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Developing a Biodiversity Strategy and Action Plan for Hong Kong December 2012 Lisa Hopkinson Supported by:
Developing a Biodiversity Strategy and Action Plan for Hong Kong
December 2012Lisa Hopkinson
Supported by:
2
About Civic ExchangeCivic Exchange is a Hong Kong-based non-profit public policy think tank that was established in October 2000. It is an independent organisation that has access to policy-makers, officials, businesses, media and NGOs – reaching across sectors and borders. Civic Exchange has solid research experience in areas such as air quality, energy, urban planning, climate change, conservation, water, governance, political development, equal opportunities, poverty and gender. For more information about Civic Exchange, visit http://www.civic-exchange.org.
About the authorLisa Hopkinson is an environmental researcher who is co-founder and Head of Research at Civic Exchange (2000-2003). She is currently Director of Lorax Environmental Associates in the UK.
AcknowledgementsCivic Exchange would like to thank ExxonMobil Hong Kong Limited for partially funding the publication of this paper.
Many thanks to the following people, who kindly provided information or advice used in this report (in alphabetical order):
Gary Ades (Kadoorie Farm & Botanic Garden); Elvis W K Au (Environmental Protection Department, Hong Kong SAR Government); Damian Chan (Sustainable Development Division, Hong Kong SAR Government); Chan Kin-fung, Simon (Agriculture Fisheries and Conservation Department, Hong Kong SAR Government); Chan Yiu-keung (Agriculture Fisheries and Conservation Department, Hong Kong SAR Government); David Duthie (Secretariat of the Convention on Biological Diversity); John Fellowes (Kadoorie Farm & Botanic Garden); Billy C H Hau (University of Hong Kong); Margaret Hsia (Sustainable Development Division, Hong Kong SAR Government); Lam Kin-che (Chinese University of Hong Kong); Li Man-yan, Sian (Environmental Protection Department, Hong Kong SAR Government); Vicky Morgan (UK Joint Nature Conservation Committee); Ng Cho Nam (University of Hong Kong); Tim Pierson Smith (Executive Counsel Ltd); Kim Salkeld (Efficiency Unit, Hong Kong SAR Government); Wilson Y L So (Planning Department, Hong Kong SAR Government); Nora F Y Tam (City University of Hong Kong); Rick Tam (Civil Engineering and Development Department, Hong Kong SAR Government); Ophelia Y S Wong (Planning Department, Hong Kong SAR Government).
Particular thanks go to the steering group for this report, for their incisive comments and suggestions and many hours of their time and expertise (in alphabetical order):
Ruy Barretto; Andy Cornish (WWF-Hong Kong); Mike Kilburn (Hong Kong Bird Watching Society); Michael Lau (WWF-Hong Kong); Clive Noffke (Green Lantau Association); and Paul Zimmerman (Designing Hong Kong).
Many thanks to Bill Leverett for reviewing drafts of the report and to the team at Civic Exchange who have provided invaluable support:
Wilson Lau (project management); Cissy Lui and Pinky Choy (editing); DESIGNORM (cover design); Michelle Wong (illustrations & layout) and Yan-yan Yip (strategic advice).
The author would also like to acknowledge the many individuals and organisations (non-government and government), who have worked tirelessly over the years to protect Hong Kong’s natural environment.
3
Contents
Executive Summary .....................................................................................................4
Introduction ..................................................................................................................9
Step 1: Identifying and Engaging Stakeholders ...........................................................12
Step 2: Assessing National Biodiversity and its Links with Human Well-being ...........16
Step 3: Developing a Strategy .....................................................................................23
Step 4: Developing a Plan of Action ...........................................................................28
Step 5: Implementing the BSAP ..................................................................................33
Steps 6 and 7: Monitoring and Evaluating Implementation, and Reporting ..............36
Conclusions and Next Steps .......................................................................................38
Glossary of Acronyms ................................................................................................39
Appendix 1: The Convention on Biological Diversity (CBD) and Biodiversity Strategies and Action Plans (BSAPs) ..................................39
Appendix 2: Strategic Goals and Aichi Biodiversity Targets from the Strategic Plan 2011-2020 ......................................................................41
Appendix 3: Key Principles of the CBD ......................................................................43
Appendix 4: Additional Information on Communication and Education ..................44
Appendix 5: Tools for Mainstreaming Biodiversity ...................................................46
Appendix 6: Illustrative Examples of Priorities, Objectives, Targets and Actions for Hong Kong .......................................................48
Appendix 7: Illustrative Conservation Actions for Hong Kong Mapped onto Aichi Targets ...................................................................49
Endnotes ....................................................................................................................51
4
Executive Summary
The status of Hong Kong’s biodiversity
Hong Kong, despite its small size, is home to extraordinarily rich biodiversity. Its wildlife species, and the terrestrial and marine ecosystems they depend on, are significant on a regional and global scale. Locally, these ecosystems underpin the health, well-being and quality of life of Hong Kong people. They make Hong Kong one of the most naturally beautiful and liveable cities in Asia.
Unfortunately, Hong Kong’s biodiversity and ecosystems are under severe threat from development and other pressures, and Hong Kong’s consumption patterns also impact on biodiversity elsewhere on the planet. The current legislative and administrative framework for conservation does not provide adequate or comprehensive protection to biodiversity within and beyond Hong Kong’s borders. Without urgent action, Hong Kong will lose invaluable and irreplaceable natural assets, undermining its future prosperity, health and quality of life.
In 2011 the UN Convention on Biological Diversity (CBD), a historic global agreement to halt the alarming global declines in biodiversity, was extended to Hong Kong. The CBD requires member parties to develop Biodiversity Strategies and Action Plans (BSAP) in line with internationally agreed goals and targets, and begin implementing them by 2015.
Purpose of this report
This report sets out how Hong Kong can develop a BSAP, based on CBD guidance and principles, so that effective and urgent action is taken to halt the loss of biodiversity. It recommends actions within each of seven key steps and the necessary administrative requirements to deliver them. One essential principle is that it should be developed through an open and participatory process involving Hong Kong-wide stakeholder dialogue. The increasing scale of human impacts on the environment and growing awareness of its complexity also means that, in the case of uncertainty, precaution should counter the presumption in favour of development.
A BSAP developed in accordance with CBD goals and targets needs to go far beyond the current conservation policy in scope and ambition and will have implications at all levels of government and society. It will require high-level leadership and commitment at an international level. It is not yet certain what the ultimate actions will be, but they will include recommendations to protect sensitive ecological sites; recommendations on amendments to legislation, policy and institutional arrangements; recommendations for mainstreaming biodiversity into government policy; communication, education and public awareness activities; and further research.
Benefits of an effective BSAP for Hong Kong
The benefits of an effective BSAP for Hong Kong will be enormous and far-reaching and will:
Protect the biological assets that underpin the health, well-being and quality of life of Hong Kong peopleEnhance Hong Kong’s reputation as “the best place to live” in ChinaEnhance trust in, and the reputation of, the Government through compliance with international agreements, the
rule of law and the principles of democratic governanceEnhance community character and spirit through active involvement in the processReduce potential for conflicts and avoid costly legal battles through early engagementEnable better, more informed decisions to be made, through access to the best evidenceIncrease certainty for planning and development through clear conservation priorities and targetsSlow global and regional biodiversity loss and its many costs to humanity
5
Deliverables from this process
• A vision for Hong Kong’s biodiversity• A statement of the principles that underpin the BSAP development• A published Biodiversity Strategy with priorities, long term goals and short-term targets for conservation
reflecting CBD priorities, goals and targets• A published Biodiversity Action Plan with specific measures that will enable the targets to be met• A budget document and programming for each action in the BSAP• A basket of indicators for monitoring purposes• Identification of partners for implementation• A participatory system to monitor the status of biodiversity and indicators• Regular reports on progress towards targets• A publically accessible reporting system on status of actions taken• A communication, education and public awareness strategy
Achieving this will require a systematic review and community endorsement of the following:
• Hong Kong’s biodiversity status and trends, including threats• The existing institutional framework for conservation, including legislation and administrative practices and
identification of weaknesses in ecological protection. This includes a review of the Environmental Impact Assessment Ordinance (EIAO) and Sustainability Assessment (SA) process
• How Government plans, programmes and projects impact on biodiversity, both positively and negatively• The drivers of biodiversity loss both within and outside Hong Kong’s borders• The value of biodiversity and ecosystem services to Hong Kong• The traditional knowledge possessed by indigenous and local communities, which can provide insights into
biodiversity conservation and sustainable use• The various CBD goals, objectives and targets, in order to see how relevant they are to Hong Kong
Administrative requirements for developing a BSAP
1. The formation of a high-level, cross-bureaux Biodiversity Steering Committee within Government to provide executive overview and support
2. The formation of a Biodiversity Working Group of Government and non-Government experts to provide day-to-day management and drive the process forward
3. The appointment of a number of expert task forces to conduct specific time-limited tasks4. The provision of salaries, honoraria, accommodation, support services (secretarial, administration costs,
transport, etc.) to the Working Group for the duration of the project5. Identification of tasks that need to be outsourced to expert task forces, consultancies or others6. Estimation of the costs associated with the above and creation of a Budget Document for development of the
BSAP
Figure 1 provides a summary of the seven steps, key tasks and recommended timing for Hong Kong, to enable the city to start implementing the BSAP by 2015. A detailed recommended timeline for each action (up to implementation of the BSAP) is shown in Table 1.
6
Figure 1: Flow diagram of recommended BSAP process and timeline (Note: key tasks numbers link to corresponding session numbers)
Step
Key
task
sTi
me
line
2013 2014
1.1 Establish a high level Biodiversity Steering Committee
1.2 Establish an operational Biodiversity Working Group
1.3 Develop a budget document for BSAP development
1.4 Establish a Communications and Education Task Force
1.5 Brief key decision-makers and stakeholder groups
1.6 Organise workshop to introduce the BSAP process
2.1 Agree mechanisms for gathering information and data
2.2 Conduct systematic review of known biodiversity status and trends
2.3 Initiate development of a Hong Kong “Red List”
2.4 Review existing institutional framework for conservation
2.5 Review impacts of existing Government programmes on biodiversity
2.6 Review the drivers of biodiversity loss
2.7 Review biodiversity and ecosystem services benefits
2.8 Review traditional knowledge of indigenous and local communities
2.9 Organise series of biodiversity assessment workshops to review data
3.1 Organise workshop to develop a vision and principles for the BSAP
3.2 Organise a workshop to develop priorities for the Action Plan
3.3 Working Group review goals, objectives and targets
3.4 Organise a series of workshops to set objectives and targets
3.5 Publish the Hong Kong Biodiversity Strategy
1 2 3
Jan - Jun Jul - Dec Jan - Jul
Identifying and Engaging Stakeholders
Assessing Hong Kong’s Biodiversity and links with well being• Baseline data• Status• Threats• Benefits• Institutional framework
Developing a Strategy• Vision• Principles• Priorities• Targets – based on
Aichi targets
7
2015 2020
4.1 Develop actions for conservation through a participatory process
4.2 Conduct detailed research on benefits
4.3 Confirm programming4.4 Develop a budget
document for resourcing implementation
4.5 Identify indicators for monitoring
4.6 Peer review and adoption
4.7 Publish the Hong Kong Biodiversity Action Plan
5.1 Working Group oversees implementation of actions
5.2 Identify partners5.3 Develop a
Communications and Education Strategy
5.4 Develop a strategy to build political support
6.1 Develop a participatory monitoring system
6.2 Monitor the status and trends of indicators
7.1 Publish regular reports on progress towards targets
7.2 Develop a publically accessible and integrated reporting system
Revise Plan where necessary based on monitoring and evaluation
4 5 6 7
Aug 2014 - Apr 2015
Implementing the BSAP
Monitoring and Evaluation
Developing a Plan of Action• Actions• Programming • Resources• Coordination
structures• Monitoring approach –
indicators
Reporting
8
Tabl
e 1:
Det
aile
d tim
elin
e of
key
tas e
)
Gro
up(s
)N
o.Ta
sk20
1320
1420
15
Q1
Q2
Q3
Q4
Q1
Q2
Q3
Q4
Q1
Q2
Step
1St
ep 2
Step
3St
ep 4
CE/S
EB1.
1Es
tabl
ish B
iodi
vers
ity S
teer
ing
Com
mitt
eeCE
/SEB
1.2
Esta
blish
Bio
dive
rsity
Wor
king
Gro
upW
G1.
3De
velo
p a
Budg
et D
ocum
ent f
or B
SAP
deve
lopm
ent
CET
1.4
Deve
lop
com
mun
icati
ons/
educ
ation
stra
tegy
WG
1.5
Brie
f dec
ision
-mak
ers
WG/
CET
1.6
Org
anise
wor
ksho
p to
intr
oduc
e th
e BS
AP p
roce
ssW
G2.
1Ag
ree
mec
hani
sm fo
r gat
herin
g in
foET
F2.
2Re
view
kno
wn
biod
iver
sity
stat
us a
nd tr
ends
ETF
2.3
Initi
ate
deve
lopm
ent o
f Hon
g Ko
ng R
ed L
ist o
r equ
ival
ent
ETF
2.4
Revi
ew e
xisti
ng in
stitu
tiona
l fra
mew
ork
for c
onse
rvati
onET
F2.
4Re
view
mai
nstr
eam
ing
tool
sET
F2.
5Re
view
impa
cts o
f Gov
ernm
ent w
ork
on b
iodi
vers
ityET
F2.
6Re
view
driv
ers o
f bio
dive
rsity
loss
ETF
2.7
Revi
ew b
iodi
vers
ity a
nd e
cosy
stem
serv
ices
ben
efits
ETF
2.8
Revi
ew tr
aditi
onal
kno
wle
dge
of in
dige
nous
/loca
l peo
ple
WG/
CET
2.9
Org
anise
serie
s of b
iodi
vers
ity a
sses
smen
t wor
ksho
ps
WG/
CET
3.1
Org
anise
wor
ksho
p to
dev
elop
visi
on a
nd p
rinci
ples
WG/
CET
3.2
Org
anise
wor
ksho
p to
dev
elop
prio
rities
WG
3.3
Revi
ew C
BD g
oals/
obje
ctive
s and
targ
ets
WG/
CET
3.4
Org
anise
serie
s of w
orks
hops
to se
t obj
ectiv
es/t
arge
tsCE
T3.
5Pu
blish
the
Hong
Kon
g Bi
odiv
ersit
y St
rate
gyW
G/CE
T4.
1O
rgan
ise w
orks
hops
to d
evel
op a
ction
s ET
F4.
2Co
nduc
t det
aile
d re
sear
ch o
n be
nefit
s of b
iodi
vers
ityW
G4.
3Co
nfirm
pro
gram
min
gW
G4.
4De
velo
p Bu
dget
Doc
umen
t for
BSA
P im
plem
enta
tion
WG/
CET
4.5
Org
anise
wor
ksho
p to
Iden
tify
indi
cato
rsW
G4.
6Pe
er re
view
and
ado
ption
CET
4.7
Publ
ish th
e Ho
ng K
ong
Biod
iver
sity
Actio
n Pl
an
Tabl
e 1:
Det
aile
d tim
elin
e of
key
task
s
CE =
Chi
ef E
xecu
tive;
SEB
= Se
cret
ary
of E
nviro
nmen
tW
G =
Wor
king
gro
upCE
T =
Com
mun
icati
ons a
nd E
duca
tion
Task
forc
eET
F =
Expe
rt ta
sk fo
rce
9
Introduction
In 2011, the Convention on Biological Diversity (CBD) was extended to Hong Kong
In 2011, the UN Convention on Biological Diversity (CBD), a historic global agreement to take urgent and effective action to halt the alarming global declines in biodiversity, was extended to Hong Kong. This provides the opportunity for Hong Kong to give conservation the priority it deserves and to develop a world-class conservation framework.
Hong Kong’s biodiversity is significant regionally and internationally
Hong Kong, despite its small size1 and long history of human activities, is home to extraordinarily rich biodiversity, including species found nowhere else in the world.2 For a variety of reasons, Hong Kong remains one of the best-preserved areas for some of the rich diversity of wildlife and ecosystems that was once characteristic of South China. It is effectively a genetic storehouse for China, as it holds significant global populations of many wildlife species.3
In addition to its intrinsic value, Hong Kong’s natural environment provides enormous value through, for example, the provision of seafood and crops; the collection of drinking water in the country park watersheds; the mitigation of flooding by wetlands and forested areas; the cleaning and cooling of the air by vegetation; and the physical, mental and spiritual benefits of experiencing nature. These ecosystem services, as they are known, are underpinned by biodiversity and are also protected by the CBD. They are not simply a “nice-to-have” luxury; rather, they are essential for future prosperity, well-being and survival, and make Hong Kong one of the most naturally beautiful and liveable cities in Asia.
Biodiversity is under severe threat
Unfortunately, Hong Kong’s biodiversity is under severe threat from, amongst other things, habitat destruction due to infrastructure development and illegal damage of sites; over-fishing; pollution; climate change and invasive species. Some sources suggest that in only eight years between 2000 and 2008, Hong Kong lost around 65 percent of its area of freshwater/brackish wetland4, and since 1997 it has lost over 900 hectares5 of marine habitat. Part of the problem has been inadequate administration and enforcement of existing laws and standards. However growing human population in Hong Kong and the need to satisfy the demand for land pose a particular challenge for balancing conservation and development.
Hong Kong’s consumption impacts on biodiversity elsewhere
In addition to the damage within its borders, Hong Kong’s consumption patterns also impact on biodiversity elsewhere on the planet. Hong Kong’s ecological footprint is equivalent to an area 100 times its own land and sea area.6 If everyone in the world lived a similar lifestyle, we would need the equivalent of 2.2 planets. Furthermore, 20 to 30 percent of timber consumed in Hong Kong may be from illegal sources, and much of the seafood from the 150 countries and territories that supply Hong Kong is produced unsustainably.7 Hong Kong has a responsibility under the CBD – as well as a moral responsibility – to ensure that its activities do not cause environmental damage elsewhere. It also has a responsibility to restore degraded ecosystems.
New approach to manage threats is needed
A fundamentally new approach to conservation is necessary in order to properly address the threats to biodiversity and ecosystem services in Hong Kong and beyond its borders. The current legislative and administrative framework for conservation does not provide adequate or comprehensive protection to Hong Kong’s wildlife and ecosystems. Degradation continues in even the most biologically important areas, and habitats are becoming fragmented, making them less able to support viable populations of plants and animals. Without urgent action, Hong Kong will lose invaluable and irreplaceable assets. It will also undermine the health, well-being and quality of life of current and future residents.
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Under the CBD Hong Kong should develop and implement a BSAP by 2015
The CBD requires member parties to develop Biodiversity Strategies and Action Plans (BSAPs) in line with internationally agreed goals and targets, and to begin implementing them by 2015 (see Appendix 1 for details).
