ramsar wetland.

4. Global Biodiversity Forum
   Ms Yolande Kakabadse, Minister of the Environment of Ecuador and President of the IUCN, delivered a message from the 13^th Global Biodiversity Forum which met in San Jose immediately preceding the Ramsar COP7.

5. NGO Conference
   Ms Melissa Marin, Amigos de la Tierra (Friends of the Earth), delivered a message from the Conference of Non Government Organizations, Local Communities and Indigenous people, also held in San Jose immediately preceding the Ramsar COP7.

6. The World Bank
   Dr R T Watson, Director of the Environment Department at the World Bank, presented "the World Bank's efforts to internalize the environment into the development process, with particular reference to wetland ecosystems". This presentation was met with some cynicism.

7. European Union
   Mr B Julien, representative of the European Union presented "Protection of sensitive areas in the European Union - a contribution to the Ramsar Convention". This illustrated the Union's conservation directives.

8. Invasive species
   Presented by Dr G Howard, IUCN (East Africa), this paper addressed the wide range of species which invade wetlands and their impacts on the system and humans.

9. Ramsar Regional Centre for Training and Research
   Dimas Arcia of the Panamanian National Authority for the Environment presented an initiative to establish a Regional Ramsar Centre for Training and Research on Wetlands in the Western Hemisphere in Panama.

10. Costa Rican wetlands
    Dr JJ Ramon, Organization of Tropical Studies, presented a paper on "Wetland conservation and sustainable use in Costa Rica".

Delegates convened in five technical sessions over a period of two days, the aim of which was to further develop the draft resolutions. Each session began with panel presentations to the plenary on the topic and introduction of relevant COP7 resolutions. Unlike previous COPs, delegates then met in regionally-based discussion groups to consider these resolutions, and subsequent proposals for amendments were integrated by drafting groups coordinated by the Bureau. This meant that the African region discussed the issues separately from each of the other regions, with the result that debate centred mainly around issues of linguistic correctness of the draft resolutions rather than anything of a more substantive nature. It also meant that the cross fertilization of ideas between experts from all regions was lost or at best confined to the rather stiff plenary sessions. That loss is regretted. Some of this cross fertilization was maintained in after hours focus groups, which had varying levels of meaningful discussion, depending on the leaders and the participants. It is hope that this concept is formalized, as such groups have the potential for improving the conference decisions. The following is a summary of the technical sessions.

1. Ramsar and water

   A draft resolution on "Guidelines for integrating wetland conservation and wise use into river basin management" was presented. This resolution stems from a lack of clear guidance from Ramsar concerning the integration of wetland-related issues into river basin management. Existing linkages in the Convention between wetlands, water and river basin management were highlighted, as was the important role of wetland conservation in alleviating the global water crisis. The challenge put before the delegates was to develop techniques for managing wetlands sustainably for their water resources whilst preserving wetland biodiversity and other values.

   The Guidelines are intended to assist countries in integrating wetlands into river basin management, and include the establishment of river basin management authorities; strengthening of institutional capacity; involving stakeholders and raising public awareness; assessing and enhancing wetlands' hydrological and ecological functions; minimizing impacts of land use and water projects; protecting and restoring wetlands in the context of river basin management; promoting international cooperation on shared river basins and wetlands; and collaborating with relevant conventions and organizations.

2. National planning for wetland conservation and wise use

   A draft resolution was presented, entitled "Strategic Framework and Guidelines for the future development of the List of Wetlands of International Importance". The aim of this proposed approach is to establish an international network of Ramsar sites, based on scientific criteria, with a target of 2000 sites by COP9 in 2005.

   Also presented were "Guidelines for developing and implementing national wetland policies", which are intended to encourage CPs to develop wetland policies, review the success of governments and partners in their development and implementation, and foster the sharing of experience. The IUCN Environmental Law Centre presented "Guidelines for reviewing laws and institutions to promote the conservation and wise use of wetlands". These should assist CPs in undertaking legal and institutional reviews to identify and remove constraints to wetland conservation and wise use, and support the development of positive legal and institutional frameworks for wise use. It was noted that few Parties have wetland policies in place and that many policies relevant to wetland conservation have been implemented in a piecemeal fashion. These reviews should recommend legal and institutional changes necessary to support conservation and wise use, including the withdrawal of measures that contribute to wetland loss, improved implementation of existing laws, and identification and prioritization of laws and institutions that require reform.

