PROPOSAL FOR REVIEW (Draft of June 1996)

PROPOSAL FOR REVIEW

PROJECT TITLE: JORDAN: FINAL CONSOLIDATION AND CONSERVATION OF AZRAQ WETLANDS AND DANA WILDLANDS BY RSCN TO ADDRESS NEW PRESSURES

GEF FOCAL AREA: Biodiversity

COUNTRY ELIGIBILITY: Under financial mechanism of Convention Ratification: 12 November 1993

TOTAL PROJECT COSTS: US$ 3,299,000

GEF FINANCING: US$ 1,949,000

GOVERNMENT CONTRIBUTION: US$ 450,000 In kind

COFINANCING: US$ 900,000

GEF OPERATIONAL FOCAL POINT: Ministry of Planning

GEF IMPLEMENTING AGENCY: UNDP

EXECUTING AGENCY: Government of Jordan with World Bank

LEAD LOCAL COUNTERPART AGENCY: Royal Society for the Conservation of Nature (RSCN)

ESTIMATED APPROVAL DATE: August 1996

ESTIMATED STARTING DATE: January 1997

PROJECT DURATION: 18 months

GEF PREPARATION COSTS: Staff time

COUNTRY AND SECTOR BACKGROUND

General

1. Jordan is a small country with a population of 4.2 million and a size of 90,000 square kilometres, of which 80% is classified as desert. It has a remarkably varied topography, geological structure and climatic regime which has led to the formation of an equally varied range of ecosystems, from evergreen oak forests to sand dune desert.

2. Arid and semi-arid ecosystems are particularly fragile and habitat degradation and species losses in Jordan have been severe. Seven large mammals and at least ten plant species are known to have become extinct within the last ninety years and it is estimated that about one million hectares of rangelands have deteriorated into marginal steppe (NEAP Working Paper 1995). Ongoing GEF projects in the country have also revealed the presence of many globally threatened species, including several endemics. The persistent causes of such degradation and loss are de-afforestation, over-grazing, inappropriate agriculture, urbanisation and population growth. More recently, the dramatic increase in tourism has been identified as growing threat to environmental quality (NEAP Working Paper 1995).

3. In 1991 the Government produced the National Environment Strategy (NES) in response to the accelerating deterioration of Jordan's natural environment, identifying over 400 specific recommendations for action. Implementation, however, was inhibited by lack of financial resources, and weak, fragmented institutional and legislative frameworks (NEAP Working Paper 1995).

Recent developments

4. Within the last 3 years Government commitment to environmental protection has strengthened, aided by donor priorities and support. In 1995, the National Environment Action Plan was prepared under METAP (Mediterranean Environment Technical Assistance Program), building on the NES and defining priorities for action. These priorities include the completion of the protected area network, a national biodiversity inventory and the development of a land use planning system. In the same year, Parliament ratified the "New Environmental Law" which provides a more comprehensive framework for the establishment of sectoral legislation, including protected area by-laws. It also proposes the formation of two quasi-government bodies, the Higher Council for the Protection of the Environment (HCPE) and the General Corporation for the Environment (GCE), with responsibility for formulating policy and laws, implementing the National Strategy, environmental monitoring, enforcement and co-ordination of environmental activities. These bodies were established in January 1996 and include representatives from Government and NGOs.

5. A further recent development (April 1996) was the initiation of a consultation process leading to the formulation of a national policy for protected areas. This policy will become part of the policy armoury of the HCPE and GCE.

Peace Accord

6. The signing of the Peace Accord with Israel in September 1994 was an event of major significance for the environment of Jordan (and the Region). It has stimulated unprecedented increase in mass tourism and infrastructure development proposals which, if not carefully planned and regulated, will have a deleterious effect on environmental quality. Already, the tourism boom is leading to unsustainable levels of visitor pressure on Jordan's protected areas. Much of the tourism and development pressure is concentrated in the Great Rift Valley, an inter-country ecological system and bird migration "flyway" of global significance.

Pilot Phase GEF Project: Conservation of the Dana and Azraq Protected Areas and Institutional Strengthening of the Royal Society for the Conservation of Nature

7. In January 1994 a three-year GEF project was initiated with two basic components, the conservation of the Dana Wildlands protected area and the Azraq Oasis protected area, both ecosystems of global importance. These two components were managed by different implementing agencies, the World Bank and UNDP respectively. A third major component was institutional strengthening of RSCN, an NGO with responsibility for protected areas. The project was the first in Jordan to tackle the conservation of biodiversity by addressing the social and economic needs of local communities and one of the first in the world to address the restoration of a large arid-land wetland ecosystem. Baseline ecological surveys undertaken for the project have revealed many exciting discoveries, including approximately 60% of the world's population of the Syrian serin, a small finch endemic to the Middle East, breeding colonies of the globally threatened lesser kestrel, the first ever recorded blandford fox in Jordan and (subject to final confirmation) two plant species previously unknown to science.