This paper recommends a cyclical and adaptive seven-step planning process8 for developing a BSAP (see Figure 2).
Figure 2: The recommended process for developing a BSAP9
Biodiversity Assessment
Developing a Strategy
Developing an Action Plan
Bringing Stakeholders Together
Reporting
Monitoring & Evaluation
Implementation
This report sets out how Hong Kong can develop a BSAP based on CBD guidance
This report sets out how Hong Kong can develop and implement a BSAP, based on CBD guidance and principles and global best practice, so that it can take effective and urgent action to halt the loss of biodiversity. It details what needs to be done at each of the seven stages to enable Hong Kong to reach the target of implementing a BSAP by 2015 (the timeframe is simply based on a reasonable division of time for the tasks). Figure 1 shows a summary of the key tasks and timing for Hong Kong, with detailed timing in Table 1.
This will enable the CBD to be fully implemented in Hong Kong
A BSAP developed in accordance with international guidance will enable the CBD to be implemented in full in Hong Kong as a priority. It will ensure that the key principles of the Convention (see Appendix 3 for more details) are properly interpreted and respected. This includes the need to develop the BSAP through an open and participatory process involving Hong Kong-wide stakeholders. The increasing scale of human impacts on the environment and the growing awareness of its complexity also means that, in the case of uncertainty, precaution should counter the presumption in favour of development.
12
3
4 5
6
7
11
This will be no small task but the benefits will be enormous and far-reaching
Ultimately, this BSAP will provide for the proper protection and management of Hong Kong’s wild animals, plants and ecosystems, and sustainable use of its components at home and abroad. This will be no small task, and will require significant time and resources.10 However Hong Kong is in a better position than many other parties to afford the necessary financial support, and the benefits for Hong Kong will be enormous and far-reaching, including:
• Protection of, and investment in, the biological assets that underpin our survival and affect the health and well being of Hong Kong people and others. These provide numerous physical, psychological and spiritual benefits including food, drinking water, air purification, flood and hazard prevention, climate stabilisation, aesthetic values, recreation and spiritual sustenance
• Long term economic and social benefits and synergies with other policy areas such as health, education and tourism
• Improvements to the quality of life and maintenance of Hong Kong’s reputation as the best place to live in China
• Protection of potentially valuable genetic resources• Increased dependability of food supplies• Enhanced trust and reputational benefits for the Government at a local and
international level through compliance with international agreements, the rule of law and the principles of democratic governance
• Reduced potential for conflicts and avoidance of costly legal battles by early identification of challenging issues through early engagement and mainstreaming ecological concerns into government planning
• Improved government staff motivation and job satisfaction due to better public relations
• More informed decisions, through access to the best evidence gathered from a wide range of stakeholders
• More certainty for the planning and development process by having set conservation priorities, more comprehensive data, and clear targets and actions
• Greater public buy-in and support for the strategies and actions through early involvement and education of the benefits of conservation
• Reinforcement of the growing positive community spirit for environmental protection and increased civic pride
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Step 1: Identifying and Engaging Stakeholders
Summary of CBD guidance
BASP should be developed in an open, participative and transparent manner
One of six guiding principles for developing a BSAP is that, in order to be effective, it should “be jointly developed, adopted and owned by the full range of stakeholders involved. The process should be open, participative and transparent.” 11
There should be participation at all levels
Further, there is a need to “enable participation at all levels to foster the full and effective contributions of women, indigenous and local communities, civil-society organizations, the private sector and stakeholders from all other sectors in the full implementation of the objectives of the Convention and the Strategic Plan”.12
The guidance on stakeholder involvement13 recommends:• Involving as many relevant societal stakeholders as possible right at the outset
because their buy-in and participation is key to the effective implementation of the BSAP.
• That all sectors and social categories that have an interest in the issue should be invited to participate (though not all stakeholders will be involved at every stage).
• Parties should form a small representative group of stakeholders who are willing to be part of the BSAP committee/working group. There should also be a broad range of participants wanting to be consulted, but not involved in drafting and organising.
Top-down development of the BSAP by biodiversity experts is explicitly not recommended by this paper.
“The BSAP process is as much a social, economic and political process as it is a technical one. It is an opportunity to bring different societal groups and diverging interests together.”14
Recommended Tasks
1.1 Establish a high level Biodiversity Steering Committee
Buy-in of the BSAP implementation at the highest administrative levels is vital
The Chief Executive has demonstrated his commitment to implement the CBD.15 However there needs to be buy-in at the highest administrative levels, and it must be seen as a responsibility that cuts across all Government and not as a narrow area of responsibility for the Environment Bureau.
A Biodiversity Steering Committee should be set up to secure high level government support
It is important to secure high-level government support in the process of developing and implementing the BSAP – not only from the Chief Executive, Chief Secretary (CS) and Financial Secretary, but also from key policy bureaux. Ideally this would take the form of a small committee (with an ideal maximum of five to seven members) under the CS Committee, chaired by the Secretary for the Environment (at least D3 level), with members drawn from key bureaux (ideally Financial Services and the Treasury; Development; Transport and Housing; Food and Health; Home Affairs and Education). This group will not be the ones to make day-to-day decisions about the development of the BSAP process. They will, however, provide the political legitimacy for any decisions that arise from the Working Group, ensure support from other bureaux and departments, and approve and help to secure funding and other necessary resources to support the BSAP preparation. Establishing a clear coordination structure, lines of communication and institutional responsibilities at the outset can help facilitate a streamlined and organised process.
13
1.2 Establish an operational Biodiversity Working Group
A wider body than AFCD and EPD is needed
Although the Agriculture, Fisheries & Conservation Department (AFCD) and Environmental Protection Department (EPD) are responsible for implementation of the CBD, no single body has the information and experience to develop the BSAP on its own. An operational Biodiversity Working Group should be established which will be responsible for developing and driving the BSAP process; collating evidence and commissioning research; ensuring the process is open and participatory; keeping the programme on track; and reporting to the Biodiversity Steering Committee and other key bodies, e.g. Legislative Council (LegCo), Country and Marine Parks Board (CMPB), Advisory Council on the Environment (ACE), Council for Sustainable Development (CSD). The Working Group will comprise Government and non-government members familiar with a wide range of marine and terrestrial conservation issues. Government members should include officers from AFCD, EPD and Planning Department, as well as from other key departments based on relevant expertise.
The Working Group should be properly resourced and have government and non-government co-chairs
Non-government members need to be of sufficient calibre and expertise. The work requires a high level of commitment over two years; therefore they should ideally be paid on a level with their government counterparts. Individuals with any potentially adverse conflict of interest should not be eligible. Some members may be drawn from existing forums such as the CMPB, ACE and CSD, but it would not be appropriate to make those forums responsible for managing the process, due to the workload and specific nature of the task. A senior government official (who would also sit on the Biodiversity Steering Committee) should chair the committee, and a non-governmental member should co-chair it. An adequately resourced Secretariat should support the Working Group, and the Group should have its own premises.
Example Box 1: The England Biodiversity Group
The England Biodiversity Group, chaired by the Department for the Environment, Food and Rural Affairs (Defra), advises Government on biodiversity policy and the implementation of the UK Biodiversity Action Plan in England. In particular, it oversees the development and delivery of the Biodiversity Strategy for England. Six sector and five crosscutting groups currently support the implementation of the England Biodiversity Strategy.16
The Working Group can set up task forces and co-opt experts for specific tasks
The Working Group’s first tasks will include a review of the suggested programme for developing a BSAP. It will need to identify items that can be achieved internally (by the Working Group and its Secretariat), and others that may need to be contracted out or require further funding. In order to ensure operational efficiency, the Working Group should remain fairly small. It may, however, set up task forces and co-opt additional members and experts to work on specific issues. Ideally one government and one non-government member of the Working Group will head each task force. Membership should therefore be based on expertise relevant to the core tasks of the group.
Appropriate members should be identified at the earliest stage
The guidance recommends this group be set up at the end of Step 1; however, given the urgency of the process, it is recommended that appropriate members be identified as early as possible. This does not preclude additional members being added or co-opted at a later stage.
14
1.3 Develop a Budget Document for development of the BSAP
The Working Group should develop a Budget Document for the development of the BSAP
The Working Group will also need to develop a budget document for the development of the BSAP – a guide on the steps to be taken and their costs for the duration of the BSAP development process. The budget document may need to cover items such as core costs (staffing and salaries, rental expenses, travel); plus costs associated with full stakeholder participation (workshops, travel, consultancies, training and capacity building, public awareness and education initiatives).17 Some of the core costs can be met through the normal operating budget of the Environment Bureau, but it is likely additional funding will be necessary.
1.4 Establish a Communications and Education strategy for BSAP development
Effective communication can increase buy-in and reduce conflicts
There has been little publicity about the CBD in Hong Kong and the implications for Hong Kong are poorly understood outside the biodiversity community.18 Only through effective communication will the issues in the BSAP truly become priorities. There is also potential for conflict from certain groups whose livelihoods are threatened or perceived as being threatened by conservation (but who often stand to gain most in the long term from effective conservation). The most effective way to gain ownership of the process and minimise conflicts is through an extensive engagement programme at the outset, and throughout the process. Some groups may need targeted engagement to ensure their involvement and buy in.
A task force should be set up to develop a communications strategy for BSAP development
The Working Group should set up a task force at an early stage to develop a communications and education strategy for development of the BSAP. The task force should include government and private sector experts in marketing, communications and education. Resources will need to be allocated at an early stage. Communication and education activities are crucial both for (1) developing the BSAP to ensure that the wider community is engaged, and education and awareness-raising opportunities are maximised; and (2) implementing the BSAP, as it is likely that many of the targets will require public support and/or involvement.
The main tasks are to raise awareness about the BSAP, identify target groups, and organise multi-stakeholder workshops
The main communication and education tasks will be to:• Develop communication tools to raise awareness about the CBD, BSAP process
and value of biodiversity and, at later stages, to incorporate information gathered• Identify key decision-makers and stakeholders. At each stage in the BSAP
process, the target groups need to be defined and the appropriate medium for communication chosen
• Identify groups who can help publicise the BSAP activities and raise awareness about biodiversity through their own programmes (i.e. existing committees for environmental education as well as groups with an active interest in the issues)
• Organise (or contract out) a number of multi-stakeholder workshops (or an alternative process which is open and participatory) which ensure that individuals from different sectors can hear other views and educate each other
See Appendix 4 for more details on some of these tasks.
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1.5 Brief Key decision-makers and stakeholder groups
The Working Group should brief key decision-makers and stakeholders about the BSAP
Representatives from the Biodiversity Working Group should brief all relevant boards and committees on the process and encourage their involvement. Examples of relevant boards and committees include CMPB, ACE, CSD, LegCo Panel on Environmental Affairs, Town Planning Board (TPB), District Councils, etc., as well as key stakeholder groups such as Heung Yee Kuk, rural committees, fishing organisations, green groups, etc.
1.6 Organise a workshop to introduce the BSAP process
A multi-stakeholder workshop should be organised to introduce the BSAP process
One large workshop, open to all stakeholders, should be organised to introduce the CBD, explain the process of developing the BSAP and elicit initial views. See Appendix 4 for the principles for organising these. The list of target groups/individuals identified by the communications task force can be contacted directly. However the workshop should be open to any member of the public and it should be promoted as such.
Individuals would need to register for the workshop, and a short bilingual paper on the background and context of a BSAP and the outline development process would be sent to them in advance. The workshop should focus on key questions about the process, rather than discussion of the issues at this stage.19 The Working Group may subsequently need to amend the BSAP process in the light of the discussions at the workshop.
Recommended timeline: January - June 2013
This paper recommends a timeline of six months for this step, in order to enable the employment of non-governmental members and the finding, leasing and fitting out of accommodation. This step could, however, be expedited if the non-governmental members are not employed, and if the group uses existing resources for accommodation.
High level support is necessary; along with the right structures in place and full and open participation
This is a relatively straightforward but important step. Key is getting high level support and the right decision-making and coordination structures in place at the outset. To keep the process on track the Working Group will need extremely effective project management and an efficient secretariat. It is also essential that there is a commitment to full and open participation in the process – for, ultimately, conservation efforts can only truly succeed with society’s support.
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Step 2: Assessing Hong Kong’s Biodiversity and its Links with Human Well-beingKey information is needed to set priorities and targets for conservation
Hong Kong can only set priorities and the necessary targets for proper conservation and restoration of its resources by knowing what biodiversity and ecosystem services the SAR has; what is threatening them, what tools it has to protect them, and what is missing.
Summary of CBD guidanceThis step is to assess biodiversity status, threats, benefits, tools for conservation and data gaps
This step is a stocktaking exercise to determine what is already known about the following: status and trends of Hong Kong’s biodiversity and biological resources, drivers of biodiversity loss, relationships between biodiversity and human well-being, the framework of laws, policies, programmes and expenditure, the ways in which different policy instruments might affect biodiversity in positive and negative ways and any policy gaps, analysis of how all the areas of work of government impact upon biodiversity, relevant organisations and human and technical capacity, traditional knowledge of indigenous and local communities, assessment of public awareness of biodiversity conservation, and an assessment of data gaps.20
Data collected will form the basis of goals and objectives for the BSAP
The information collected will form the basis for the establishment of goals and objectives for the BSAP. It will also help to determine what actions are necessary to implement the CBD and will be crucial in developing a communications strategy. This step involves bringing together existing information – any new research required should be undertaken simultaneously with other activities, rather than beforehand.
The Working Group should aim to have a good understanding of conservation needs
By the end of this step the Working Group should aim to have:• A reliable and updated understanding of the status and trends of biodiversity,
spatial components, threats to biodiversity, and the origins of those threats• A clear understanding of the importance of biodiversity in the area• A firm understanding of the existing legal and administrative framework, as well as
existing institutional and human capacities• A good understanding of the CBD Strategic Plan and Aichi Targets (see Appendix 2)• A list of gaps, opportunities and needs to be addressed in the BSAP
Recommended tasks
2.1 Agree on a mechanism for gathering and verifying information and data
There is a need to gather significant amounts of information in a short time
Hong Kong is one of the best studied places in Asia regarding biodiversity. However stocktaking requires a significant amount of existing knowledge and information from government, universities, NGOs and other experts to be brought together, assessed, analysed and information gaps identified for further research. The known information and data needs to be compiled in objective, effective, efficient ways that draw on the knowledge and experience of the wider community, especially given the relatively short time available.
Table 2 below outlines recommended arrangements – although the Working Group should agree on the best way to compile the knowledge and information. Whichever option is chosen, the broader community should be engaged (through workshops or other means) to verify the compiled information, incorporate additional data, identify or agree data gaps and reach a consensus on the analysis.
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Table 2: Recommended arrangements for gathering information
Body Recommended expertise Tasks
Task force on biodiversity status and trends Ecological expertise from AFCD, universities, specialist organisations (e.g. Kadoorie Farm & Botanic Garden, WWF-Hong Kong, natural history societies), ecological consultants and local amateurs
2.2 and 2.3
Task force on conservation framework and mainstreaming
Legal, administrative, planning and land expertise
2.4 and 2.5
Task force on drivers of biodiversity loss Ecological and environmental expertise 2.6
Commissioned experts or consultants Knowledge of environmental and ecological economics
2.7
Commissioned experts or consultants Knowledge of traditional farming, fishing and Chinese herbal medicine practices
2.8
When gathering data, cross-check with Aichi Targets
When gathering information, it would also be useful to cross-reference with the Aichi Targets (see Appendix 2). This will help to determine what questions need to be answered and what information needs to be generated for target setting.21
Example Box 2: The status of biodiversity in British Columbia
In 2005 Biodiversity BC (a partnership of governments and NGOs) was given the mandate to develop and facilitate the implementation of a science-based biodiversity strategy for British Columbia. The 2008 report, Taking Nature’s Pulse: The Status of Biodiversity in British Columbia22, summarised the current scientific knowledge about the state of biodiversity and threats to biodiversity in British Columbia. It was the result of two years of consultation by Biodiversity BC with more than 100 scientists and other experts. It involved a series of expert workshops, the commissioning of a related document - Ecological Concepts, Principles and Applications to Conservation - to provide the broad context for the development of the status report. It also involved 12 supporting scientific and technical reports commissioned from experts in the field and reviewed by members of Biodiversity BC, as well as external peer reviewers.
2.2 Conduct a systematic review of known biodiversity status and trends
Hong Kong lacks a comprehensive ecological database
AFCD’s GIS-based database of territory-wide ecological data has incorporated the 1996 to 1997 HKU Biodiversity Survey findings23 and data from several experts. However, it is currently not available to the public that funded it, or even to the biodiversity community, so it is unclear what gaps exist or to what extent the data can be used to assess long-term trends. And the AFCD database does not include all ecological data from other sources such as universities, local amateurs and specialist NGOs (due to AFCD concerns about accuracy and data verification), so it is likely to be lacking in some key areas, including the marine environment. The CBD requires assessment of data on three levels – ecosystem, species and genetic diversity – and it is unlikely that any one agency can collect and update all the necessary data.
Task forces should be set up to conduct a systematic review of known biodiversity status and trends
A series of biodiversity expert task forces (marine, freshwater and terrestrial) should be set up to systematically review all known data on biodiversity status (at the ecosystem, species and genetic levels) and trends. The review should include biodiversity both within and outside protected areas, and link in with data from southern China, using Mainland expertise where possible.
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All known information relevant to a species’ conservation status should be collected including past and present distribution, any evidence of reduction in natural genetic diversity, population trend information, habitat association and habitat trend, past, current and anticipated threats, conservation responses etc. This will help to identify gaps and highlight areas for future research and monitoring. This work should ultimately lead to a more widely accessible GIS database that would allow other groups to contribute data in a way that satisfies AFCD requirements.
Example Box 3: The state of biodiversity in the Western Cape
The 2007 CapeNature Report on the State of Biodiversity in the Western Cape24 (a province in South Africa) reports on the status of biodiversity (fish, amphibians, reptiles, mammals, avifauna, flora and vegetation). In addition, a chapter on land-use and protected areas, and a chapter on freshwater ecosystems report on the state of ecosystems and habitat both inside and outside of protected areas. The data incorporated for each class of organisms include methods; distribution data; endemism (list of species); conservation status (e.g. threatened, vulnerable, etc.); habitat status; threats; invasive alien species; monitoring; legal status; public awareness; research; capacity; conclusions and recommendations.