   Restoration was also discussed as an element in national planning for wetland conservation and wise use. Although rehabilitation of degraded wetlands is taking place in numerous CPs, these efforts are generally fragmented and are rarely integrated into national legislation and planning. General guidelines for wetland rehabilitation were proposed, including legislative obligations or options for multiple wetland restoration; identification of all stakeholders; scientific consultations; and cost-effectiveness.

3. Involving people at all levels in the conservation and wise use of wetlands

   In the session, strong emphasis was placed on participatory processes for involving local communities and indigenous people in wetland management. Methods for local community involvement were outlined, including engaging elected representatives; consulting with local communities to review and revise management plans; and delegating wetland management tasks. A draft resolution and guidelines to give effect to these principles was presented, entitled "Guidelines for establishing and strengthening local communities' and indigenous peoples' participation in the management of wetlands". It was interesting to note that the exact definition of "indigenous people" was the subject of some controversy in the African group. It appears as if there is a high degree of political sensitivity attached to this term in certain African countries, and, as a result, the phrase "local communities" was preferred within the African region.

   Mechanisms to promote participatory wetland and river basin management through education and understanding were discussed, and an overview of the Outreach Programme 1999-2002 was presented. The Programme should be tailored to local priorities and target civil society, business and education sectors and regional and international bodies, and involve numerous actors, including CPs, the Secretariat, NGOs and donors.

   A draft resolution on "Incentive measures to encourage the application of the Wise Use Principles" was presented, which emphasizes the importance of motivating governments, local communities and international organizations to conserve biodiversity, and stresses the need to assess local situations in developing the most effective mix of incentive tools for each wetland site. The resolution calls on CPs to, inter alia, review existing policy, legal and institutional frameworks to identify and promote effective measures and remove perverse incentives, and share lessons learned.

4. Tools for assessing and recognizing wetland values

   Environmental impact assessments have been identified as key tools for assisting countries in implementing various conventions, including Ramsar, Biodiversity Convention, Convention on Migratory Species and the Convention to Combat Desertification. The technical session highlighted the role of strategic environmental assessments; the linkages between impact assessments and wetland monitoring and assessment; the use of impact assessments as opportunities to incorporate economic values in decision making; and collaboration between Ramsar and other biodiversity-related conventions. Also noted was the potential for impact assessment processes to facilitate the participation of local and indigenous communities in decision making.

   A potentially useful tool, a Wetland Risk Assessment Framework, was presented, which involves a series of steps aimed at predicting and monitoring adverse change in ecological character, and identifying the nature, effects, seriousness, and extent of potential risks. Such assessment should enable the formulation of risk management and reduction strategies and facilitate monitoring.

   Findings presented from a global review of wetland inventories indicate that only 7% of countries currently have adequate national wetland inventories; a majority have partial inventories, some have no inventory coverage of their wetlands, and inventories generally contain little information on status and trends of wetlands. The review made several recommendations, including the prioritization of national inventories where they are inadequate; undertaking of basic inventories prior to collecting management-oriented information; development of global standardized methods; and establishment of a central repository for inventories. Emphasis was also placed on the use of technology such as GIS and databases for inventory work

5. Frameworks for regional and international cooperation regarding wetlands

   Preliminary findings of a GIS analysis of the world's shared wetlands and river basins were presented. The project identified Ramsar sites that transcend international borders or are within close proximity of a border, or are located within international catchment basins. Areas requiring further work were highlighted, including analysis of risks in vulnerable sites; assessment of the extent of wetlands designated as protected areas; prioritization of coastal marine wetland habitats; and assessment of the management regimes of cross-border sites.

   An example of a framework for international cooperation to manage shared river basins was presented by Botswana and examined the Okavango River, shared by Angola, Botswana and Namibia. The Permanent Okavango River Basin Commission has been established by the riparian states to coordinate and collaborate on sustainable management, and has completed a transboundary diagnostic assessment as part of its baseline data development. GEF support is being sought for a basin-wide environmental assessment and integrated management plan.

   The technical session was presented with "Guidelines for international cooperation under the Convention"and an accompanying draft resolution. A growing recognition of the value of multi-state river basin management commissions was noted, and it is such institutions that the guidelines seek to foster in order to facilitate cooperation. The guidelines also encourage CPs to, inter alia, identify all shared wetlands and river basins and develop appropriate cooperative management arrangements; participate in regional frameworks on shared wetland-dependent species; harmonize national implementation of environmental conventions; support training of wetland practitioners; encourage site twinning to accelerate sharing of expertise; review all trade in wetland products to ensure sustainable harvesting; establish cooperative arrangements with relevant CITES and CBD focal points; urge the assessment of impacts of foreign investment proposals; and promote codes of conduct for the private sector.