8. All components of the Pilot Phase project have achieved considerable success in meeting their objectives and targets, and demonstrated much innovation in the process. Below are some of the major achievements recognized by the Independent Evaluation (1996) of the project:

(a) With respect to Dana: "Under the Dana project, RSCN has assumed legal and operational control of Dana Nature Reserve, undertaken a comprehensive biological inventory, established close relations with local communities, instigated sustainable socio-economic developments, and through practical tourist developments, prepared the way for sustainability of its own management operations. At the same time, it has overseen the construction and furbishing of a multi-purpose Centre which aims to become a focus for applied research into the ecology and management of drylands ecosystems in the region."

(b) With respect to Azraq: (i) "The top priority of the project initially was to find sufficient water to bring the mostly desiccated Azraq wetland from the brink of complete biological disaster. By mid 1994, enough water to establish a core area of wetland around the Shishan springs and Ramsar site had been found... The restoration effort at Azraq is one of the first in the world to examine how wetland ecosystems respond to reflooding." (ii) "The mathematical models being developed as part of the project have extreme significance for Jordan and other semi arid and arid lands. These models will provide the analytical basis for establishing future water allocations in Jordan in light of changing water availability and human utilization demands."

(c) With respect to Institutional Strengthening: "The project has been successful in implementing most of the institutional strengthening aspects it set out to achieve. The end result is an organization which is accountable, efficient, and well focused in meeting its mandate. Institutional strengthening has supported infrastructural development at headquarters and at reserve level, in providing the latest in office equipment and technology, and has strongly supported human resources development through an active recruitment and training programme. The operating procedures and policies of the organization are now of a highly professional nature."

9. However, during the course of the project, new and unforeseen developments occurred in the political, legislative and institutional framework of Jordan, notably the Peace Accord and the subsequent rapid growth of mass tourism, as described above. These new and unforeseen threats and challenges to biodiversity conservation need to be addressed if the original GEF project is to achieve sustainability at the ecological, social and financial levels. This need was also emphasized strongly in the Independent Evaluation, as follows:

(a) With respect to the Dana reserve: "The Eastern Rift Valley, and indeed all of Wadi Araba, are experiencing a surge in growth of industrial developments and commercial tourism brought on by the signing of the Peace Accord with Israel in 1994. It is recommended that RSCN develop and implement a special management plan which aims to give them environmental control and influence over a buffer area or support zone around the perimeter of Dana Reserve".

(b) With respect to the Azraq reserve: "Tourism will undoubtedly increase exponentially at Azraq, as it has at other important conservation and historical sites in Jordan, as a direct consequence of the Middle East Peace Accord. Although infrastructural elements will have been completed at Azraq by the end of the project, the site and community are not prepared for an unforeseen onslaught of tourists, and it is likely that uncontrolled access to the wetland will undermine the ecological successes obtained with current funding."

(c) With respect to Institutional Strengthening: "Extension of the project for a period of 12-18 months would be warranted from an institutional strengthening perspective on two counts; (i) to enable consolidation of progress made thus far, ensuring that the depth and breadth of the organization, in terms of expertise and staff compliment, continues to develop; and (ii) enabling RSCN to meet its mandate in the face of rapidly increasing demands and responsibilities, brought about through the introduction of new laws and policy, the need to manage increasing tourist demands and development pressures in and around the reserves......"

10. Furthermore, the Evaluation emphasized that because of the pioneering nature of the rehabilitation efforts in Azraq, the project was in no position to predict the successional processes during and after reflooding. The Evaluation stated strongly that "There is still critical need to collect additional unforeseen ecological data on key species and ecological processes in order to provide the best long term management plan for the Azraq wetland", and recommended that "a long term monitoring program be established for the Azraq wetland for the purpose of determining successional trends and management needs following reflooding. These data are considered critical to both the long term management plan for the wetland as well as the transfer of this experience to the management of other similar wetlands in the arid zones of the world."

11. In response to the above, the present proposal has been developed to consolidate the current GEF programme specifically to address the important and far-reaching changes occurring in the host country, especially those related to mass tourism, and to complete the collection of additional unforeseen ecological data essential for the longterm management of Azraq which will serve as a pioneering model for wetland management globally.

PROJECT OBJECTIVES

Global environment objectives

(a) To ensure and enhance the continued protection and sustainable use of critical areas of globally important biodiversity, by addressing the new threats and capturing the new opportunities posed by the rapidly increasing tourism and other development pressures stimulated by the Middle East Peace Accord.

(b) To achieve the complete restoration of an arid land wetland ecosystem, and document its recovery after two years of intensive restoration work to provide a unique case study relevant to other important degraded wetland ecosystems world-wide.

(c) To enhance the national capability to conserve habitats and species of global significance, by strengthening an NGO positioned as the key government partner responsible for protected areas and enforcement of relevant legislation.

Anticipated global benefits

(a) Effective and sustainable management of the Dana and Azraq Nature Reserves, both of which are of confirmed global biodiversity significance.

(b) Increased amount of global biodiversity captured by a new protected area in the Great Rift Valley, formed by expanding and linking two existing reserves of global importance and effectively managing the ecological corridor and buffer zone.