2.3 Initiate development of a Hong Kong Red List or equivalent
Hong Kong lacks a means to identify the most threatened species or ecosystems
The IUCN Red List of Threatened Species provides taxonomic, conservation status and distribution information on plants and animals that have been globally evaluated using the IUCN Red List Categories and Criteria. This system is designed to catalogue and highlight those plants and animals that are facing a higher risk of global extinction (i.e. those listed as Critically Endangered, Endangered and Vulnerable). In 2003, IUCN developed a set of quantitative criteria to assess the conservation status of species at the regional and national level. Hong Kong, whose area is too small for direct application of these criteria, lacks a Red List or equivalent,25 which would identify those species or ecosystems under the greatest threat. It would also inform conservation planning and priority setting, as well as raise awareness of threatened species. This includes species that may be locally abundant but are internationally vulnerable.
A system should be developed to enable priority species, habitats and ecosystems to be identified
The work in 2.2 should be a starting point for the development of an International Union for Conservation of Nature (IUCN) Red List of Hong Kong species or equivalent, which enables the species, habitats and ecosystems of highest conservation priority to be identified. Hong Kong lies within the Indo-Burma Biodiversity Hotspot26, probably the area with the most rapid global biodiversity loss on Earth, and it is fundamental that this area be prioritised due to the extreme threats in the region.27 Prioritisation should take into account not only the risk of extinction locally, but also the global dependence of the species on Hong Kong, allowing for projected shifts in climate and range. This assessment will require information on South China biodiversity and threats, gathered from local organisations, e.g. Kadorrie Farm & Botanical Gardens (KFBG) and Hong Kong Bird Watching Society (HKBWS), literature reviews and direct contact with Mainland experts. There may
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not be sufficient time or data to develop a Red List at this stage of the BSAP process; however, the Working Group and its task forces should be properly resourced and remunerated to produce a Hong Kong Red List with criteria adapted for the Hong Kong scale within two years.
2.4 Review the existing institutional framework for conservation
Hong Kong lacks a comprehensive legal and policy conservation framework
Although progress has been made in some areas, Hong Kong still lacks a comprehensive legal framework to protect areas of high conservation value. It also lacks a comprehensive conservation policy and mechanisms for implementing the policy. Some of the weaknesses in existing legislation and administrative practices have already been identified,28 but a systematic and comprehensive review of the current legal and administrative policy gaps is still vital.
A task force should be set up to review the existing and required institutional framework for conservation, drawing on existing critiques and information where possible. This includes all relevant legislation;29 policies and administrative practices; departments and supporting committees and departmental capacities; expenditures; and the ways in which different policy instruments might affect biodiversity (positive and negative). The review should identify weaknesses or gaps in the conservation legislation and administrative framework.
Hong Kong’s biodiversity will be under significant pressure over the next few years
Over the period of the development and implementation of the BSAP Hong Kong’s biodiversity and ecosystem services will be under significant pressure from, for example:
• Possible expansion of infrastructure for energy supply, water, transport and handling/treating waste
• Reclamation for expansion of housing and associated infrastructure, and waste handling/treatment
• Significant Development of New Towns in the New Territories, including the Frontier Closed Area
• Continued development of small houses in the New Territories
Even areas identified as priority conservation sites, such as Sha Lo Tung, are under threat from development due to a failure to apply conservation and Environmental Impact Assessment (EIA) principles and misguided attempts to balance conservation and development.30
The current approaches to mainstreaming biodiversity into projects and programmes need to be reviewed
The Government’s main approach for mainstreaming biodiversity considerations into planned projects is the EIAO, a major piece of legislation, while SA is a tool used for assessing the sustainability (including ecological impacts) of potential Government plans and programmes (see Appendix 5). The EIAO needs strengthening in some areas, while the SA approach appears to have serious limitations in terms of scope, implementation and administration with respect to biodiversity conservation. The SA also lacks transparency and the opportunity for public input. There is a need to review the current approaches, to see how they can be improved and to consider other potential tools (see Appendix 5) for mainstreaming biodiversity considerations into government plans, projects and programmes.
The task force should also initiate a comprehensive review into the existing tools (EIAO and SA) for mainstreaming biodiversity into government projects and programmes. It should also examine other potential mainstreaming tools (see Appendix 5).
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2.5 Review impacts of Government work on biodiversity
Information is needed on the ways in which government work impacts on biodiversity
There is a significant gap in information with respect to the linkages between biodiversity and government policies and programmes. This requires a clear understanding of how each department/bureau uses and benefits from biodiversity and ecosystem services, and how their actions impact on biodiversity and ecosystem services. This information will be critical in terms of identifying mainstreaming actions at a later stage of the BSAP.
A task force should systematically identify the key areas of work of Government (plans, programmes, policies and projects) that impact or potentially impact on biodiversity (see Example Box 4). It should also identify examples of good practice in terms of how departments are conserving, restoring or sustainably using biodiversity and ecosystem services (see Example Box 5).31
Example Box 4: Planning for North-East New Territories New Development Areas32
Planning Department and the Civil Engineering and Development Department (CEDD) conducted a Planning and Engineering Study for the NENT New Development Areas, a proposed a new town development in Kwu Tung North, Fanling North and Ping Che/Ta Kwu Ling affecting an area of 787 hectares. The development would provide 54,000 new housing flats but at significant cost to the countryside. The area includes Long Valley, large areas of agricultural land and a number of high quality streams of conservation importance. It will result in the loss of 246 hectares of agricultural land, and while it proposes designating Long Valley as a Nature Park, it only proposes that 1 hectare be designated as Conservation Area. The cumulative environmental and ecological impacts of these proposals have not been assessed through a Strategic Environmental Assessment (SEA), yet incredibly the SA predicts net environmental improvements and “no insurmountable problems arising from the proposed developments in terms of sustainability”.33
Example Box 5: Greening slopes
CEDD’s Geotechnical Engineering Office has an ongoing ca. HK$300 million/year Slope Safety programme which includes a Landslip Prevention and Mitigation Programme. In response to widespread public concern about the visual and ecological impacts of replacing natural vegetated slopes with man-made shotcreted slopes in urban and rural areas, the Geotechnical Engineering Office produced its 2001 Technical Guidelines on Landscape Treatment for Slopes. The purpose of this 200-plus-page landscape manual, which was updated in 2011, “is to provide technical guidance on landscape treatments for man-made slopes and engineering works on natural terrain, with a view to enhancing slope appearance and making them ecologically acceptable and sustainable.” [emphasis added] The costs and long-term stability of landscaped slopes are broadly comparable with those of hard surfacing. However it can yield a number of benefits, including fewer public complaints, reduction in time to plan and proceed with the works, increased trust and respect from the public, greater professional staff satisfaction, and increased reputational benefits for the department (the first edition of the Publication received Outstanding Green Project Awards 2000 from the Hong Kong Institute of Landscape Architects, the Society of Horticulture and the Leisure and Cultural Services Department).34
The analysis could also be used to develop the scope for a future, more comprehensive review of how Government uses, benefits from and impacts on biodiversity and ecosystem services.
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2.6 Review the drivers of biodiversity loss within and outside Hong Kong’s borders
The Working Group to review the drivers of biodiversity loss within and outside Hong Kong’s borders
A task force should be set up to review existing data relating to drivers of biodiversity loss within Hong Kong’s borders. The drivers include development; land use change; climate change; invasive species; over-exploitation and pollution. It should also look at the impacts of Hong Kong’s production and consumption on biodiversity outside Hong Kong’s borders and identify key areas where Hong Kong is indirectly driving biodiversity loss elsewhere (e.g. through imports of unsustainably harvested tropical timber, seafood and meat).35 This work needs to cross-reference with the threats identified in 2.2 and impacts identified in 2.5.
2.7 Review biodiversity and ecosystem services benefits
Hong Kong lacks good data on the many benefits of biodiversity and ecosystem services
One of the guiding principles for a BSAP is to “highlight the contribution of biodiversity and ecosystem services to human well-being, poverty eradication and sustainable development as well as the economic, social and cultural values of biodiversity” (see Appendix 1). Hong Kong lacks comprehensive data on the many benefits of biodiversity and ecosystem services. Work done to date36 suggests that the measurable economic values of Hong Kong’s natural environment are potentially billions of dollars per year. While development values are of a similar order, they represent one-off rather than annual values. These do not include many ecosystem service benefits that are potentially even more significant, such as health benefits37 and the unquantified but high societal values for areas of high landscape value such as Tai Long Sai Wan, ecosystems such as Mai Po, or iconic flagship species such as the Chinese white dolphins.
Existing data on the benefits should be reviewed
The Working Group should commission a known expert or consultant to conduct a review of the benefits of biodiversity based on work done to date in Hong Kong and elsewhere. While there will be many gaps in the data, this exercise can help to identify areas for future research. The review should include an assessment of ecosystem services (and where information is available, quantification of such benefits) based on the categories developed for the Millennium Ecosystem Approach.38 These are:
• Provisioning Services such as water supply, crops, fish and timber• Regulating Services such as pollination and those that affect climate, floods,
disease, pests, wastes and water quality• Cultural services that provide recreational, aesthetic and spiritual benefits• Supporting services such as soil formation, photosynthesis, and nutrient cycling
2.8 Review traditional knowledge of indigenous and local communities
Indigenous and local communities have a unique status under the Convention. Conservation measures therefore need to be formed in ways that respect their traditional livelihoods, practices and knowledge (there is a specific CBD Target for this). The need for adequate representation of women is also recognised in the CBD text and it is important that indigenous women, often excluded from the decision-making process, are engaged. Recognising and celebrating genuine traditional indigenous knowledge and practices is a good way to engage local communities and may help to ease some of the tensions that exist between conservation and those communities.
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Traditional knowledge and practices that provide insight into conservation should be gathered
The Working Group should commission a local expert(s) to gather genuine traditional knowledge and examples of practices of local communities that can provide insight into biodiversity conservation and sustainable use.39 This could form an important engagement process with indigenous villagers, particularly women, and other local communities. Oral histories from older people, as well as written documentation and knowledge from bodies such as universities, Royal Asiatic Society, etc., can also be very helpful in assessing the biodiversity attitudes and the knowledge and practice of local communities. In turn, this can provide useful cultural resonance and knowhow for conservation and sustainable use. For example, interviews with older members of the fishing community may reveal the locations of seasonal spawning and nursery areas for commercially important marine fishes, which are poorly documented at present.40
2.9 Organise a series of biodiversity assessment workshops
A series of multi-stakeholder workshops should be organised to review and agree on the data
A series of multi-stakeholder biodiversity assessment workshops should be organised to review the stocktaking information gathered above, corroborate the data, add additional information where necessary, and develop an agreed list of gaps and unmet needs. The outputs from this exercise will be a biodiversity status report or suite of reports to be used as the basis for priority setting in the next step, as well as for communications and educational activities.
Recommended timeline: July – December 2013
The development of the BSAP can proceed in parallel with the gathering of comprehensive information
This step involves a considerable amount of data and information gathering, not all of which can be done comprehensively within six months. Further time and research will undoubtedly be needed for certain tasks (e.g. development of a Hong Kong Red List or review of benefits). However the lack of comprehensive information should not delay the development of the Strategies and Action Plan. It is important to remember that a BSAP is a strategic instrument for achieving concrete outcomes, and not a scientific study, review or publication that sits on a shelf. While there are undoubtedly gaps in knowledge, a substantial amount of information exists about the status of Hong Kong’s biodiversity, the trends and the threats it faces – sufficient information to allow for a reasonable attempt at setting priorities and targets. A more precise identification of knowledge gaps can help orient field surveys, monitoring and research activities included in the BSAP (or by universities and NGOs before the BSAP is finalised). This stocktaking step can also allow the scope of such research activities to be developed, or even possibly initiated in parallel with the development of the Strategies and Action Plan.
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Step 3: Developing a Strategy
Summary of CBD guidance
The Strategy should include a vision, principles, priorities, goals, objectives and targets (the latter based on the Aichi Targets)
The strategy is a statement of where a country wants to go. The guidance41 recommends this should include:
• A vision of where Hong Kong wants to be with regards to biodiversity and its relation to human well-being. It is a foundation for long term planning and action. It should appeal to the public at large and inspire collaboration
• Principles to guide the BSAP – the values and beliefs underpinning the BSAP• Priorities – the most pressing issues that can feasibly be addressed in the BSAP
period• Goals, Objectives and Targets – to correspond with the five strategic goals of the
Strategic Plan for Biodiversity 2011-2020 and the 20 Aichi Biodiversity Targets (see Appendix 2)
Recommended gasks
3.1 Organise a workshop to develop a vision and principles for the BSAP
The current conservation strategy will not protect Hong Kong’s biodiversity adequately
Credit should go to AFCD who have managed a significant proportion of Hong Kong Special Administrative Region’s (HKSAR’s) land resources, and fought many conservation battles within and outside Government on a shoestring budget 42 and in the absence of high-level leadership for many years. However, the current conservation policy43 does not provide the level of ambition necessary to protect Hong Kong’s biodiversity and ecosystem services adequately. It should be recognised that a Biodiversity Strategy developed in accordance with the CBD needs to go far beyond this in scope and ambition. It needs all the elements specified by the CBD guidance above (i.e. vision, priorities, goals, targets), as well as wide community participation.
A workshop should be organised to develop a vision and principles for the BSAP
The Working Group should organise a multi-stakeholder workshop to develop a vision and principles for the BSAP based on a briefing paper prepared by the Working Group. This should include the vision from the CBD Strategic Plan and the shorter-term ambition (see Appendix 1) as a starting point.
Principles for BSAPs often include the importance of biodiversity; its benefits to human well-being, the role it plays in the economy; the importance of education; the need for mainstreaming; and the importance of community participation.44 The CBD suggestions could be used as a starting point for engagement to develop principles that are relevant to Hong Kong.
3.2 Organise a workshop to develop priorities for the Action Plan
A workshop should be organised to develop priorities for the Action Plan
The State of Biodiversity Report or reports developed in 2.9 can be summarised as the basis for a briefing paper for a multi-stakeholder workshop to develop priorities for the Action Plan. The priorities are essentially the main themes that will focus actions to conserve biodiversity. The guidance suggests these should be the most pressing issues to be addressed in the BSAP. The guidance stresses the importance of keeping these focussed and realistic to concentrate efforts and resources, to ensure success during implementation. Within each of these priorities a number of goals/objectives and targets will be set.
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Example Box 6: China’s 2010 National Biodiversity Strategy and Action Priorities (NBSAP)45
Protection priority: to give prioritised consideration to biodiversity protection in economic and social developments, and to take active measures to implement effective protection of important ecosystems, species and genetic resources, so as to ensure ecological security.
Sustainable use: to prohibit the invasive exploitation of biological resources, and to facilitate research and promotion of sustainable technologies. This is to ensure that biological resources are scientifically, reasonably and orderly used.
Public participation: to enhance the promotion and education of biodiversity conservation, actively lead the broad participation of social groups and grassroots communities, strengthen information disclosure and public scrutiny, and to establish an effective mechanism of biodiversity protection where the whole society can participate.
Benefits Sharing: to promote the establishment of an access and benefits sharing system for biological genetic resources and related traditional knowledge that fairly and equitably shares the economic benefits generated.
Example Box 7: Australia’s 2010 conservation strategy priorities and sub-priorities46
1. Engaging all Australians (1.1 Mainstreaming biodiversity; 1.2 Increasing Indigenous engagement; 1.3 Enhancing strategic investments and partnerships)
2. Building ecosystem resilience in a changing climate (2.1 Protecting diversity; 2.2 Maintaining and re-establishing ecosystem functions; 2.3 Reducing threats to biodiversity)
3. Getting measurable results (3.1 Improving and sharing knowledge; 3.2 Delivering conservation initiatives efficiently; 3.3 Implementing robust national monitoring, reporting and evaluation)
3.3 Working Group to review goals/objectives and targets
The CBD goals and targets will have far-reaching implications particularly for government
The CBD’s Strategic Goals and Aichi Targets are comprehensive and far-reaching, and while they will need to be adapted for Hong Kong, they are likely to have implications for many government departments and bureaux, and the Hong Kong community as a whole. This means internalising biodiversity concerns into the way development efforts operate and shifting responsibility and ownership for conservation and sustainable use of biodiversity from solely AFCD/EPD to other sectors. While ultimately this should be positive for Hong Kong, in the short to medium term it is likely to require changes to government plans, programmes and administrative practices. This highlights the importance of involving key government departments/bureaux right from the outset.
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The Working Group should review the CBD goals and targets to agree which are relevant
Goals/objectives are long-term goals for the life of the strategy, while targets are short-term measurable goals for the first five years. Because of the large number of goals and targets to be reviewed as part of the BSAP process, it would be helpful for the Working Group, or an expert task force, to do some preparatory work. This would involve review of the following, in order to agree which are relevant and feasible47:
1. The framework of goals and targets established in the updated Strategic Plan (see Appendix 2)
2. The targets of the global Strategy for Plant Conservation48
3. The targets of the Programme of Work on Protected Areas49
CBD’s other thematic programmes of work50 provide detailed guidance. They are considered key tools in updating BSAPs and should also be reviewed. 51
The Working Group should systematically and honestly review the Aichi Targets
Hong Kong’s BSAP does not necessarily require targets equivalent to each of the 20 global Aichi Targets. Instead the Guidance suggests that parties should devise targets that work towards each of the five strategic goals of the Strategic Plan with at least five to 10 targets, one or two for each strategic goal. 52 Depending on local circumstances the targets may need to be more or less stringent than the global targets. However there will need to be a systematic and honest review of the various Aichi Targets (see Appendix 2 for full list) and other CBD targets to assess the following:
• How relevant is the target for Hong Kong?• To what extent is Hong Kong already meeting the target?• What other information is needed to assess how Hong Kong is meeting the
target?• What action will be needed to meet the target?• How much progress towards the target can be achieved in the timeline
specified?• Are there alternative targets that would better meet the five Strategic Goals in a
Hong Kong context?
This work will form the basis of a report used in the next step.
Example Box 8: Assessing relevance and progress towards Aichi Target 11
Aichi Target: “By 2020, at least 17 percent of terrestrial and inland water, and 10 percent of coastal and marine areas, especially areas of particular importance for biodiversity and ecosystem services, are conserved through effectively and equitably managed, ecologically representative and well connected systems of protected areas and other effective area-based conservation measures, and integrated into the wider landscapes and seascapes.”
Around 41 percent of Hong Kong’s terrestrial area is protected (the majority as Country Parks).53 However, the degree to which they are effectively managed, ecologically representative and well connected is in question. Management plans have yet to be developed for the Parks system; the area protected is not fully representative (with lowland, streams and wetlands under-represented); and they are not well connected with each other, with other areas protected by the Town Planning Ordinance, or with cross-border areas of ecological importance.54 To meet the target will require conservation management plans for around 43 percent of the Country Park area55 and adequate connections between the parks and areas in South China to protect whole landscapes and preserve wildlife corridors. For marine areas, where currently the area protected (under 2 percent) is well below the target, there are some questions that need to be addressed. They are as follows. What marine resources need to be protected? What activities need to be controlled in existing or future marine protected areas? How large an area of marine parks/reserves is needed to safeguard marine ecosystems and representative habitats? And how feasible is achieving this by 2020?