   Results of a project examining existing donor arrangements for wetland conservation and wise use were outlined. Findings indicate a major decrease in bilateral funding since 1992, an increase in multilateral support for wetlands and in the number of environmental projects, and the integration of environmental considerations into donors' sectoral strategies. Recommendations and guidelines were presented for enhancing and monitoring funding for wetland conservation and its consideration in sectoral strategies and development programmes, and building the capacities of development assistance agencies and recipients. The need for a coordination mechanism between the Bureau, national Ramsar focal points and development agencies was underscored.

Besides approving the budget and approving the Bureau Work Programme in terms of that budget and the Strategic Plan as accepted in Brisbane at COP6, the Conference of Contracting Parties considered some 35 resolutions. Those of particular importance to South Africa include:

No 2: Composition and modus operandi of the Scientific and Technical Review Panel

This was a recommendation which came from the Southern African Sub-regional Ramsar meeting hosted by South Africa, and ensures that the STRP is more consultative, utilizing the wider network of experts throughout the regions. The resolution invites each CP to nominate by the end of October 1999 a qualified expert from that country to act as a focal point and provide input to the STRP's work, as appropriate, and urges STRP members to establish and maintain contact with these national focal points and seek their input as required. Geoff Cowan of South Africa was one of three African representatives elected to serve on the STRP for the next triennium.

No 6: Guidelines for developing and implementing national wetland policies

The Southern African Sub-regional Ramsar Meeting recommendation regarding wetland policies stressed the following point:

"These wetland policies link directly with other important and relevant national policies such as those on the conservation and sustainable use of biological resources, water resources, forest resources, fisheries, etc."

This decision supports South Africa's efforts towards a wetland conservation policy, and encourages the completion of those efforts. It further encourages CPs to recognize the benefits of incorporating appropriate measures to ensure priority consideration for wetland restoration in relevant programme administration and government expenditure and in promotion of local actions. It also urges CPs with experience in developing and implementing such policies to share this knowledge and experience with other CPs.

It is noted that South Africa is already well on its way to having a wetland conservation policy in terms of:

• the Policy on the Conservation and Sustainable use of South Africa's Biological Diversity; and
• the National Water Act

No 9: Outreach Programme 1999 - 2002

Through the resolution, the COP adopts the Outreach Programme, which provides guidance on the development of appropriate communication, education and public awareness actions to support the implementation of the Convention at international, regional, national and local levels. These guidelines will strengthen the existing intiative by the South African Wetlands Conservation Programme to develop a coordinated and targeted wetland awareness strategy.

No 10: Wetland risk assessment framework

The resolution notes that the COP adopts the Risk Assessment Framework as guidance to CPs; adopts definitions for "ecological character" and "change in ecological character," as recommended by the STRP; calls on CPs to apply early warning indicators in the monitoring and management plans of Ramsar sites; and encourages the STRP to compile a report outlining experiences gained in maintaining early warning systems.

This is of particular relevance to South Africa because two Ramsar sites are listed on the Montreux Record as being subject to change in ecological character, and may be subject to further degradation. Detection of similar undesirable changes in ecological character may be delayed in other Ramsar sites, as only six of the country's sixteen Ramsar sites have monitoring programmes in place.

No 11: Strategic framework and guidelines for the future development of the List of Wetlands of International Importance

The strategic framework and guidelines establish a global network of internationally important wetlands and a new outlook for the Ramsar List. The resolution notes that the COP, inter alia, urges all CPs to apply the framework and develop a systematic approach to identifying wetlands for future Ramsar site designation; calls on CPs to prioritize wetland inventory programmes; and encourages CPs to give prominence to suitable transboundary wetlands.

This decision supports decision No 21 (Priorities for wetland inventory) and a number of decisions made at previous COPs encouraging CPs to complete inventories of their wetlands. In line with the heavy emphasis currently being placed on wetland inventories, both within and beyond the Convention, South Africa is developing a comprehensive wetland inventory programme. Funding to sustain this project will have to be sought as a matter of priority.

The resolution will also add weight to processes currently underway to merge the South African and Namibian Ramsar sites at the Orange River mouth into one jointly managed transboundary site.

No 14: Invasive species and wetlands

The resolution recognizes the severe threat that alien plant and animal species pose to wetlands and wetland species, both terrestrial and marine, if they become invasive. The COP calls on CPs to, inter alia, prepare inventories of alien species in wetlands within their jurisdictions; identify those that pose a threat and may be controlled or eradicated; and facilitate awareness of and control of alien species.

Considering the direct threats that a number of alien species are posing to the integrity of many South African wetlands, the resolution is of particular relevance. Aspects of this resolution are already being successfully implemented through the Working for Water Programme, and the biological control of Azolla spp being initiated by the Plant Protection Research Institute. South Africa also already has a list of species which have invaded its wetlands.

No 15: Incentive measures to encourage the application of the Wise Use principles

The resolution links the Convention's objective of the wise use of wetlands with incentive measures, noting the latter's inclusion in the Convention on Biological Diversity and Ramsar Joint Work Plan. The COP, inter alia, calls on CPs, NGOs, donor agencies and others to consider introducing incentive measures designed to encourage wise use and identify and remove perverse incentives. In the South African context, this decision should be incorporated into the implementation strategy for the national wetlands conservation policy.

No 16: The Ramsar Convention and impact assessment: strategic, environmental and social

The resolution encourages CPs to strengthen their efforts to ensure that projects, plans or policies with the potential to impact negatively on wetlands are subjected to rigorous impact assessment procedures; that these procedures are formalised under policy and legislation; and that they seek to identify the true values of wetlands in terms of their functions, values and benefits.

Legislation concerning activities requiring impact assessments is in its infancy in South Africa, and covers wetlands to some degree. Future priorities will be to ensure that wetland-related issues become more firmly entrenched in this legislation, and the promotion of tools such as economic valuation and methods for determining all functions and values of wetlands.

No 17: Restoration as an element of national planning for wetland conservation and wise use

CPs are called upon to recognize that national wetland restoration programmes can provide significant benefits for people and wildlife; produce information about wetland losses, their restoration potential and the full benefits of restoration; identify priority sites for restoration; identify constraints and solutions to implementing ecologically, economically and socially sustainable restoration; and develop pilot projects.

This resolution relates to a number of other resolutions of importance to South Africa, including those concerning wetland inventory and development of national wetland policy, and strengthens the need for these tasks to be completed as a matter of urgency. Several initiatives directed at wetland resoration presently exist in South Africa, primarily through the Working for Water Programme.

No 18: A global action plan for the wise use and management of peatlands

The resolution calls upon CPs to, inter alia, take immediate action to improve peatland awareness; prioritize inventory and evaluation of peatlands; and nominate peatlands as Ramsar sites.Although peat plays a role in the hydrological cycle in South Africa and is utilized on an unsustainable basis, an informed national policy decision regarding its exploitation has yet to be made. This process of policy formulation will be important in ensuring that peat and water resources are managed sustainably, and is one that should be undertaken without delay. Once again, the resolution also highlights the need for wetland inventory information.

No 19: Guideline for integrating wetland conservation and wise use into river basin management

Water planning and river basin management strategies are an integral part of wetland conservation. It is recommended that National Ramsar Committees are involved in national water planning and the development of river basin management strategies. While an ideal, this has staff implications

No 21: Priorities for wetland inventory

The resolution recalls that CPs were called on to prepare inventories of their wetlands as an aid to formulating and implementing national wetland policies and notes with concern that few countries have comprehensive national wetland inventories. The COP urges CPs to, inter alia, complete national inventories and include information on wetland losses and those with potential for restoration; prioritize wetland types at greatest risk or with poorest information; consider adopting a suitable standardized protocol for data gathering and handling and the use of standardized low-cost and user-friendly GIS methods; and review or establish arrangements for maintaining wetlands inventory projects. This decision builds on decisions made at previous COPs, and should be read in conjunction with decision No 11.

No 30: Creation of a regional Ramsar centre for training and research on wetlands in the western hemisphere

This is an exciting venture which is similar to an initiative being proposed for southern Africa. It is hoped that the Bureau and other relevant partners undertake to provide suitable information on the centre, so that it may become a model for similar initiatives in other parts of the world.

No 33: The Convention Work Plan 2000 - 2002

To facilitate effective implementation of the Strategic Plan 1997 - 2002, adopted at COP6 in 1996, the Work Plan sets more precise targets for a range of actions, in order to encourage more significant results in some areas, including application of economic valuation methods, private sector involvement, introduction of wetlands into formal education programmes, training, national inventories, and designation of transboundary Ramsar sites. CPs are invited to prepare and adopt by the end of 1999 national targets for the Ramsar Strategic Plan for the period 2000 - 2002, on the basis of national consultative processes. Additionally, CPs are encouraged to review internal processes for harmonizing regional and international conventions.