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3.4 Organise a series of workshops to set objectives and targets
For each priority area, a participatory workshop should be organised to set objectives and targets
For each priority area identified in the previous step a separate multi-stakeholder workshop should be organised to set objectives and targets. This will help to break down the process into smaller more manageable tasks, and ensure that the most relevant stakeholders attend the workshop. For some targets and objectives, e.g. those relating to protected areas, it may be appropriate for the CMPB or other relevant organisations to lead (or chair) the process.
Target setting should be iterative based on bottom up and top down processes
This should be an iterative process with specific objectives and targets emerging from the biodiversity assessment work in a bottom-up process, to be cross-checked against top-down goals and targets (based on the review from the previous step). Table 3 shows an example of what this might look like in practice.
Table 3: Examples of goals and targets developed through bottom-up and top-down processes
Bottom-up process56 Top-down process
Example of Objective/GoalReverse the decline in Hong Kong’s native biodiversity by 2020
To improve the status of biodiversity by safeguarding ecosystems, species and genetic diversity (CBD Strategic Goal C)
Example of Target(species conservation)
Maintain, expand and improve mechanisms for both in-situ and (in exceptional cases) ex-situ con-servation of Hong Kong’s native biodiversity
By 2020 the extinction of known threatened species has been prevented and their conservation status, particularly of those most in decline, has been improved and sustained (Aichi Target 12)
Draft targets should be assessed against a number of criteria and meet CBD objectives
According to CBD Guidance, draft targets should be assessed against SMART57 criteria, and against the following characteristics.58
• Aim to reduce as much as possible the rate of loss of local, regional and global biodiversity, and/or to reduce one of the direct or indirect drivers of biodiversity loss
• Address all three levels of biodiversity (ecosystem, species, genetic)• Address the three objectives of the CBD (conservation, sustainable use and
benefit sharing)• Be feasible; specific and measurable• Be intricately tied to the BSAP, their goals and objectives, and their policy
measure and actions• Be developed using a participatory, multi-stakeholder process • Be limited in number (i.e. 100 is too many, but there should be at least five to 10
targets, one or two for each strategic goal)
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Targets should be ambitious but achievable
Developing objectives and targets for Hong Kong in line with the CBD goals and targets will require a carefully crafted engagement process based on all the available evidence. Targets should be ambitious but also achievable, and may need to be revised in an iterative process once the action plans and resources planning stages are undertaken. Once the draft objectives and targets for each of the individual priorities have been developed, these will need to be reviewed as a group for internal consistency and to ensure that they address the five strategic goals and three objectives of the CBD. Appendix 7 provides illustrative examples of priorities, objectives, targets and actions for Hong Kong.
Box 9: Summary of terminology
The terminology (priorities, goals, objectives, outcomes, targets) are not used consistently by different countries in their BSAPs and they can be confusing. Whatever terms are adopted for Hong Kong’s BSAP, the important thing to remember is that there should be logical links between them and they should guide action towards the three objectives of the CBD.
Visions, missions and principles: these reflect where Hong Kong wants to be and the values that guide how it gets therePriorities: these reflect the main themes in order to focus actions (no more than five)Objectives, goals or outcomes: long-term goals for the life of the strategyTargets: short-term measurable goals for the first 5 years of the strategy (10 to 20)Actions: steps to achieve progress towards the goals and targets (many)
3.5 Publish the Hong Kong Biodiversity Strategy
The results of this step should be published as the Hong Kong Biodiversity Strategy
The consolidated information from Step 2 (the biodiversity assessment) and this Step (the results of the engagement process in developing the vision, priorities, objectives and targets) should ideally be published – both in detailed form for interested stakeholders and in digest form for the general public. This can help publicise the BSAP process, and raise awareness about the status and benefits of biodiversity and ecosystem services. It would also garner public support for further conservation measures and be a useful resource for educational purposes.
Recommended timeline: January – July 2014
This step requires an effective engagement process and strong management to keep it on track
This is one of the two main stages of the BSAP process (the other being developing the action plan). It will be a challenging task to develop the findings from the biodiversity assessment into ambitious but realistic targets in a fully participatory way. It therefore requires both effective and engaging facilitation mechanisms, as well as strong support from the Working Group and Steering Committee, to keep the process on track.
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Step 4: Developing a Plan of Action
Summary of CBD Guidance
Action Plan should include programming, identifying resources, indicators and monitoring mechanisms
The Action Plan is the vehicle for implementation. According to the guidance,59 it involves:
• Identifying action required to meet the goals, objectives and targets established in the Strategy
• Programming – who does what, where, when and how?• Identifying and securing the human, financial and technical resources to carry
out these actions – it is helpful to estimate how much funding will be required for the various proposed activities under the Action Plan
• Establishing indicators by which progress towards targets will be measured • Developing monitoring and evaluation mechanisms
Mainstreaming is a central part
Mainstreaming biodiversity across government and society should be a central component of a BSAP60 and is a requirement of the CBD.61 Biodiversity policy should not be seen as independent of other government policies; rather, sectoral policies (e.g. energy, housing, transport) and cross-sectoral policies (e.g. development) should be seen as the vehicles through which crucial biodiversity goals need to be attained.62 Actions that need to be taken in support of this include integrating biodiversity into development and planning processes and national accounting; eliminating or reforming subsidies harmful to biodiversity; and implementing plans for sustainable production and consumption.
Recommended tasks
4.1 Organise a series of workshops to develop actions for conservation
Actions developed through an effective and open process
A series of workshops will need to be organised to develop actions based on the targets established in the previous step. This is a key step, and much thought and planning needs to go into how to make this an effective and open process.
Information gathered in Step 2 will help direct the actions
The work conducted for Step 2, the biodiversity assessment – particularly the identification of gaps and weaknesses, and work reviewing mainstreaming approaches – will help direct the actions. CBD principles – such as the Ecosystem Approach and Precautionary Principle (see Appendix 3) should also influence the kind of actions required. The Strategy for Plant Conservation and Programme on Protected Areas also contain a number of suggested actions that are worth reviewing when developing the Action Plan (see Section 3.3).
The Action Plan will likely include changes to policies, legislation, plans and procedures
Contents of the action plan are likely to include:
• Developing, amending and implementing policies, legislation and institutional arrangements
• Improving enforcement of existing legislation• Developing, amending and implementing principles and procedures for good
governance• Improving approaches and tools for mainstreaming• Communication, education and public awareness activities• Identifying further research activities• Protecting sensitive ecosystems (particularly those outside protected areas)• Developing indicators
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Example Box 10: The NBSAP for Timor-Leste63
The NBSAP (2011-2020) for Timor-Leste was guided by the Strategic Plan for Biodiversity 2011-2020 and the Aichi Biodiversity Targets. It contains five Priority Actions and five Priority Targets and 21 Strategic Actions. The NBSAP uses the Ecosystem Approach and notably contains both a Communications, Education and Public Awareness Strategy and Action Plan as well as a Partnership Strategy for addressing financing needs. A priority target of the NBSAP is to establish, by 2015, a national biodiversity monitoring and reporting system.
Until the preparatory work on developing a strategy is conducted, it is hard to know exactly what the action plan will contain. However Appendix 7 shows some illustrative examples of recommended actions for Hong Kong developed through a participatory process are shown in Appendix 7.
Mainstreaming biodiversity is a key requirement and there is no room for complacency
Given the mandate for mainstreaming within the CBD, this is an area that will require special attention within the Action Plan. There need to be meaningful and operational linkages between the BSAP and all aspects of planning. This is a particularly challenging requirement of the CBD, one that few (if any) governments have implemented fully, and Hong Kong cannot be complacent about the need for further action. Becoming a signatory to the CBD means the Government needs to apply CBD principles such as the Precautionary Principle (see Appendix 3) to projects and plans potentially impacting biodiversity.
Mainstreaming tools should be examined for improvement
The review of mainstreaming tools initiated in 2.4 should be used to engage stakeholders on how to improve existing tools, or whether there is a need for new tools (such as those in Appendix 5) or measures. For example, new legislation to enact the BSAP into law could help mainstream biodiversity into government plans and programmes, as Example Box 11 shows.
Example Box 11: The England and Wales Biodiversity Duty
In England and Wales, a 2006 Act requires all public bodies to have regard to biodiversity conservation when carrying out their functions, commonly referred to as the “biodiversity duty”. The aim of this is to ensure that the conservation of biodiversity becomes properly embedded in all relevant policies and decisions made by public authorities. This duty applies to over 900 public bodies. Detailed guidance is available to show them what this means in practice in terms of policies, management of land and buildings, planning, infrastructure and development, education and awareness, and training and resources.64
4.2 Conduct detailed research on benefits of biodiversity and conservation
Further research on benefits can help build political support
The CBD and Strategic Plan (and by extension the BSAP) place great emphasis on the benefits of biodiversity and ecosystem services. While some initial research would already have been done (see task 2.7) and ideally following on from this, further detailed work is recommended on both the benefits of biodiversity and specific conservation measures. This will provide a better evidence base that can be used to build political support for the Action Plan (see Boxes 12 and 13).
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Example Box 12: The Role of Socio-economic Valuation in Hong Kong’s Trawling Ban
A socio-economic valuation of a potential ban on trawling in Hong Kong waters, which showed positive long-term benefits for fishers and society at large, played an important role in building political support for this controversial policy measure.65 A study to quantify the economic and social consequences of different fishery management strategies in Hong Kong found that a territorial-wide trawl ban (plus a special shrimp trawl area and no-take marine parks) generated the highest societal net benefit (HK$ 2.8 billion). 66 By restoring the biomass of large fishes in Hong Kong waters, it might generate a net profit (of around HK$450 million over a 25-year timeframe) to the small-scale fishery sector, in terms of catches and economic value. Non-fishing sectors such as diving, recreational and tourism industries would also benefit due to the greater fish abundance.
Example Box 13: UK National Ecosystem Assessment (NEA)
In 2011 the UK published a £1.3 million (ca. HK$16 million) comprehensive, independent and peer-reviewed National Ecosystem Assessment (NEA)67 for the whole of the UK to raise awareness of the importance of the natural environment to human well-being and economic prosperity, and fulfilling the CBD call for such assessments. The UK NEA assessed the status and trends of the UK’s ecosystems and the services they provide; described the key drivers of change; included plausible futures (scenarios); and valued the contribution of ecosystem services to human well-being through economic and non-economic analyses. The UK NEA was an inclusive process involving 500 UK scientists and economists. As well as placing ecosystem services in the spotlight the NEA has helped to embed the concepts of ecosystem services and the ecosystem approach and strengthened decision-making at all scales from landowners to local government and companies to national administrations.
Note that China’s Ministry of Environmental Protection has signalled its support for a future national study on the economic value of the country’s ecosystems and biodiversity.68
4.3 Confirm Programming
The Working Group should determine the programming for each action
Through the workshops, the Working Group should determine, for each priority action in the Action Plan:
• Who: which organisations (public or private) will be charged with implementing the activities arising from the strategy
• Where: in which area will the priority activities take place (if the strategy has not already identified these)
• When: what are the time phases for each activity (short, medium or long term), how long is each activity expected to take, what are the critical milestones
• How: what resources – people, organisations, facilities and funds – will be needed for different activities.69
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4.4 Develop a budget document for resourcing BSAP implementation
Some of the actions may require significant resources
Many conservation priority actions are already known in Hong Kong (e.g. protecting Country Park enclaves). Where the Government has committed action, this should be implemented without waiting for the BSAP to be developed. However, it is likely other priority actions will emerge as a result of the biodiversity assessment and strategy development. Implementing some of these actions is likely to require a significant increase in the current levels of resourcing for conservation. However, it is a requirement of the CBD that parties provide the necessary financial support to achieve the objectives of the Convention70, and Hong Kong is economically rich relative to other parties. The costs of protecting Hong Kong’s natural resources will be insignificant compared to the long-term costs of not protecting them, and the long-term costs of losing forever-irreplaceable assets and the contributions they make to Hong Kong’s health, quality of life and productivity.
The Working Group should develop a budget document for resourcing BSAP implementation
Once the Working Group have assessed the resources needed (financial, technical and human) to implement the Biodiversity Action Plan, they will need to develop a budget document setting out how the actions will be resourced. This should include anticipated costs; amount of funding expected from government budget to do this; and any shortfall in funding that will need to be met from other sources (sponsorship, grants, etc.). The Working Group will need full support and co-operation from the Biodiversity Steering Committee to ensure that funding requirements are incorporated into appropriate bureaux/departments budget proposals at the appropriate time.
4.5 Identify indicators for monitoring
A workshop should be organised to identify indicators for monitoring
The Working Group should organise a workshop or something along these lines, so as to identify indicators, which will show how progress towards the targets developed will be measured and reported. Detailed work on the development of indicators may be part of the BSAP process or a subsequent process. However CBD guidance recommends that parties can start with biodiversity-relevant information already collected and any indicators already available. The parties can progressively develop the ability to measure progress towards targets selected in the context of the Strategic Plan.71 Such data and indicators initially may be less than perfect, but they can be improved over time.
Assess existing and global CBD indicators for relevance
A participatory process has already led to the development of some initial Headline Indicators which could be used to measure performance on nature conservation.72 The 11 indicators developed were based on a number of criteria, they allow results to be tracked from year to year, and they highlight areas where data should be collected. It is likely that many – if not all – of these can be adopted directly to measure progress against the targets. However given the scope of the Aichi Targets it is likely that some new indicators will need to be developed.
Suggested global indicators and milestones developed by the CBD for implementation of the Strategic Plan should also be reviewed as part of this process, so as to gauge how relevant they would be for Hong Kong. 73,74
4.6 Peer review and adoption
The BSAP should be peer reviewed and endorsed by ExCo and LegCo
Prior to finalising the BSAP it is important to allow a period for peer review and public consultation.75 The Working Group may also wish to hold public consultation workshops. It is important to have the finalised BSAP officially endorsed by both Executive Council (ExCo) and Legislative Council (LegCo).
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4.7 Publish the Hong Kong Biodiversity Action Plan
A Biodiversity Action Plan should be published to help raise awareness
As with the Strategy, publishing the Action Plan as a glossy, publically accessible document can help publicise the BSAP process, raise awareness about the status and benefits of biodiversity and ecosystem services and garner public support for involvement in the conservation actions.
Recommended Timeline: August 2014 – April 2015
This is the second of the two main stages of the BSAP process and hard sustained effort will be needed to ensure Hong Kong meets the target of implementing the BSAP by 2015. Hopefully early stakeholder engagement will assist in drawing a wide range of community members into the process and building consensus, particularly as some of the actions could prove controversial. While the actions need to be implementable, the Working Group should not lose sight of the legal imperative to protect Hong Kong’s biodiversity and meet challenging targets.
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Step 5: Implementing the BSAPImplementation involves carrying out the agreed plan of action in the way envisaged within the allocated timeframe. Implementation will occur on several fronts and by different actors simultaneously.
Summary of CBD guidance
Effective implementation needs a good management team, a partnership approach, good communication and broad political support
• Establishing an effective BSAP management team is key76
• Implementation of the BSAP is most effective when delivered through a partnership approach77
• Communication and education activities are critical – to communicate key messages from the BSAP and build awareness; but also to build communication and education elements into the different activities outlined in the Action Plan. It is important to find ways to make the BSAP accessible and easy for the public to understand
• Broadening political support for the objectives of the Convention is necessary, for example, by working to ensure that Government and parliamentarians of all Parties (the Administration, LegCo and ExCo in the Hong Kong context) understand the value of biodiversity and ecosystem services78
Recommended tasks
5.1 Biodiversity Working Group oversees implementation of actions
The Biodiversity Working Group should oversee but not control implementation
The Biodiversity Working Group should become the management team for the BSAP, and have a comprehensive overview of how implementation is proceeding, what issues are arising and feed any interesting developments into the communication strategy. According to CBD guidance the management team should not centralise or control implementation activities – partners should be granted the autonomy to carry out activities in the way they feel best. However an oversight body is needed to ensure that progress is being made and ultimately targets are delivered, even if they have no direct authority over some of the actions, actors and partners. This accountability can be reinforced through transparent and regular reporting on progress (see Step 7).
5.2 Identify partners
A partnership approach can make implementation more effective
Partnerships at all levels are required for effective implementation of the Strategic Plan, to leverage actions at the scale necessary and to garner the ownership necessary to ensure mainstreaming of biodiversity across sectors of government, society and the economy.
Hong Kong has many organisations and individuals already working on conservation issues. The government already has many effective partnerships in place for conservation management (e.g. HKBWS at Long Valley79) and operation of educational programmes (e.g. WWF-Hong Kong at Hoi Ha Wan80). Where possible, the actions in the BSAP should be delivered through partnership work, with appropriate financial support where necessary.
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Example Box 14: Local Nature Partnerships in England
Around 50 Local Nature Partnerships (LNPs)81 in England have been set up to help their local area to manage the natural environment as a system and to embed their values in local decisions for the benefit of nature, people and the economy. These are self-sustaining strategic partnerships of a broad range of local organisations, businesses and people. A one-off £1 million (ca. HK$12 million) government fund was set up to support capacity building activities that will help groups to become LNPs and support partnership working.
5.3 Develop a Communication and Education Strategy for BSAP implementation
A Communication and Education Strategy for BSAP implementation should be developed
The communication and education task force established in 1.3, expanded if necessary, needs to develop a Communications and Education Strategy for BSAP implementation based on the goals and priority actions developed in the BSAP. For each priority issue the team can decide to what degree communications can contribute to the desired outcomes of that action, who the target groups are, who the potential partners are, and which medium to use. The Strategy will need to include targets to make it clear what results are needed in a given time period, and those results need to be monitored.
The key to public support is giving everyone a role to play
The key to getting public support for implementing BSAP priority activities is to ensure that everyone has a role to play.82 Involving communities, NGOs, private sector, scientists and the general public in BSAP implementation creates a sense of ownership. This can be done through capitalising on existing initiatives (e.g. Greening Schools83) or developing or supporting new ones.
Momentum needs to be sustained during implementation
Creating and maintaining a multi-stakeholder coordination structure for the implementation of BSAPs has been found to be a challenge for many parties to the CBD. In many cases the momentum built during the planning phase waned considerably in the implementation phase and has been blamed for the weak implementation of some early BSAPs.84 The guidance suggests there are no easy answers to this challenge, but that Working Groups should make every effort to instil in participants the idea that “biodiversity planning is an adaptive and ongoing process that does not end with the development of the BSAP”.85 It is vital to explore possible structures for sustaining communication and momentum among stakeholders.86
5.4 Develop a political strategy to build political support
Political support is essential
“Convincing decision-makers and policy makers of the importance of implementing various provision of the BSAP can be a difficult task in the face of many competing interests.”87
The development of India’s BSAP provides an important lesson on the need to build political support (see Example Box 15). Given the potential for powerful interest groups in Hong Kong to delay or derail implementation, it is important that attention is paid throughout the process to the need to build political support.