No 34: Financial and budgetary matters

A number of participants, particularly the NGOs, suggested in strong terms that the Ramsar Bureau is under-funded for the work expected of it, arguing that CPs' contributions to this convention are far below those of other conventions. Their attempts to get the conference to consider a substantial increase in fees were in vain. Because of the CPs' lack of enthusiasm to significantly increase funds, there is concern that the Bureau will be hard-pressed to meet the expectations of CPs and realize the potential that COP7 has created. However, others argued that a distinction should be made between implementing the Convention in CPs and allocating funds for the Bureau and its expected role. Despite the seemingly bleak scenario, voluntary contributions through other channels, such as the GEF and NGOs, hold promise and may well be vital to the effectiveness of Ramsar.

The compromise attained set the increase in each CP's contribution at 5%, 2% and 2% for each of the next three years respectively. This translates to a minimal increase in South Africa's contribution due to the application of the UN scale of assessment for calculation of fees. South Africa's contribution increases to 11 223 Swiss Francs for 2000. The UN scale has yet to be approved for 2001 and 2002.

Two African regional meetings were held during the COP. At these meetings the member countries for the Standing Committee (Algeria, Togo and Uganda), as well as the scientists for the Scientific and Technical Review Panel (STRP) were nominated. Mr G I Cowan, the South African nominee, was subsequently elected to the STRP. The discussions on the representation of the African region on the Standing Committee were long and protracted. The eventual solution arrived at was not to the satisfaction of all countries.

In effect the region is split into five sub-regions: north, central, east, southern, and west Africa. West Africa will be permanently represented on the Standing Committee, with membership on the Committee rotating between the CPs in the sub-region on a triennial basis. North and central Africa will alternate in nominating a representative, as will east and southern Africa. The West Africa group managed this because they form a reasonably cohesive block and tend to support each other, which does not happen in the other sub-regions.

In a number of presentations and especially the African regional report, South African wetlands, their problems and our approach to solving such problems to the benefit of wetland conservation were noted. Our fledgling National Water Act in particular, which is considered a global precedent in terms of its approach to water resource management, was the subject of considerable interest.

It is normally customary at all international fora to hold a meeting of the Valdivia countries. However as the main Valdivia meeting was taking place in Uruguay during the same period, it was decided that such a meeting at this COP was not necessary. In separate discussions with members of the Australian delegation, the need for continued and improved scientific and technical cooperation with regard to wetland issues was agreed. As there is an Australian representing Oceania on the STRP, this will be followed up actively for the next three years.

Two members of the South African delegation, Mr G I Cowan and Dr R M Randall, are also members of the Board of Wetlands International. Mr Cowan is the current Chairman of the Africa, Europe and Middle-East Council (AEME) of Wetlands International.

Mr Cowan attended the Board of Directors meeting, which was entirely administrative in nature and held on the Sunday before the COP.

COP7 constituted a significant step in Ramsar's development and demonstrated that efforts over several years to broaden the Convention's scope beyond the once somewhat narrow focus on protecting wetlands as waterfowl habitat are beginning to bear fruit. A clear display of resolve emerged at COP7 to continue Ramsar's ongoing process of integrating wetlands into biodiversity, land-use and water management frameworks, and to equip the Convention with the tools to do so. The potential thus exists now, more than ever, for the Convention to raise the political profile of wetland issues, effectively earning them a place on the international sustainable development agenda.

The continued commitment to this course of action at COP7 was welcomed by the South African delegation. Given the country's developmental and environmental priorities, wetland conservation will elicit greater public and political support when the issues extend more broadly than those relating only to biodiversity. The steadily growing suite of tools emerging from the workings of the Convention is providing increased opportunities for constructive and incisive interventions to be made in a number of areas relating to the conservation of wetlands. This is particularly so with regard to water resource management, where the new National Water Act is set to revolutionize the philosophy behind the ownership and utilization of the country's water resources.

Although it may have seemed at times that the COP7 theme of "People and Wetlands: The Vital Link" was somewhat lost in the multitude of resolutions and political squabbles, COP7 did make good progress on a number of fronts. Various new sets of guidelines were adopted, notably those on involving local communities in the management of wetlands, developing national wetland policies, international cooperation, and integrating wetland conservation into river basin management.