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Example Box 15: The importance of political support in developing a BSAP
India’s National BSAP development process was coordinated by an NGO and was highly participatory, involving a decentralised and grassroots approach to planning, involving tens of thousands of people. However at the end of a three-year people-driven process, the Ministry of Environment and Forests, which had initiated and supported the process, refused to approve or release the national plan developed by the core group. This is thought to be due to the failure of the NBSAP process to have a political strategy in place. It did not manage (and made relatively little effort) to take on board the power wielders (land owners, industry, trade unions and politicians).88
The Working Group should develop a strategy to build political support
Building political support should have been done at the outset by the inclusion of key bureaux, departments and stakeholder groups in the process, and establishing a high level Biodiversity Steering Committee. It would, however, be worthwhile for the Working Group and the communications and education task force to develop a political strategy and target key political players – political parties, chambers of commerce, trade unions, judiciary, developers, etc. – to convince them of the benefits that implementing the actions in the BSAP can provide. The results of the benefits valuation exercise illustrate the value of biodiversity to the economy and society, and they can be employed to garner political support from influential stakeholders (e.g. the Secretary for Health and medical representatives).
Recommended timeline: May 2015-2020The CBD’s Strategic Plan mission is that by 2020 “ecosystems are resilient and continue to provide essential services” and that the goals and targets are geared accordingly. Therefore the BSAP should be implemented as soon as possible to ensure that the targets can be met by 2020. A major revision of the BSAP after 2020 is likely to be needed. Nevertheless, this paper recommends a process of continuous learning, reviewing and updating (known as adaptive management)89 between the implementation date and 2020.
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Steps 6 and 7: Monitoring and Evaluating Implementation, and ReportingMonitoring and reporting are necessary in order to show whether actions are effective and targets are being met
The final two steps in the BSAP process: monitoring and evaluation of the BSAP’s implementation, and reporting of the outcome, needs to be built into the plan of action. It is important to identify appropriate baseline data and indicators of progress. Monitoring helps to answer the question “Did we do what we said we would do, and was it effective?”90 Publication of monitoring data and progress reports enable the public to see how effectively progress towards the targets is being made.
Summary of CBD guidance
Monitoring should be accurate and transparent, and the BSAP should be flexible
• It is preferable that a range of stakeholders monitors and evaluates the results of implementation of the BSAP so as to assure accuracy, transparency and balance of information
• Monitoring and evaluation can help provide valuable feedback that will be incorporated into future revisions and amendment to BSAPs
• Since biodiversity planning is an adaptive and cyclical process, BSAPs should be flexible and able to adjust to changing circumstances (so-called Adaptive Management)91
• Parties should present to the Conference of the Parties (COP) periodic reports on measures they have taken to implement the Convention and the effectiveness of these measures
Recommended tasks
6.1 Develop a participatory monitoring system for the BSAP
Involving the public in monitoring can maintain momentum and keep people engaged
One way to maintain momentum built during the planning phase of a BSAP and keep people engaged is to develop a participatory monitoring system. This involves local people measuring, recording, collecting, processing and communicating information on the status of biodiversity. This is routine in developed countries, where it is funded by the state or large nongovernmental organisations and often involves large numbers of skilled amateur volunteers.92 This is done to some extent in Hong Kong, for example through Reef Check93 and Green Power/Shell HK’s butterfly monitoring programme,94 as well as through regular reports by established groups such as the HKBWS.
There is a significant, growing body of work on the role of Citizen Science which shows how local people can be engaged in biodiversity monitoring.95,96 The Biodiversity Working Group should work with partners to explore how Citizen Science could be employed in Hong Kong for monitoring implementation of the BSAP.
6.2 Monitor the state and trend of indicators
The Working Group or partners should monitor the state and trend of the indicators
The Biodiversity Working Group or its partners should also monitor the state and trend of the biodiversity indicators, i.e. where the indicator is in relation to established thresholds and the change that has occurred since the last assessment.
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Example Box 16: The Singapore Index on Cities’ Biodiversity97
A self-assessment tool known as the Singapore Index on Cities Biodiversity has been developed under the leadership of Singapore and the CBD Secretariat. The index comprises 23 indicators covering a range of physical, biological and policy-related information used to calculate a score. This includes indicators on numbers of native species, changes in native species, natural connected areas, green areas, number of alien species in the city, ecosystem services and an assessment of governance structure and activity. The purpose is to help cities (i) monitor their level of biodiversity; (ii) understand the provision of ecosystem services within the city; and (iii) develop their capacity to manage these resources.
7.1 Publish regular reports on progress towards targets
An annual report on progress towards targets should be published
An annual report on the state and trend of indicators should be published together with a report detailing progress on actions (who is responsible for implementation, work done, progress towards the targets and any issues arising). This can help to provide good publicity for positive achievements by various actors/partners, as well as put political pressure on those actors/partners who are falling behind on implementation. These reports can also be the basis for any periodic progress report required by the CBD Secretariat.98
7.2 Develop a publically accessible and integrated reporting system
A publically accessible reporting system would aid transparency
To aid transparency and efficiency, it would be helpful for the Working Group to develop a publically accessible and integrated reporting system. In this way, the public and interested parties can easily find information on the status of actions taken under the BSAP and progress towards targets, along the lines of the UK system below.
Example Box 17: The UK Biodiversity Action Reporting System (BARS)
BARS is a web based information system to support the conservation community. It helps find where practical action is in place to benefit important habitats and species, as well as generating summaries of the data. It also offers an efficient way for individuals and organisations involved in action plan implementation to enter information in a standardised structure. It can link data sets collected at both local and national scales. BARS is used to provide information on biodiversity status and trends, threats and recorded losses, national and local targets and implementation of Action Plans. Planners and members of the public can search the databases for information on the status of activities, progress towards targets and local organisations involved.99
Suggested timeframe: ongoing
The Hong Kong BSAP will be implemented between 2015 and 2020 with 2020 as the ultimate date for achievement of many of the Aichi Targets. After 2020 it is likely that the CBD Strategic Plan will be updated and Hong Kong will need to review and revise its own BSAP accordingly.
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Conclusions and Next Steps Much work needs to be done to develop and implement an effective BSAP but the benefits will be enormous
Developing and implementing a BSAP in accordance with CBD guidance and principles is no small undertaking. Much work needs to be done, both administratively and politically, and significant resources need to be committed. The urgency of the task, the irreversible consequences of inaction and the international obligations mean that Hong Kong has a political, economic, moral and legal imperative for action. However, the benefits of such an exercise will be enormous and far-reaching.
To enable the BSAP process to start in early 2013 requires some urgent actions
But there is no time to waste. To comply with the CBD, implementation of the BSAP should start in 2015 and there is a long list of tasks, many of them sequential, to complete in the lead-up. To enable the BSAP development process to start in early 2013, the following should happen without delay:
• The formation of a high-level cross-bureaux Biodiversity Steering Committee within Government to provide executive overview and support
• The formation of a Biodiversity Working Group of Government and non-Government experts to provide day to day management and drive the process forward
• The provision of salaries, honoraria, accommodation, support services (secretarial, administration costs, transport, etc.) to the Working Group for the duration of the project
• Identification of tasks that need to be out-sourced to expert task forces, consultancies or other
• Estimation of the costs associated with the above and commitment to those resources
A BSAP developed in accordance with CBD will have implications at all levels of government
A BSAP developed in accordance with CBD goals and targets needs to go far beyond the current conservation policy in scope and ambition and will have implications at all levels of government and society. The ultimate actions are not predetermined, but will include recommendations to protect sensitive ecological sites; improved enforcement of legislation; recommendations on new, or amendments to existing, legislation, policy and institutional arrangements; recommendations for mainstreaming biodiversity into government policy; communication, education and public awareness activities; and further research.
Extending the CBD to Hong Kong demonstrates leadership and commitment at international level
Extending the CBD to Hong Kong demonstrates leadership and commitment at an international level to take effective and urgent action to halt the loss of biodiversity in Hong Kong. This needs to be done through an open and participatory process in accordance with CBD principles and international best practice. Hong Kong has the human, technical, financial and institutional resources to make this happen. By doing so, Hong Kong will become an international role model and will reap the benefits for generations to come.
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Glossary of AcronymsACE Advisory Council on the EnvironmentAFCD Agriculture, Fisheries and Conservation DepartmentBSAP Biodiversity Strategies and Action PlanCBD Convention on Biological DiversityCSD Council of Sustainable DevelopmentCEDD Civil Engineering and Development DepartmentCMPB Country and Marine Parks BoardCOP Conference of the Parties (to the CBD)EIA Environmental Impact AssessmentEIAO Environmental Impact Assessment OrdinanceEPD Environmental Protection DepartmentExCo Executive Council of Hong KongHKBWS Hong Kong Bird Watching SocietyHKSAR Hong Kong Special Administrative RegionIUCN International Union for Conservation of NatureKFBG Kadoorie Farm & Botanic GardenLegCo Legislative Council of Hong KongNBSAP National Biodiversity Strategies and Action PlanSA Sustainability AssessmentSBSAP Sub-national Biodiversity Strategies and Action PlanSDD Sustainable Development Division (of Environment Bureau)SEA Strategic Environmental AssessmentTPB Town Planning Board
Appendix 1: The Convention on Biological Diversity (CBD) and Biodiversity Strategies and Action Plans (BSAPs)In May 2011 the 1992 United Nation CBD100, an international, legally binding treaty, was extended to Hong Kong through China. The CBD has three main objectives: 1. The conservation of biological diversity 2. The sustainable use of its components3. The fair and equitable sharing of the benefits arising out of the utilisation of genetic resources
The CBD covers biodiversity at all levels: ecosystems, species and genetic resources.
Biodiversity Strategies and Action PlansUnder Article 6, parties to the CBD are required to develop NBSAP or equivalent instruments. The NBSAP is regarded as the principal instrument for the implementation of the Convention. As of June 2011, nearly 90 percent of parties had NBSAPs, or equivalent instruments, many of them a second generation.
However, the 2010 Biodiversity Target101, a commitment to achieve a significant reduction of the rate of biodiversity loss by 2010, was not being met and it was agreed there was a need to enhance capacity for implementation. As a result, in October 2010 the Conference of the Parties (COP)102, the CBD’s governing body, adopted a revised and updated Strategic Plan for Biodiversity 2011-2020.103 This included five strategic goals and 20 global targets (the Aichi Biodiversity Targets) (see Appendix 2) and the following:
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Vision: “By 2050, biodiversity is valued conserved, restored and wisely used, maintaining ecosystem services, sustaining a healthy planet and delivering benefits essential for all people.”
Mission: “To take effective and urgent action to halt the loss of biodiversity in order to ensure that by 2020 ecosystems are resilient and continue to provide essential services, thereby securing the planet‘s variety of life, and contributing to human wellbeing, and poverty eradication.” (CBD Strategic Plan)
The Strategic Plan requires that by 2015 each party has “developed, adopted as a policy instrument, and has commenced implementing an effective, participatory and updated national biodiversity strategy and action plan.” The updated (or in Hong Kong’s case, new) BSAPs are the primary means of implementing the Strategic Plan at national and sub-national levels, incorporating targets based on the Aichi Targets.
Relation between National BSAPs and Sub-National BSAPs
At its ninth meeting, the COP urged countries to “promote and support local action for the implementation of NBSAPs by integrating biodiversity considerations into sub-national and local level assessments and planning process, and, as and where appropriate, the development of sub-national and local biodiversity Strategies and/or action plans, consistent with national biodiversity strategies and action plans.”104
As Hong Kong is not a signatory to the CBD in its own right, and as it is a sub-national rather than national entity, the mechanism for translating the Strategic Plan into action in Hong Kong will be through a Sub-National Biodiversity Strategies and Action Plan (SBSAP). This is a strategic planning instrument to implement the CBD at the sub-national level. The guidance for the process of developing a SBSAP105 is very similar to that for a NBSAP.106 For the purpose of this report the guidance is used interchangeably and the general term BSAP is used throughout. As with NBSAPs there is no set approach for developing an SBSAP and the two are often developed independently, an important point given the particular relationship between Hong Kong and Mainland China under the Basic Law. Hong Kong as a Special Administrative Region (SAR) of China has considerable autonomy in many international meetings and agreements (e.g. in trade treaties).
However, while development of Hong Kong’s SBSAP is essentially independent of China’s NBSAP, there are benefits in building strategic links between the two. Particularly given the ecological interdependence with China, and in terms of knowledge exchange, capacity building and co-operation.107 China published its second NBSAP in 2010108 and will be updating this in light of the Strategic Plan.
Format of a BSAP
There is no fixed format for a SBSAP but there are six principles to guide its development.109
• Identify and prioritise effective action to meet all three objectives of the CBD and take account of the five strategic goals of the Strategic Plan for Biodiversity
• Highlight the contribution of biodiversity and ecosystem services to human well-being, poverty eradication and sustainable development, as well as the economic, social and cultural values of biodiversity. There should be specific recommendations and actions at both the policy level (through the Biodiversity Strategy) as well as the programming level (though the Action Plan)
• It should not be a publication that sits on a shelf, but should provide a practical and prioritised plan for implementing action on the ground
• It should be jointly developed, adopted and owned by the full range of stakeholders and partners involved. The process should be open, participatory and transparent.
• It must include measures to mainstream biodiversity into sectoral and cross-sectoral policies and programmes.• Biodiversity planning is a long-term cyclical and adaptive process, involving continual monitoring, evaluation and
revision as progress is made and lessons are learned
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Appendix 2: Strategic Goals and Aichi Biodiversity Targets from the Strategic Plan 2011-2020110
Strategic Goal Aichi Target
A: Address the underlying causes of biodiversity loss by mainstreaming biodiversity across government and society
1. By 2020, at the latest, people are aware of the values of biodiversity and the steps they can take to conserve and use it sustainably.
2. By 2020, at the latest, biodiversity values have been integrated into national and local development and poverty reduction strategies and planning processes and are being incorporated into national accounting, as appropriate, and reporting systems.
3. By 2020, at the latest, incentives – including subsidies – harmful to biodiversity are eliminated, phased out or reformed in order to minimise or avoid negative impacts, and positive incentives for the conservation and sustainable use of biodiversity are developed and applied that are consistent and in harmony with the Convention and other relevant international obligations, taking into account national socio-economic conditions.
4. By 2020, at the latest, governments, businesses and stakeholders at all levels have taken steps to achieve or have implemented plans for sustainable production and consumption and have kept the impacts of use of natural resources well within safe ecological limits.
B: Reduce the direct pressures on biodiversity and promote sustainable use
5. By 2020, the rate of loss of all natural habitats, including forests, is at least halved and where feasible brought close to zero, and degradation and fragmentation are significantly reduced.
6. By 2020 all fish and invertebrate stocks and aquatic plants are managed and harvested sustainably, legally and applying ecosystem based approaches, so that overfishing is avoided, recovery plans and measures are in place for all depleted species, fisheries have no significant adverse impacts on threatened species, and vulnerable ecosystems and the impacts of fisheries on stocks, species and ecosystems are within safe ecological limits.
7. By 2020, areas under agriculture, aquaculture and forestry are managed sustainably, ensuring conservation of biodiversity.
8. By 2020, pollution, including from excess nutrients, has been brought to levels that are not detrimental to ecosystem function and biodiversity.
9. By 2020, invasive alien species and pathways are identified and prioritised, priority species are controlled or eradicated, and measures are in place to manage pathways to prevent their introduction and establishment.
10. By 2015, the multiple anthropogenic pressures on coral reefs, and other vulnerable ecosystems impacted by climate change or ocean acidification, are minimised, so as to maintain their integrity and functionality.
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C: To improve the status of biodiversity by safeguarding ecosystems, species and genetic diversity
11. By 2020, at least 17 percent of terrestrial and inland water, and 10 percent of coastal and marine areas, especially areas of particular importance for biodiversity and ecosystem services, are conserved through effectively and equitably managed, ecologically representative and well connected systems of protected areas and other effective area-based conservation measures. They are also integrated into the wider landscapes and seascapes.
12. By 2020, the extinction of known threatened species has been prevented and their conservation status, particularly of those most in decline, has been improved and sustained.
13. By 2020, the genetic diversity of cultivated plants and farmed and domesticated animals and of wild relatives, including other socio-economically as well as culturally valuable species, is maintained. Strategies have been developed and implemented for minimising genetic erosion and safeguarding their genetic diversity.
D: Enhance the benefits to all from biodiversity and ecosystem services
14. By 2020, ecosystems that provide essential services, including services related to water, and contribute to health, livelihoods and well-being, are restored and safeguarded, taking into account the needs of women, indigenous and local communities, and the poor and vulnerable.
15. By 2020, ecosystem resilience and the contribution of biodiversity to carbon stocks has been enhanced, through conservation and restoration, including restoration of at least 15 percent of degraded ecosystems. Thereby contributing to climate change mitigation and adaptation and to combating desertification.
16. By 2015, the Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of Benefits Arising from their Utilization is in force and operational, consistent with national legislation.
E: Enhance implementation through participatory planning, knowledge management and capacity building
17. By 2015, each Party has developed, adopted as a policy instrument, and has commenced implementing an effective, participatory and updated national biodiversity strategy and action plan.
18. By 2020, the traditional knowledge, innovations and practices of indigenous and local communities relevant for the conservation and sustainable use of biodiversity, and their customary use of biological resources, are respected, subject to national legislation and relevant international obligations, and fully integrated and reflected in the implementation of the Convention with the full and effective participation of indigenous and local communities, at all relevant levels.
19. By 2020, knowledge, the science base and technologies relating to biodiversity, its values, functioning, status and trends, and the consequences of its loss, are improved, widely shared and transferred, and applied.
20. By 2020, at the latest, the mobilisation of financial resources for effectively implementing the Strategic Plan for Biodiversity 2011-2020 from all sources, and in accordance with the consolidated and agreed process in the Strategy for Resource Mobilisation, should increase substantially from the current levels. This target will be subject to changes contingent to resource needs assessments, which will be developed and reported by Parties.
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Appendix 3: Key Principles of the CBD The CBD has a number of governing principles that need to be respected and followed when making decisions that affect biodiversity.
Precautionary principle
The precautionary principle, or precautionary approach, has emerged over recent decades as a widely and increasingly accepted general principle of environmental policy, law, and management. It is an approach to uncertainty, and provides for action to avoid serious or irreversible environmental harm in advance of scientific certainty of such harm.111 The increasing scale of human impacts on the environment and growing awareness of its complexity means that in the case of uncertainty, precaution should counter the presumption in favour of development.112 It formalises the idea that delaying action until harm is certain will often mean delaying until it is too late or too costly to avert it. This principle has been progressively incorporated into a wide range of legal instruments at international, regional and national level, including the CBD.113
The CBD states in its preamble “where there is a threat of significant reduction or loss of biological diversity, lack of full scientific certainty should not be used as a reason for postponing measures to avoid or minimize such a threat”. The precautionary principle has subsequently been included in a number of CBD decisions and related work.114
Putting the precautionary principle into operation for biodiversity in the context of large projects was discussed at the IUCN’s recent 5th World Congress.115 A roundtable on the issue agreed that:
• A precautionary approach is needed throughout the scoping and planning process and not just at the outset• Wherever possible, scientific information and analysis of the possible biodiversity impacts of a project should be made
public• Once a project goes through, the public should also have access to reports on the outcomes of a company’s biodiversity
actions• Due to the possibility of cumulative impacts, the precautionary principle requires a landscape approach to scientific
assessment
The CBD’s voluntary guidelines on biodiversity-inclusive impact assessment sets down four principles for biodiversity-inclusive assessments116:
1. No net loss2. The precautionary principle3. Local, tradition and indigenous knowledge is used4. Participatory process
The precautionary principle and avoidance of adverse environmental consequences are also key principles under the Hong Kong EIA process.117
Ecosystem approach
The Ecosystem Approach was adopted by the Conference of the Parties as the primary framework for action under the Convention.118 It is a strategy for integrated natural resource management that takes a holistic approach to managing biodiversity and its components.119 It involves managing resources at a scale and a scope that not only conserve the components of biodiversity, but also protect the essential processes and functions of the ecosystem of which they are part. It recognises humans as integral parts of ecosystems, therefore it involves managing ecosystems and natural resources in a way that reflects their intrinsic value, as well as the benefits they provide to humans, in a fair and equitable way. All implementation of the Convention is carried out and evaluated according to the ecosystem approach.
There are 12 guiding principles for the Ecosystem Approach that are complementary and interlinked.120 An Ecosystem Approach Sourcebook has been set up by the CBD as a resource website and includes a case study database, information about the ecosystem approach, and the various tools and techniques that can be used to implement it.121
Based on the ecosystem approach the CBD promotes wider ecological connectivity. For example, the Programme of Work on Protected Areas122 acknowledges the importance of ecological networks, ecological corridors and buffer zones to protected area management. It includes as a target that by 2015 all protected areas will be integrated into the wider land and seascape, by applying the ecosystem approach and taking into account ecological connectivity and, where appropriate, ecological networks and the needs of migratory species. CBD Parties have agreed that degraded habitats and ecosystems are to be rehabilitated and restored to assist with the creation of networks, corridors and/or buffer zones.123 The CBD also establishes global priorities and policies for the in-situ conservation of biodiversity and obliges Parties, amongst other measures, to “(e) Promote environmentally sound and sustainable development in areas adjacent to protected areas with a view to furthering protection of these areas”.124
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Appendix 4: Additional Information on Communication and Education Communication and education tools
The following are some suggestions for communication tools to be developed at an early stage:
• A separate website (with links from AFCD and EPD websites) about CBD and the BSAP process including any background materials prepared for the process, links to useful reference materials and sites (such as HKNature.Net), news of upcoming events or workshops, and an outline and provisional timeline of key outputs.125 This could be used as an informal mechanism to share information with the CBD Secretariat
• An ad hoc newsletter to be sent out to anyone registered via the website informing them of any key updates• An attractive and easy-to-read leaflet on the CBD, role of BSAP and value and importance of biodiversity to Hong Kong• Facebook and other social media tools should be used where possible to maximise publicity and steer people to the website
Additional materials can be developed at later stages based on the information gathered during the process, and as part of the Action Plan.
Initial list of stakeholders
The CBD guidance suggests that there can be no pre-determined list of the societal groups relevant to the BSAP process. However, the following is a starting point for Hong Kong:
• Government officials – all key departments and bureaux • Biodiversity relevant Boards and Committees – CMPB, TPB, ACE, CSD• Political representatives - LegCo (and relevant panels) and District councillors• Judiciary – lawyers, judges• Heung Yee Kuk and non-indigenous villagers, particularly women*• Academics and scientific institutions • Conservation and environment NGOs• Museum and university bodies• Schools – students and teachers• Fishers• Farmers and members of agricultural committees• Trade union representatives• Chinese medicine practitioners and herbalists• Business groups – Chambers of Commerce and local businesses• Consultants – planning, engineering and environmental • Recreational users – hiking, mountain biking, water-sports, angling, etc., groups• Youth organisations • Ecotourism industry (or Hong Kong Tourism Board)• Real estate/infrastructure developers• Energy companies• Professional bodies – Hong Kong Institutes of Planners, Architects, Engineers, Surveyors, etc.• Women’s groups and the Equal Opportunities Commission**• Community groups (churches, religious societies, charities, social and volunteer groups etc)• Independent persons with relevant expertise (e.g. land administration, government, wildlife, law, environmental protection)
* Indigenous and local communities have a unique status under the Convention because they often depend on biological diversity for their livelihoods and cultural integrity, and they often have pre-existing customary and/or statutory rights of access and use of biodiversity components. Indigenous and local communities are increasingly referred to as “rights holders” in the context of public participation in biodiversity policy and programming. Conservation measures need to be formed in ways that respect their traditional livelihoods, practices and knowledge.
** Among the representatives of the societal groups above, there should be an adequate representation of women, and of the range of gender issues relevant to the Convention. The vital role that women play in the conservation and sustainable use of biological diversity, and thus the need for women’s participation at all levels of biodiversity policy-making and implementation, is recognised in the Preamble of the Convention text.
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Multi-stakeholder workshops
Below are some principles for organising the various multi-stakeholder workshops throughout the BSAP development process.
• All stakeholders that have an interest in the issue should be invited to participate and simultaneous interpretation provided when necessary
• The workshop should be managed by a professional and neutral facilitator• The process should be as interactive as possible rather than a series of talks from experts• There should be no fixed agenda in terms of outcomes• Transparency is fundamental to trust – participants should know what is expected of them, and what they can expect
from the process• Thought should go into how to keep the interaction among stakeholders respectful and productive, how to avoid
grandstanding, and how to ensure individuals have the ability to contribute • The workshop should enable ideas and information to be freely shared• Reports of the workshop discussion should be circulated to all stakeholders• Any consensus on outcomes should be integrated into the BSAP
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Appendix 5: Tools for Mainstreaming BiodiversityThere are currently two main tools used in Hong Kong for mainstreaming biodiversity (and other environmental concerns) into government projects, plans and programmes.
Environmental Impact Assessment and Strategic Environmental Assessments
Environmental Impact Assessments (EIAs) and Strategic Environmental Assessments (SEAs) are one of the main approaches for mainstreaming recommended by the CBD guidance, and are considered a potentially powerful tool for mainstreaming by incorporating the findings of EIAs into planning and using SEAs to guide the planning process.126
Hong Kong’s 1997 Environmental Impact Assessment Ordinance (EIAO)127 was an innovative and forward-looking piece of legislation for its time. Under the EIAO applicants (public or private sector) for designated [development] projects128 are required to undertake an EIA (or an SEA for major projects)129 and be granted an Environmental Permit before they can proceed.
The EIA system has, in many cases, been an effective measure to mitigate the ecological impacts of proposed projects. In some rare cases (including on ecological grounds), the system resulted in projects being refused an Environmental Permit. The SEA system has also been used to redirect planning and provide positive outcomes, for example in the SEA for the 1996 Territory Development Strategy Review.130 However there are a number of areas where the process can be strengthened:
• The system generally reduces rather than eliminates potential ecological impacts caused by individual projects once that project is deemed to be necessary. A step that is currently missing is a tool or mechanism to establish that need before the EIA is conducted
• There are concerns that the review process by ACE does not address ecological issues adequately, partly due to a lack of ecological expertise on the EIA Sub-Committee, and partly due to lack of time for proper review due to the overwhelming volume of EIA studies
• There is concern about potential conflict of interest by having the Director of EPD (who makes the final decision on granting an Environmental Permit on technical grounds) as the Policy Secretary (who may be under political pressure to approve projects). The two posts were separate when the EIAO was enacted.
• There is a need to ensure rigorous, specific and appropriate Study Briefs are prepared.• There is concern about the promotion of perverse incentives such as the Public-Private Partnership (PPP) mechanism131.• There is concern that the list of sites, habitats and species listed in the Technical Memorandum132 does not prioritise those
that are most vulnerable or threatened.
Sustainability Assessments (SA)
Since 2002, all bureaux and departments are required to carry out SAs of new strategic initiatives or major programmes which may bring about noticeable or persistent implications on the economic, environmental and social conditions of Hong Kong. With effect from April 2002, these bureaux and departments are required to include in their submissions to the ExCo and/or the Policy Committee the SA findings or results of their proposals.133
A SA should be conducted at the early planning stage of a proposal. It should help scope out cross-sectoral issues and sensitive areas that require special attention or joint departmental examination at an early stage. The SA system is built upon eight guiding principles134 and 26 indicators135 that align with the principles. A computer tool, the Computer-Aided Sustainability Evaluation Tool (CASET), developed by Planning Department and managed by the Sustainable Development Division (SDD) of the Environment Bureau is used to conduct SA.136 There are a number of serious concerns about the process:
• The SA process is regarded within and outside Government as a box-ticking exercise generally lacking in teeth • There is concern that the process, while useful as a first screening, does not provide the depth of analysis to assess the
sustainability of what may be extremely damaging or far-reaching proposals• There is concern about the lack of proper scrutiny and accountability. The SDD oversees implementation, but it is not clear
how they ensure that the information put into CASET is correct, as this information is not available to the public or any independent third party
• There is concern that the process is generally lacking in transparency. Only summaries of the latest SAs conducted are available on the SDU website (older ones are available on request) and the full SAs are not available to the public
It does little to engender confidence in the process when the SA for a potentially damaging proposal for large-scale development in the North East New Territories (see Example Box 5) concluded that the proposal was “environmentally acceptable”.
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Other mainstreaming tools
In addition to EIA/SEAs and SAs, other approaches that can be used for mainstreaming at the sub-national level, and which should be considered for possible use in Hong Kong, include:
Social return on investment (SROI)
SROI is a framework based on social generally accepted accounting principles (SGAAP) that can be used to help manage and understand the social, economic and environmental outcomes of a project.137 This was used in, for example, a comprehensive reassessment of the business case for the expansion of Heathrow Airport.138
Ecosystem Services approach
The Ecosystems Services Approach uses the Millennium Ecosystem Assessment framework, described in Section 2.7, to help policymakers identify how their decisions depend on and impact biodiversity, and to understand, analyse and maximise both biodiversity and human well-being benefits in their decisions.139 It is designed to be incorporated into existing decision-making processed and used at all levels of governance and in different sectors.
CBD Ecosystem approach
The CBD Ecosystem Approach, described in Appendix 3, provides a framework of 12 principles that can be used to guide planning processes at national and sub-national levels to ensure that policies, plans and programmes consider biodiversity alongside economic and societal objectives.140 It has been incorporated into sectoral good practice guidelines, such as the FAO’s Code of Conduct for Responsible Fisheries and the CBD Biodiversity and Tourism Development Guidelines.
Integrated Coastal Management
Integrated Coastal Management is a process of governance. It consists of the legal and institutional framework necessary to ensure that development and management plans for coastal zones are integrated with environmental and social goals, and are developed with the participation of those affected.141,142 The purpose of ICM is to maximise the benefits provided by the coastal zone, and to minimise the conflicts and harmful effects of activities on social, cultural and environmental resources.
Spatial planning
Spatial Planning deals with specific spatial areas and the activities undertaken within them. For example, South Africa’s National Spatial Biodiversity Assessment (NSBA) informs land use policy and decision-making by combining several layers of spatial biodiversity information with information on ecosystem status, protection levels, and present and future threats to ecosystem integrity.143 This highlights areas that should be given priority for conservation action.
Other tools
There are many other potential mainstreaming tools. These include legal instruments, economic and financial tools, and sectoral standards, codes of conduct, guidelines, certification schemes and good practices.144
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Appendix 6: Illustrative Examples of Priorities, Objectives, Targets and Actions for Hong KongPriority: Reducing Environmental Pressures (reflecting CBD Strategic Goal B)Objective/Goal: Maintain, expand and improve mechanisms for both in-situ and (in exceptional cases) ex-situ conservation of Hong Kong’s native biodiversity145
Target: By 2020, invasive alien species and pathways are identified and prioritised, priority species are controlled or eradicated, and measures are in place to manage pathways to prevent their introduction and establishment (Aichi Target 9).Action: Publish plans to monitor and manage the threats of alien invasive species.146
Example Box 18: New Zealand Programmes for Managing Invasive Species
New Zealand has had an active programme in place for many years to protect its biodiversity from invasive species.147 Most recently, the Pest Management National Plan of Action 2010-2035 identified improvement areas and set out a series of actions to be delivered within two, five and 25 years. Two national pest programmes operate.148 The National Interest Pests Response (NIPR) aims to eradicate 11 established pests from New Zealand. The National Pest Plant Accord (NPPA) is a cooperative agreement to ensure plants that are unwanted organisms cannot be sold, propagated or distributed in New Zealand.
Priority: Mainstreaming biodiversity across government and society (reflecting CBD Goal A).Objective/Goal: Reverse Hong Kong’s impact upon global biodiversity loss.149 Target: By 2020 at the latest, Governments, business and stakeholders at all levels have taken steps to achieve or have implemented plans for sustainable production and consumption and have kept the impacts of use of natural resources well within safe ecological limits (Aichi Target 4). Action: Determine the key components of, and establish policies to eliminate Hong Kong’s ecological footprint, especially in the key areas of marine and forest products, transportation, infrastructure development and housing.150
Example Box 19: Netherlands policy on trade chains151
The Dutch Government has set three targets to increase the sustainability of the wood, agricultural raw materials and peat trade chains:
• In the long term all raw materials from natural resources or from nature that are used in the Netherlands – whether obtained from the ND or abroad – must be produced sustainably
• From 2010, the Central Government will purchase only wood that has been produced sustainably and will strive to ensure that at least 50 percent of the wood on the Dutch market is produced sustainably
• No later than 2011 the government will conclude agreements with the business community on the transition needed to manage biodiversity sustainably in the wood, palm oil, soya and peat production economic chains
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Appendix 7: Illustrative Conservation Actions for Hong Kong Mapped Onto Aichi Targets
Aichi Target152 Illustrative Conservation Actions as outlined under Civic Exchange’s “Nature Conservation: a new policy framework for Hong Kong” are matched with the Aichi Targets153
1
1.1 Establish and maintain conservation and sustainable use of biodiversity as part of the core curriculum in all primary and secondary school systems in Hong Kong within two years
1.2 Establish and maintain community-run eco-parks and hobby farms throughout Hong Kong within three years
1.3 Create plans to strengthen community involvement in wardening and enforcement within 12 months1.4 Maintain & expand the educational output of environmental NGO network Target: Establish funding
digest – 12 months1.5 Establish and maintain fora for cross-sectional discussion of biodiversity conservation issues. Target: plan
for covering all taxon groups within 12 months
2
2.1 Conduct capacity and resource review of key implementing bodies in Government. Target: publish report within 12 months
2.2 Review existing legislation and administrative practice relevant to CBD Target: review within two years, update existing legislation within three years and establish new
legislation (if necessary) within five years2.3 Establish and maintain government and corporate cross-sectoral communications to ensure that CBD is
incorporated in government policy. Target: publish report within two years 2.4 Create and publish a register of existing and potential influences (threats and opportunities) upon
biodiversity in Hong Kong within two years
3
2.5 Establish and maintain a conservation trust to facilitate the expansion of the existing PA network into an ecologically and economically sustainable model establish non-in-situ development model for land exchange. Target: publish plan for establishment within 12 months
2.6 Establish nature conservation as a legal “Public Purpose” under the Land Resumption Ordinance within 12 months
2.7 Introduce mitigation banking as a valid tool in the EIA and SEA processes within two years
4
1.6 Create a mechanism for the establishment of sustainable fisheries and farming. Target: publish plans within two years
8.1 Determine the key components of, and establish policies to eliminate Hong Kong’s ecological footprint, especially in the key areas of marine and forest products, transportation, infrastructure development and housing. Target: Publish plan identifying key contributors and proposed actions to reduce impacts within 18 months
6 1.6 Create a mechanism for the establishment of sustainable fisheries and farming. Target: publish plans within two years
7 1.6 Create a mechanism for the establishment of sustainable fisheries and farming. Target: publish plans within two years
8 2.8 Review legislation of pollution issues, increasing pollution, contamination and waste disposal, especially where they influence biodiversity. Target: Publish report within 12 months
9 6.4 Publish plans to monitor and manage the threats of alien invasive species within two years
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10
4.1 Establish and maintain world-class networks and measures to monitor the impact of climate change on biodiversity in Hong Kong; Target: publish climate and biodiversity impact and action plan within two years
4.2 Establish and maintain interdepartmental and cross-sectoral dialogue to support implementation of climate change mitigation and adaptation. Target: publish plan outlining responsible parties and intended procedure within 12 months
11
5.1 Review existing habitat maps & create comprehensive GIS based habitat map for Hong Kong within 12 months
5.2 Prepare habitat protection, restoration and management plans within three years5.3 Identify and protect key sites for reconnecting fragmented sections of the existing PA system, and
extending to China within five years; Target: publish plan and identify resources and responsible party5.4 Create and publish plans for management of the PA system within three years5.5 Identify and protect key sites outside the existing PA system not covered in Action 5.3 within two years
12
6.1 Create an IUCN Red List of HK species within two years and review every five years6.2 Undertake preparation of Species Action Plans (SAPs) for all currently IUCN Red Listed species resident in
HK Target: implement SAPs for all relevant species within five years6.3 Include ex-situ conservation where necessary to maintain and restore viable populations in the existing
PA network or areas identified by Actions 5.3 and 5.4, above
13 7.2 Undertake assessment of diversity and use of biodiversity resources in Hong Kong at the genetic level (including orchids, livestock breeds and traditional Chinese medicine) within two years
179.1 Create and execute a plan that ensures that a sufficient number of personnel with an appropriate level
of training are provided with sufficient financial resources, material and administrative support to carry out the strategy in an effective, timely and accountable manner
19
3.1 Establish publicly accessible biodiversity databases and information networks by 2012 Target: determine number of fields and depth of info within six months)
3.2 Undertake territory-wide biodiversity surveys (not just Country Parks and other protected areas) on regular basis (minimum of two surveys per group every five years) to monitor changes in distribution and abundance of major flora and fauna groups. Target: create and publish plans and reporting schedules within 12 months
3.3 Establish and maintain a Hong Kong repository to world-class standards for fauna specimens by 2015, with specimen data available to the public via Global Biodiversity Information Facility [GBIF] (or similar). Target: create and publish plans and reporting schedules
3.4 Raise the Hong Kong Herbarium to and maintain at world-class standards, with specimen data available to the public via GBIF (or similar) within two years
4.1 Establish and maintain world-class networks and measures to monitor the impact of climate change on biodiversity in Hong Kong; Target: publish climate and biodiversity impact and action plan within two years
4.2 Establish and maintain interdepartmental and cross-sectoral dialogue to support implementation of climate change mitigation and adaptation. Target: publish plan outlining responsible parties and intended procedure within 12 months
209.1 Create and execute a plan that ensures that a sufficient number of personnel with an appropriate level
of training are provided with sufficient financial resources, material and administrative support to carry out the strategy in an effective, timely and accountable manner
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12 Conference of the Parties to the CBD (2010), COP Decision X/2. Decision of the parties on the Strategic Plan. Paragraph 3, http://www.cbd.int/decision/cop/?id=12268 (accessed 22 October 2012).