The expansion of the Convention's scope into highly politicized areas such as water resource management carries potential risks as well as benefits. For Ramsar, this move has ushered in the intrusion of political realities into what had previously been a placid environmental process. This, along with the recent accession of numerous new CPs, has meant a loss of innocence for the scientific community associated with Ramsar, which has been largely sheltered from the political ravages that have dogged other, more broad-based, environmental conventions. The intrusion of politics at COP7 was generally interpreted as a sign that the political profile of Ramsar is indeed being raised, and quite quickly. Under the circumstances, participants were relieved that such issues did not derail the entire meeting.

Given the Convention's relative political innocence, the Secretariat handled many of these new issues with confidence, including the debates over Israel's categorization in the Asian region and discussions on the status of successor states to the Socialist Federal Republic of Yugoslavia. One highly-charged political issue that COP7 did not manage to overcome completely was Turkey and India's insistence that issues relating to cooperation on international watercourses and shared river basins were beyond the scope of Ramsar. This will certainly be an issue to track as the Convention expands into the important yet contentious arena of the global water crisis.

Israel's status seemed to cause the most consternation, and resulted in Convention history being made when, for the first time, an issue was put to the vote. This led to concern being expressed that Ramsar's friendly tradition of agreement by consensus had been brought to an end. Iran proposed an alternative system of regions where it would not be in the same region as Israel. After lengthy debate and a number of unsuccessful attempts at reaching consensus, the voting procedure was invoked. This too, was manipulated to its full extent, and after losing a vote to consider a further amendment to its proposal, Iran withdrew the proposal. This was met with much relief as it was generally felt that this was not the appropriate forum for such a debate. This Convention should confine itself to its subject, namely the conservation and wise use of wetlands and their resources through international cooperation. At the same time, it is felt that having survived its dreaded first voting procedure, the Convention has finally attained a level of maturity, and will be able to handle the many more contentious issues which will inevitably arise as its focus continues to broaden.

With the worsening global water crisis, it is anticipated that wetlands and their crucial role in the water cycle will take centre stage in global politics. South Africa, with its low, erratic and irregularly-distributed rainfall, will be no exception to this trend. Future COPs can therefore expect a more politicized atmosphere, for which future South African delegations will need to be accordingly prepared. With its increasing emphasis on broader developmental issues, and a range of products to support CPs in expanding their scope, the Convention can continue to play an important role as a tool in promoting the effective conservation and wise use of South Africa's wetlands.

A number of recommendations are made based on the experience of attending COP7 in San Jose, focussing on implementation of the undertakings made by all CPs at the meeting, and the needs of wetland conservation in South Africa.

1. Implementation of the South African wetland inventory project should be expedited. An urgent need exists for spatial information detailing the extent, distribution and diversity of South Africa's wetland resources, for a variety of applications. Planning of the inventory programme is at an advanced stage, with considerable interest from the United States National Wetland Inventory in establishing a long-term technical exchange programme. Funding to begin the mapping stage of the project is required before any further progress can be made.

2. The national wetland conservation policy in terms of the policy on biodiversity must be completed and a strategy to implement it developed and implemented. The development of this policy was postponed pending the release of the Policy on the Conservation and Sustainable Use of South Africa's Biological Diversity. It now needs to be completed and formatted as a component of the strategy to implement the Biodiversity policy.

3. A training programme for the conservation, management and wise use of wetlands and their resources must be developed for both southern and South Africa. A draft proposal has been developed to facilitate the achievement of this objective. Negotiations with institutions outside South Africa for academic support are underway. Funding for the further development of the project will need to be found.

4. Addition of new sites to the existing complement of sixteen Wetlands of International Importance in South African should be considered. Two sites, the Limpopo-Levuvhu Floodplain in Northern Province and Verloren Valei in Mpumalanga have been proposed for designation as Ramsar sites. Other sites, such as the Prince Edward Islands and various marine reserves may also be considered in the future. In order to maximise the local value of Ramsar sites as focal points for wetland conservation, efforts should be made to designate a Ramsar site in the Eastern Cape, the only province which currently lacks a proposed or existing site.

5. An initiative is underway to develop and implement a strategy for an information, education and awareness programme for the South African Wetlands Conservation Programme. Jacana Education will shortly be contracted to develop this strategy, a process which should take three months and which will be funded by DEAT. Thereafter, funds to implement the strategy will need to be found.

6. For future COP's, a more critical evaluation of resolutions is called for if they are to have any meaning. Such evaluation must address the feasibility of implementation, taking into account such aspects as human and other resources, or capacity in general.

7. The issue of African sub-regionalization needs to be revisited before the next COP. The SADC countries should play a much stronger role in such organizational aspects.