13 Secretariat of the Convention on Biological Diversity (2012), NBSAP training modules, Version 2 – Module B-5. Ensuring Inclusive Societal Engagement in the Development, Implementation and Updating of NBSAPs. Montreal, July 2012 (revised), http://www.cbd.int/doc/training/nbsap/b5-train-stakeholder-nbsap-revised-en.pdf (accessed 5 October 2012).
14 Ibid.
15 His election manifesto states “We will examine the 2004 Nature Conservation Policy in accordance with the Convention on Biological Diversity and formulate a comprehensive package of nature conservation policies in line with new circumstances.” Leung, C. Y. (2012), Manifesto for the Chief Executive Election One Heart One Vision. Chief Executives Office, Hong Kong, http://www.ceo.gov.hk/eng/pdf/manifesto.pdf (accessed 5 October 2012).
16 Members include representatives from environmental NGOs, farming groups, landowners and forestry groups. England Biodiversity Group webpage, http://webarchive.nationalarchives.gov.uk/20110303145213/http://ukbap.org.uk/GenPageText.aspx?ID=46 (accessed 5 October 2012).
17 Secretariat of the Convention on Biological Diversity (2007a) NBSAP training modules version 1 – Module B-6. Getting political support for the NBSAP and financing its implementation, Montreal, July 2007, http://www.cbd.int/doc/training/nbsap/b6-train-political-support-finance-nbsap-en.pdf (accessed 5 October 2012).
18 On 26/05/11, 24 Hong Kong environmental NGOs released a Joint Statement in support of the Government’s decision to extend the CBD to Hong Kong, see http://www.civic-exchange.org/wp/wp-content/uploads/2011/05/110526PressRelease.pdf (accessed 5 October 2012) but there was no press release from Government.
19 For example, how does the BSAP process affect you; how can the BSAP process be improved, what knowledge or data do you have which could be useful for the biodiversity assessment; how actively would you like to be involved; how can you or your organisation help raise awareness of the BSAP; who else needs to be involved or informed of the process?
20 Secretariat of the Convention on Biological Diversity (2011a), Module 8, see endnote 11.
21 For example, for Aichi Target 9 on invasive species the Working Group will need to know the key invasive species and pathways in Hong Kong that need control; or for Aichi Target 13 on genetic diversity, the Working Group will need to understand what data is available on the genetic diversity of cultivated plants and farmed and domestic animals and of wild relatives in Hong Kong.
22 Austin, M. A. et al. (2008), Taking Natures Pulse: The Status of Biodiversity in British Columbia. Biodiversity BC, Victoria, BC, http://www.biodiversitybc.org/assets/pressReleases/BBC_StatusReport_Web_final.pdf (accessed 5 October 2012).
23 Yip, J.Y., (2000), Conserving Biodiversity in Protected Areas: Recommendations for the Extension of Protected Areas in Hong Kong, University of Hong Kong, Department of Ecology and Biodiversity, June 2000. One of 3 major outputs from “The Biodiversity Study of Hong Kong” by the Division of Ecology & Biodiversity at the University of Hong Kong.http://www.biosch.hku.hk/ecology/bs/pages/html/intro01.html#sur (accessed 18 October 2012).
24 Cape Nature Scientific Services (2007), Western Cape Province State of Biodiversity 2007, http://www.capenature.co.za/docs/1016/Biodiversity%20Review.pdf (accessed 5 October 2012).
Endnotes1 Indeed this small size makes conservation even more
important, as the ecologically rich areas are comparatively more valuable, and protected areas need to be joined up and extended to avoid habitats becoming fragmented and ‘islands’ which cannot support viable populations of wildlife.
2 Hong Kong has a remarkable biodiversity in a relatively small terrestrial and marine area, with several endemic species, including plants, amphibians, reptiles, fish, crustaceans and insects, some of which are severely threatened. See WWF-Hong Kong (2012), Southeast China-Hainan Moist Forest webpage, http://wwf.panda.org/about_our_earth/ecoregions/sechina_hainan_moist_forests2.cfm (accessed 22 October 2012); Ades, G. W. J. and Kendrick, R. C. (Eds) (2004), Hong Kong Fauna: A Checklist of Selected Taxa, KFBG Corporation, 2nd Edition, Internet version November 2004, http://www.kfbg.org.hk/content/81/12/2/Checklist%20of%20Hong%20Kong%20Fauna%20(2nd%20edition).pdf (accessed 25 October 2012); Corlett, R.T. et al. (2000), “Hong Kong Vascular Plants: distribution and status.” Memoirs of the Hong Kong Natural History Society, 23, 1-157; Hu, Q.-m. et al.(2003), Rare and Precious Plants of Hong Kong, Agriculture, Fisheries and Conservation Department, Hong Kong Government, Hong Kong; and Barretto, G., Cribb, P. and Gale, S. (2011), The Wild Orchids of Hong Kong. Natural History Publications (Borneo) in association with KFBG.
3 For example the internationally recognised Mai Po and Inner Deep Bay Ramsar Site supports 16 globally threatened bird species, including about 20% of the world’s wintering population of the Black-faced Spoonbill. WWF-Hong Kong, WWF Ramsar Factsheet, http://assets.wwfhk.panda.org/downloads/ramsar_eng.pdf (accessed 22 October 2012).
4 ERM-Hong Kong, Ltd (2008), 2008 Update of Terrestrial habitat Mapping and Ranking Based on Conservation Value. Report for Sustainable Development Unit, Hong Kong Government. http://www.susdev.gov.hk/html/en/su/2008habmapfinrep.pdf (accessed 12 October 2012).
5 Information Services Department (2008), Hong Kong 1997, HKSAR Government; Information Services Department (2011), Hong Kong 2011, HKSAR Government, http://www.yearbook.gov.hk/2011/en/index.html (accessed 5 October 2012).
6 The Ecological Footprint measures the extent of human demand for the regenerative capacity of the biosphere. WWF-Hong Kong and Global Footprint Network (2011), Hong Kong’s Ecological Footprint Report 2010: Paths to a Sustainable Future. WWF-Hong Kong, January 2011, http://www.footprintnetwork.org/images/uploads/HK_EFR_2010_EN.pdf (accessed 18 October 2012).
7 Ibid.
8 Secretariat of the Convention on Biological Diversity (2011a), NBSAP training modules version 2.1 – Module 2. The Biodiversity Planning Process: How to Prepare or Update a National Biodiversity Strategy and Action Plans. Montreal, June 2011, http://www.cbd.int/doc/training/nbsap/b2-train-prepare-update-nbsap-revised-en.pdf (accessed 5 October 2012).
9 Ibid.
10 Responsibilities under Article 20(1) of the CBD requires parties to provide financial support and incentives, in accordance with its capabilities, to achieve the objectives of the CBD. United Nations (1992), Convention on Biological Diversity. Text available at http://www.cbd.int/convention/text/ (accessed 5 October 2012).
11 Secretariat of the Convention on Biological Diversity (2011b), NBSAP training modules version 2.1 – Module 8. Biodiversity planning for states, provinces, cities and other local authorities; how to develop a sub-national biodiversity strategy and action plan. Montreal, June, http://www.cbd.int/doc/training/nbsap/b8-train-biodiversity-plan-subnational-en.pdf (accessed 5 October 2012).
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billion a year in 2004. Fung, W. Y. (2004), Provision of Service for Characterising the Climate Change impact in Hong Kong. Report by Hong Kong Polytechnic University for EPD. September 2004, http://www.epd.gov.hk/epd/english/climate_change/files/Climate_Change_Report_final.pdf while economic values of conservation have also been estimated as up to HK$6.5 billion annually. Hopkinson, L. and Stern, R., (2002), Wild by Not Free: An Economic Valuation of Benefits of Nature Conservation in Hong Kong. Report for Civic Exchange, http://people.fas.harvard.edu/~restern/documents/CivicExchange_HopkinsonStern_2002.pdf (both accessed 5 October 2012).
37 The health (physical and mental health) benefits of the countryside elsewhere are well documented with a clear link between access to nature and psychological wellbeing. For example see Townsend, M. and Weerasuriya. R. (2010), Beyond Blue to Green. Report by Deakin University Australia, http://www.hphpcentral.com/wp-content/uploads/2010/09/beyondblue_togreen.pdf (accessed 5 October 2012). The 2005 book Last Child in the Woods: Saving Our Children From Nature-Deficit Disorder by Richard Louv documents decreased exposure of children to nature in American society and how this “nature-deficit disorder” harms children and society, http://richardlouv.com/books/last-child/ (accessed 5 October 2012).
38 See Millennium Ecosystem Assessment (2005), Ecosystems and Human Well-being: Biodiversity Synthesis. World Resources Institute, Washington, DC., http://www.millenniumassessment.org/documents/document.354.aspx.pdf (accessed 5 October 2012).
39 For example, the Hong Kong Bird Watching Society (HKBWS) have formed a partnership with farmers to maintain and increase the biodiversity of Long Valley, especially for avifauna. Shallow water habitat, wet agricultural land, fallow dry agricultural land as well as farmland margin vegetation have been created or maintained under a Management Agreement funded by the Environment and Conservation Fund. See HKBWS Birds and Humans in Harmony website (Chinese only) http://www.hkbws.org.hk/website/lv/mainpage.html (accessed 5 October 2012).
40 WWF-Hong Kong, Personal Communication, 17 October 2012.
41 Secretariat of the Convention on Biological Diversity (2011b), Module 8, see endnote 11.
42 In 2010-11 spending on AFCD’s Country Parks and Conservation Programme was HK$479.9 Million, AFCD (2012), Head 22 AFCD Controlling Officers Report, http://www.budget.gov.hk/2012/eng/pdf/head022.pdf. Compare this to the spending on maintaining plants and greening of urban parks and amenity areas of HK$665.8 million, Leisure and Cultural Services Department (2012), HEAD 95 Leisure and Cultural Services Dept Controlling Officers Report, http://www.budget.gov.hk/2012/eng/pdf/head095.pdf (both accessed 5 October 2012).
43 AFCD’s new Nature Conservation Policy consists of 10 high level policy objectives, 12 Priority Sites for Enhanced Conservation and two new measures comprising Management Agreements and Public Private Partnerships. AFCD, “Policy Objectives” webpage, http://www.afcd.gov.hk/english/conservation/con_nncp/con_nncp_po/con_nncp_po.html (accessed 5 October 2012).
44 Secretariat of the Convention on Biological Diversity (2011a) and (2011b), see endnotes 8 and 11 for more detail.
45 Civic Exchange translation from Ministry of Environmental Protection, The People’s Republic of China (2010), China’s National Biodiversity Strategy and Action Plan v2. http://www.cbd.int/doc/world/cn/cn-nbsap-v2-zh.pdf (accessed 5 October 2012).
46 Natural Resource Management Ministerial Council (2010), Australia’s Biodiversity Conservation Strategy 2010-2030, Australian Government, Department of Sustainability, Environment, Water, Population and Communities, Canberra.Australia, http://www.environment.gov.au/biodiversity/publications/strategy-2010-30/pubs/biodiversity-strategy-2010.pdf (accessed 5 October 2012).
25 To develop a Red List will require some modification of the IUCN Regional Categories and Criteria to make them relevant to Hong Kong’s scale. See for example KFBG methodology on applying IUCN categories to Hong Kong’s wild orchids at Barretto, G., Cribb, P. and Gale, S. (2011), The Wild Orchids of Hong Kong. Natural History Publications (Borneo) in association with KFBG. An alternative or additional approach would be to update existing research documents designed to direct policy such as Fellowes, J. R. et al, (2002), “Wild animals to watch: terrestrial and freshwater fauna of conservation concern in Hong Kong”, Memoirs of the Hong Kong Natural History Society, 2002, v. 25, p. 123-160.
26 Critical Ecosystem Partnership Fund (2012), Ecosystem Profile. Indo-Burma Biodiversity Hotspot: 2011 update, Indochina Region. http://www.cepf.net/Documents/final.indoburma_indochina.ep.pdf (accessed 22 October 2012).
27 Fellowes, J. (2012), Personal communication, 19 October 2012.
28 See Civic Exchange reports for more information: Kilburn, M. and Lau, W. (2012), Protecting Sites of Ecological Value: A Guide for Decision-makers. http://www.civic-exchange.org/wp/201208siteselection_en/; Clark, J. (2005), Preserving Hong Kong’s Biodiversity: The Need for an Ecological Restoration Policy, http://www.civic-exchange.org/wp/wp-content/uploads/2010/12/200508_EcologicalRestoration.pdf and Wan, J. and Telesetsky, A. (2002), Creating Opportunities: Saving Hong Kong’s Natural Heritage, http://civic-exchange.org/en/live/upload/files/200201_NaturalHeritage.pdf (accessed 5 October 2012).
29 Including legislation that while not primarily aimed at conservation, directly impacts on ecosystems and ecosystem services such as the Water Pollution Control Ordinance (WPCO) (Cap 358) and Dumping at Sea Ordinance (Cap 466). For example the WPCO Technical Memorandum: Standards for Effluents Discharged into Drainage and Sewerage Systems, Inland and Coastal Waters, specifically protects SSSIs and streams from new effluent discharges. http://www.epd.gov.hk/epd/english/environmentinhk/water/guide_ref/guide_wpc_wpco.html (accessed 22 October 2012).
30 Sha Lo Tung is one of the pilots for the Government’s Public Private Partnerships (PPP) http://www.afcd.gov.hk/english/conservation/con_nncp/con_nncp_new/con_nncp_new.html but there is considerable concern about the proposal which would allow construction very close to an ecologically sensitive area and permits development of village houses in a proposed nature reserve. E.g. See Conservancy Association (2012). Comments on Pilot Project for Public–Private Partnership Conservation Scheme, Sha. Lo Tung Valley, Ta Po, letter to EPD, Hong Kong Government, 19 June 2012, http://www.cahk.org.hk/monitor/planning/EPD20120619(SLT%20PPP).pdf (accessed 19 October 2012) and Lau W. (2012), Trusts could alleviate HK’s conservation woes, Article on CleanBiz Asia website, 19 June 2012, http://www.cleanbiz.asia/blogs/trusts-could-alleviate-hk%E2%80%99s-conservation-woes?page=2#.UIEgPW-MDSg (accessed 19 October 2012).
31 The Resource Allocation Exercise (RAE) and Controlling Officers Reports for departments/bureaux could be used as a starting point for analysis.
32 Civil Engineering and Development Department and Planning Department (2012), North East New Territories New Development Areas webpages, http://www.nentnda.gov.hk/eng/index.html (accessed 5 October 2012).
33 Civil Engineering and Development Department and Planning Department (2012). North East New Territories New Development Areas Planning and Engineering Study – Investigation Sustainability Assessment, http://www.nentnda.gov.hk/eng/SA_E.pdf (accessed 5 October 2012).
34 Civil Engineering and Development Department, HKSAR Government, (2012) Personal Communication, September 2012.
35 WWF-Hong Kong and Global Footprint Network (2011). See endnote 6.
36 Ecotourism economic values alone were estimated at HK$2.25
53
policies”. United Nations (1992), Convention on Biological Diversity. www.cbd.int/convention/text/ (accessed 5 October 2012).
62 Secretariat of the Convention on Biological Diversity (2011d), Module 3, see endnote 60.
63 Democratic Republic of Timor Leste (2011), The National Biodiversity Strategy and Action Plan of Timor-Leste (2011-2020), http://www.cbd.int/doc/world/tl/tl-nbsap-01-en.pdf (accessed 5 October 2012).
64 Section 40 of the Natural Environment and Rural Communities (NERC) Act. See Natural England, “Biodiversity Duty” webpage, http://www.naturalengland.org.uk/ourwork/conservation/biodiversity/protectandmanage/duty.aspx (accessed 5 October 2012).
65 Cornish, A. (2012), Personal communication, 22 August 2012.
66 Sumaila, U., Cheung, W. & Teh, L. (2007), “Rebuilding Hong Kong’s marine fisheries: an evaluation of management options.” Fisheries Centre Research Reports, Vol. 15 No. 3, http://fisheries.ubc.ca/sites/fisheries.ubc.ca/files/pdfs/fcrrs/15-3.pdf (accessed 5 October 2012).
67 The UK National Ecosystem Assessment (2011): Synthesis of the Key Findings. UNEP-WCMC, Cambridge.UK, http://uknea.unep-wcmc.org/Home/tabid/38/Default.aspx (accessed 5 October 2012).
68 UNEP (2012), China Voices Support for National Study on Value of Ecosystem Services, Press Release, 26 July 2012. http://www.unep.org/newscentre/default.aspx?DocumentID=2691&ArticleID=9238 (accessed 5 October 2012).
69 Secretariat of the Convention on Biological Diversity (2011a), Module 2, see endnote 8.
70 See endnote 10
71 Secretariat of the Convention on Biological Diversity (2011c), Module 4, see endnote 52.
72 Kilburn, M. and Cheng, N. M. (2011), Hong Kong Headline Indicators for Biodiversity & Conservation. Report for Civic Exchange. Oct 2011, http://www.civic-exchange.org/wp/wp-content/uploads/2011/10/111006bioindicators_en.pdf (accessed 5 October 2012).
73 Indicative list of indicators proposed by the ad hoc technical expert group on indicators for the Strategic Plan on Biodiversity. Fifteenth meeting of the Subsidiary Body on Scientific, Technical and Technological Advice, Convention on Biological Diversity, November 2011. http://www.cbd.int/doc/?meeting=sbstta-15 (accessed 5 October 2012).
74 Conference of the Parties to the Convention on Biological Diversity (2010), Revised and Updated Strategic Plan: Technical Rationale and Suggested Milestones and Indicators, July 2010. http://www.cbd.int/doc/meetings/cop/cop-10/official/cop-10-09-en.pdf (accessed 5 October 2012).
75 Secretariat of the Convention on Biological Diversity (2011), Module 8, see endnote 11.
76 Ibid.
77 Conference of the Parties to the Convention on Biological Diversity (2010), Biodiversity Strategic Plan 2011-2020, Section V. Para 17. http://www.cbd.int/decision/cop/?id=12268 (accessed 5 October 2012).
78 Ibid.
79 See endnote 39.
80 WWF-Hong Kong (2012), WWF Hoi Ha Marine Education Programme Community Group Information Sheet, http://awsassets.wwfhk.panda.org/downloads/mep2011_eng.pdf (accessed 22 October 2012).
81 More information at DEFRA (2012), “Local Nature Partnerships” webpage, http://www.defra.gov.uk/environment/natural/whitepaper/local-nature-partnerships/ (accessed 5 October 2012).
47 Secretariat of the Convention on Biological Diversity (2011b), Module 8, see endnote 11.
48 Conference of the Parties to the Convention on Biological Diversity (2010), Global Strategy for Plant Conservation. Targets 2011-2020, http://www.cbd.int/gspc/targets.shtml (accessed 5 October 2012).
49 Conference of the Parties to the Convention on Biological Diversity (2004), Programme of Work on Protected Areas, http://www.cbd.int/protected/pow/learnmore/intro/ (accessed 5 October 2012).
50 The more relevant include biodiversity of inland waters, marine and coastal biodiversity, agricultural biodiversity, forest biodiversity, mountain biodiversity and island biodiversity.
51 Conference of the Parties to the Convention on Biological Diversity (2010), Strategic Plan for Biodiversity, 2011-2020, Part V, para 15. http://www.cbd.int/decision/cop/?id=12268 (accessed 5 October 2012).
52 Secretariat of the Convention on Biological Diversity (2011), NBSAP training modules version 2.1 – Module 4 Setting National Biodiversity Targets in line with the Framework of the Strategic Plan for Biodiversity 2011-2020, including Aichi Biodiversity Targets. Montreal, June 2011, http://www.cbd.int/doc/training/nbsap/b4-train-national-targets-revised-en.pdf (accessed 5 October 2012).
53 Although this is a high percentage of land area, the actual size of the parks is relatively small in conservation terms and greater connectivity between the Parks and inclusion of enclaves is needed to provide wildlife corridors and ensure protection of vulnerable species. See endnote 1 and Appendix 3 on ecological connectivity.
54 Lau, W. (2011), Adaptive Governance for Hong Kong’s Country Parks Network. Civic Exchange, http://www.civic-exchange.org/wp/wp-content/uploads/2011/08/110829CountryPark_en.pdf (accessed 5 October 2012).
55 Aichi Biodiversity Target 11 states that 17% of land mass should be effectively managed for conservation, especially areas that are representative, well-connected, and important for biodiversity and ecosystem services. 17% of Hong Kong’s land mass (110,800 ha) translates to approximately 43% of the country parks network (44,239 ha). Figures from Information Services Department (2012), Country Parks and Conservation, Hong Kong SAR Government Factsheet, January 2012. http://www.gov.hk/en/about/abouthk/factsheets/docs/country_parks.pdf (accessed 5 October 2012).
56 A total of 5 conservation objectives and 9 strategies (similar to targets, each with associated actions) were developed by a consensus of Hong Kong stakeholders and experts in 2011. Kilburn, M. and Kendrick, R. (2011), Nature Conservation A New Policy Framework for Hong Kong. Civic Exchange. http://www.civic-exchange.org/wp/wp-content/uploads/2011/01/110121NatureConservationEN.pdf (accessed 5 October 2012).
57 Strategic and specific; measurable and preferably quantifiable; ambitious, going beyond ‘business as usual’; realistic; and time-bound.
58 Secretariat of the Convention on Biological Diversity (2011c), Module 4, see endnote 52.
59 Secretariat of the Convention on Biological Diversity (2011a and 2011b), Modules 2 and 8, see endnotes 8 and 11.
60 Secretariat of the Convention on Biological Diversity (2011d), NBSAP training modules version 2.1 – Module 3. Mainstreaming biodiversity international sectoral and cross-sectoral strategies, policies, plans and programs. Montreal, June 2011. http://www.cbd.int/doc/training/nbsap/b3-train-mainstream-revised-en.pdf (accessed 5 October 2012).
61 According to Article 6b of the CBD Parties have an obligation to: “integrate as far as possible, and as appropriate, the conservation and sustainable use of biological diversity into relevant sectoral or cross-sectoral plans, programmes and
54
101 Conference of the Parties to the Convention on Biological Diversity (2010), 2010 Biodiversity Target, https://www.cbd.int/2010-target/ (accessed 5 October 2012).
102 This ultimate authority of all governments (or Parties) that have ratified the treaty meets every two years to review progress, set priorities and commit to work plans.
103 Conference of the Parties to the Convention on Biological Diversity (2010), COP 10 Decision X/2. Strategic Plan for Biodiversity 2011-2020. http://www.cbd.int/decision/cop/?id=12268 (accessed 5 October 2012).
104 Part of the consolidated guidance on NBSAPs adopted by the COP at its ninth meeting in decision IX/8 Conference of the Parties to the Convention on Biological Diversity (2010), Review of implementation of goals 2 and 3 of the Strategic Plan, COP 9 Decision IX/8, http://www.cbd.int/decision/cop/?id=11651 (accessed 5 October 2012).
105 Secretariat of the Convention on Biological Diversity (2011b), Module 8, endnote 11.
106 Secretariat of the Convention on Biological Diversity (2011a), Module 2, endnote 8.
107 There are many examples of collaboration between Hong Kong and Chinese ecologists at government, university and NGO level.
108 The People’s Republic of China (2010), China’s National Biodiversity Strategy and Action Plan v2. (in Chinese only) http://www.cbd.int/doc/world/cn/cn-nbsap-v2-zh.pdf (accessed 5 October 2012).
109 See endnote 102.
110 See endnote 101.
111 Cooney, R. (2004), The Precautionary Principle in Biodiversity Conservation and Natural Resource Management: An issues paper for policy-makers, researchers and practitioners. IUCN, Gland, Switzerland and Cambridge, UK, http://data.iucn.org/dbtw-wpd/edocs/PGC-002.pdf (accessed 5 October 2012).
112 Ibid.
113 Ibid.
114 For example, on biosafety (in the Cartagena Protocol on Biosafety, marine and coastal biodiversity (e.g. Decision II/10, SBSTTA I/8), invasive alien species (Annex, Decision VI/23 and V/8), the ecosystem approach (Decision V/6),4 and guidelines on sustainable use (Decision VII/12). Cited in Cooney, R. (2004). Endnote 109.
115 Vorhies, F. (2012), Operationalizing the Precautionary Principle for Biodiversity, Blog on Forbes website discussing roundtable at the IUCN’s 5th World Congress, Jeju, September 2012, http://www.forbes.com/sites/francisvorhies/2012/09/07/operationalizing-the-precautionary-principle-for-biodiversity/ (accessed 5 October 2012).
116 Conference of the Parties to the Convention on Biological Diversity (2006), Voluntary guidelines on biodiversity-inclusive impact assessment. Decision VIII/28. http://www.cbd.int/decision/cop/?id=11042 (accessed on 5 October 2012) and Slootweg, R. et al (2006), Biodiversity in EIA and SEA. Commission for Environmental Assessment, Background Document to CBD Decision XIII/28. https://www.cbd.int/doc/publications/imp-bio-eia-and-sea.pdf (accessed 5 October 2012).
117 Environmental Protection Department (2010), Basic Principles of the Environmental Impact Assessment Process (EIAO Guidance Note GN 1/2010), HKSAR Government, http://www.epd.gov.hk/eia/hb/materials/GN1.pdf (accessed 5 October 2012). In the Technical Memorandum avoidance is listed as the first priority in terms of mitigating impacts on important habitats and wildlife. EPD (2002). Guidelines for Ecological Assessment. http://www.epd.gov.hk/eia/english/legis/memorandum/annex16.html (accessed 5 October 2012).
82 Secretariat of the Convention on Biological Diversity (2007b), NBSAP training modules version 1 – Module B-7. Communication Strategy for Issues in NBSAPs. Montreal, July 2007, http://www.cbd.int/doc/training/nbsap/b7-train-communication-strategy-nbsap-en.pdf (accessed 5 October 2012).
83 Leisure and Cultural Services Department, Greening School Handbook, HKSAR Government, http://www.lcsd.gov.hk/green/en/handbookindex.php (accessed 5 October 2012).
84 Secretariat of the Convention on Biological Diversity (2012), Module 5, see endnote 13.
85 Ibid.
86 Secretariat of the Convention on Biological Diversity (2012), Module 5, see endnote 13.
87 Secretariat of the Convention on Biological Diversity (2007a), Module B6, see endnote 17.
88 Apte, T. (2006), A People’s Plan For Biodiversity Conservation: Creative Strategies That Work And Some That Don’t. International Institute for Environment and Development, Gatekeeper Series 130, http://pubs.iied.org/pdfs/14538IIED.pdf (accessed 5 October 2012).
89 A discussion on adaptive governance, a broader term than adaptive management, and how this can be applied to Hong Kong’s country parks can be found at Lau, W. (2011), see endnote 54.
90 Secretariat of the Convention on Biological Diversity (2011), Module 8, see endnote 11.
91 Lau, W. (2011), see endnote 54.
92 For example, the UK RSPB’s Garden Birdwatch programme, RSPB (2012), “Big Garden Birdwatch” webpage, http://www.rspb.org.uk/birdwatch/ (accessed 5 October 2012) and PlantLife’s Wildflowers Count, Plantlife (2012) Wildflowers count webpage, http://www.plantlife.org.uk/things_to_do/wildflowers_count/ (accessed 22 October 2012).
93 AFCD (2012), “Hong Kong Reef Check” webpage, http://www.afcd.gov.hk/english/conservation/con_mar/con_mar_cor/con_mar_cor_hkrc/con_mar_cor_hkrc.html (accessed 5 October 2012).
94 Green Power and Shell Hong Kong, “Shell Nature Watch- Butterfly Explorer” website, http://butterflyclub.greenpower.org.hk/eng/aboutus.php, (accessed 5 October 2012).
95 Ballard, H., Dixon, C. and Evans, E. (2012), California Biodiversity Citizen Science Meetings, California Academy of Sciences, 16-18 May 2012, https://www.dropbox.com/sh/gl6gc1h50bck5zf/pQZs-J3vh9/CA%20Academy%20citsci%20proceedings.pdf (accessed 5 October 2012).
96 Newman, G. et al (2012), “The future of citizen science: emerging technologies and shifting paradigms.” Frontiers in Ecology and Environment 10(6): 298–304, http://www.monitoringmatters.org/articles/Newman.pdf (accessed 5 October 2012).
97 Second Expert Workshop on the Development of the City Biodiversity Index (2010), City Biodiversity Index (or Singapore Index), http://www.cbd.int/authorities/gettinginvolved/cbi.shtml (accessed 5 October 2012).
98 Article 26 of the CBD requires parties to present “reports on measures which it has taken for the implementation of the provisions of this Convention and their effectiveness in meeting the objectives of this Convention.” The 5th National Report is due March 2014, for more details see http://www.cbd.int/nr5/, while the 6th National Report is likely to be due in 2019 (based on the 5 year cycle). It is not clear whether Hong Kong needs to submit a report directly to the CBD Secretariat or via China.
99 DEFRA, “Biodiversity Action Reporting System” webpage, http://ukbars.defra.gov.uk/archive/ (accessed 5 October 2012).
100 United Nations (1992). See endnote 10.
55
136 The CASET system comprises a set of baseline data for the indicators and supporting maps. In carrying out a CASET run a user has to answer 72 questions to establish which indicators may be affected and assess the impact of the proposal on the relevant indicators through comparison with their baseline data SDD (2006), Report on Review of the Sustainability Assessment System in Hong Kong, Discussion Paper No. 08/06. Meeting 17 November 2006. http://www.susdev.gov.hk/html/en/council/Paper08-06eReportAnnexReport.pdf (accessed 5 October 2012).
137 The SROI Network, website http://www.thesroinetwork.org, (accessed 5 October 2012).
138 New Economics Foundation (2010) Grounded. A new approach to evaluating Runway 3. April 2010. See http://www.neweconomics.org/sites/neweconomics.org/files/Grounded_0.pdf (accessed 5 October 2012).
139 Millennium Ecosystem Assessment, About the Millennium Assessment webpage, http://www.maweb.org/ (accessed 5 October 2012).
140 Secretariat of the Convention on Biological Diversity, Ecosystem Approach webpage, http://www.cbd.int/ecosystem/ (accessed 5 October 2012).
141 Post, J. C. and Lundin, C. G. (1996) Guidelines for Integrated Coastal Zone Management, Environmentally Sustainable Development Studies and Monographs Series No. 9, The World Bank, Washington, D.C. http://www-wds.worldbank.org/external/default/WDSContentServer/WDSP/IB/1996/08/01/000009265_3961219091924/Rendered/PDF/multi_page.pdf (accessed 5 October 2012)
142 Food and Agriculture Organization of the United Nations (1998) Integrated coastal area management and agriculture, forestry and fisheries, FAO Guidelines, Rome, 1998, http://www.fao.org/docrep/w8440e/w8440e00.htm (accessed 5 October 2012).
143 South African National Biodiversity Institute (SANBI) (2007), National Spatial Biodiversity Assessment, Biodiversity GIS (BGIS) website, http://bgis.sanbi.org/nsba/project.asp (accessed 5 October 2012).
144 Secretariat of the Convention on Biological Diversity (2011d), Module 3: see endnote 61.
145 Civic Exchange Strategy 6, see Kilburn, M. and Kendrick, R. (2011), endnote 56.
146 Civic Exchange Action 6.4, see Kilburn, M. and Kendrick, R. (2011), endnote 56.
147 The New Zealand Institute, Invasive Species webpage, http://www.nzinstitute.org/index.php/nzahead/measures/invasive_species/ (accessed 5 October 2012).
148 Ministry for Primary Industries (2012), National Pest Programmes webpage, updated 30 April 2012, New Zealand Government, http://www.biosecurity.govt.nz/pests/surv-mgmt/mgmt/prog (accessed 5 October 2012).
149 Civic Exchange Objective 4, see Kilburn, M. and Kendrick, R. (2011), endnote 56.
150 Civic Exchange Action 8.1, see Kilburn, M. and Kendrick, R. (2011), endnote 56.
151 Ministry of Agriculture, Nature and Food Quality (2008). Biodiversity works for nature for people forever. The Biodiversity Policy Programme of the Netherlands 2008-2011. http://www.cbd.int/doc/world/nl/nl-nbsap-v3-en.pdf (accessed 5 October 2012).
152 See appendix 2.
153 Kilburn, M. and Kendrick, R. (2011), see endnote 56.
118 COP endorsed the description of the Ecosystem Approach and operational guidance and recommended the application of the principles and other guidance on the Ecosystem Approach (decision V/6): Conference of the Parties, COP 5 Decision V/6: Ecosystem Approach, Convention on Biological Diversity, http://www.cbd.int/decision/cop/?id=7148, (accessed 5 October 2012). At its ninth meeting, COP urged parties to “Strengthen and promote the use of the ecosystem approach more widely and effectively as a useful tool for formulation and implementation of national biodiversity strategies and action plans and in other relevant policy mechanisms” (decision IX/7) http://www.cbd.int/decision/cop/?id=11650 (accessed 5 October 2012).
119 Secretariat of the CBD (2004), The Ecosystem Approach. CBD Guidelines. http://www.cbd.int/doc/publications/ea-text-en.pdf (accessed 5 October 2012).
120 Conference of the Parties to the Convention on Biological Diversity (2000), Principles of the Ecosystem Approach webpage, http://www.cbd.int/ecosystem/principles.shtml (accessed 5 October 2012).
121 Conference of the Parties to the Convention on Biological Diversity (2004), Ecosystem Approach Sourcebook webpage, http://www.cbd.int/ecosystem/sourcebook/ (accessed 5 October 2012).
122 Conference of the Parties to the Convention on Biological Diversity, Decisions on Protected Areas webpage, http://www.cbd.int/protected/decisions/ (accessed 5 October 2012).
123 Conference of the Parties to the Convention on Biological Diversity (2004), Protected areas (Articles 8 (a) to (e)), COP Decision VII/28. http://www.cbd.int/decision/cop/?id=7765 (accessed 5 October 2012).
124 United Nations (2002), see endnote 10.
125 The website for engagement on the Tung Chung New Town Extension Study provides a good example of the type of information that should be included, Civil Engineering and Development Department (2012), “Tung Chung New Town Extension Study” website, http://www.tung-chung.hk/eng_index.html (accessed 5 October 2012).
126 Secretariat of the Convention on Biological Diversity (2011d), Module 3, see endnote 60.
127 EPD’s comprehensive website on EIAs is available at EPD (2012), Environmental Impact Assessment Ordinance website, updated 06 September 2012, http://www.epd.gov.hk/eia/index.html (accessed 5 October 2012).
128 Listed in Schedule 2 (Designated Projects) and Schedule 3 (Major Designated Projects) or the Ordinance http://www.epd.gov.hk/eia/english/legis/index1.html
129 Comprehensive information on Hong Kong’s SEAs can be found at EPD (2012), Strategic Environmental Assessment (SEA) Knowledge Centre, updated 15 October 2012, http://www.epd.gov.hk/epd/SEA/eng/index.html (accessed 22 October 2012).
130 EPD (2010), Case 7 - Territorial Development Strategy Review 1996, EA & Planning webpage, updated 30/03/10, http://www.epd.gov.hk/epd/english/environmentinhk/eia_planning/sea/ebook1_7.html (accessed 22 October 2012).
131 See endnote 30.
132 Appendix A to Annex 16: Guidelines for Ecological Assessment. EIAO, see EPD (2012), endnote 124.
133 Sustainable Development Division, Environment Bureau (2009). Sustainability Assessment webpage, Hong Kong SAR Government, revised January 2009, http://www.susdev.gov.hk/html/en/su/sus.htm (accessed 19 October 2012).
134 This includes a specific one on biodiversity but many of the other guidelines are also relevant to the CBD and protection of ecosystem services.
135 Of which four are specific to biodiversity though many of the other indicators on natural resources and environmental quality also affect biodiversity and ecosystem services
© Civic Exchange, December 2012The views expressed in this report are those of the author, and do not necessarily represent the opinions of Civic Exchange and ExxonMobil Hong Kong Limited.
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