(c) Provision of a unique case study on the recovery and management of a recently restored wetland, and a conservation model for other arid land wetland ecosystems of global importance.

(d) Build up of national capacity essential for the conservation of globally and nationally important biodiversity.

Specific project objectives

(a) To address the new threat (unforeseen at the time of project preparation in 1992/1993) and pressures brought about by the Peace Accord in the Dana and Mujib reserve (as strategic nodes in the Rift Valley ecosystem) and the Azraq Wetland Reserves. Develop and implement Management Plans to capture some of the opportunities associated with the newly emerged mass tourism and development, thereby setting in place a conservation system which will ensure future ecological and socio-economic sustainability of the protected areas.

b) To enhance conservation of the natural ecosystems and biodiversity of Wadi Araba in the Rift Valley by extending the Dana Reserve to the Jordan/Israel border. Within this extended area, develop participatory schemes for sustainable resource management by tribal communities, concentrating on rangelands management, nature tourism and livelihood alternatives to ease the pressures on the conservation areas and to maintain the ecological integrity of the reserve.

(c) To expand the technical, organisational and managerial capacity of the RSCN to deal with new environmental threats and challenges so that it can position itself as the key government partner under the new Environmental Corporation responsible for establishing the national network of protected areas which contribute to global biodiversity conservation, and enforcing habitat and species protection laws by creating an effective environmental enforcement agency (with a country-wide network of government funded, trained and equipped enforcement officers) through partnerships between the RSCN and the national police force.

PROJECT DESCRIPTION

Component 1. In view of increased pressures and threats from mass tourism following the Peace Accord, update and implement Management Plans for Dana, Mujib and Azraq protected areas.

In view of increased development pressures and emerging economic opportunities following the Peace Accord, extend the Dana Reserve to the Jordanian border to create a Biosphere Reserve in the Rift Valley. Develop buffer zone activities which utilize the economic opportunities from increased tourism to provide alternative livelihood and marketing activities, thereby relieving further pressures on the reserve.

Context

12. The Dana and Mujib reserves are the only existing protected areas along the Eastern Rift Valley ridge (Annex 4). They were established to ensure the conservation of important habitats and species of global and regional importance, as well as to guarantee the protection of strategic sites along one of the world's major bird migration routes. These areas, and other parts of Wadi Araba, are currently facing increasing pressure from infrastructure, industrial and mass tourism development as a consequence of the peace process. Such developments pose a serious threat to ecological integrity of these two reserves.

13. The Azraq wetland reserve is situated in the eastern desert, within a prime tourist region, famous for its "desert castles" and other archaeological sites. This reserve is also under pressure from rapidly increasing tourism.

14. At the time the first phase GEF project was formulated, it was impossible to predict dramatic increases in tourism and hence little provision was made in the Management Plans for addressing aspects pertaining to eco-tourism developments. There is now a need to build up the RSCN's capacity to deal with mass tourism pressures. This involves adaptation of the Management Plans, institutionalizing systems for conservation friendly tourism, collaborating with the mass tourism operators to develop an awareness for nature based tourism, initial development of conservation friendly tourism base, visitor management systems including systems of user fees collection, on site interpretation and staff training. These will substantially enhance the economic and educational values of the protected areas and ensure their continued protection.

15. As the communities are increasingly being excluded from the grazing opportunities which the protected areas previously provided, there are increasing needs for alternative livelihoods. Another vitally important objective of the project is therefore to capture the opportunities generated from increased tourism to increase the participation of local communities in visitor management, provision of visitor services, and reserve management in general, thus resulting in increased levels of benefit-sharing to the local people. This will further facilitate reserve management and biodiversity conservation efforts which the pilot phase GEF project has developed on the basis of a highly participatory approach.

16. With respect to the Biosphere Reserve in the Rift Valley, activities of the present proposal will be implemented in close collaboration with ongoing or planned development projects covering the western sector of the Dana Reserve and the Wadi Araba region of the Rift Valley. Since the beginning of the peace process and the opening-up of the Dead Sea-Aqaba road, three project proposals in this area have been initiated which will have significant positive impacts on the reserve:

(a) A major archaeological project at Feinan which will bring the attention of tour operators to a site just inside the reserve boundary. This will lead to a rapid increase in visitor numbers, especially after the planned upgrading of the local road network adjacent to the reserve, and thus provide economic opportunities for the local people in the reserve.

(b) A rangeland management and socio-economic development project to be funded by the Canadian Government to support and further strengthen the development of participatory rangelands management schemes and alternative resource uses by indigenous Bedouin tribes; and

(c) A regional initiative to investigate the creation of a Biosphere Reserve extending the Dana reserve and thus creating an "ecological corridor" across the Jordan Rift Valley. This regional initiative of the Biosphere Reserve will provide for a greater sustainability and increased global benefits for the present project. Furthermore, such an extension of the protected area will ensure the conservation of important desert habitats in Wadi Araba and of several rare and endangered species such as the Sand Cat (Felis margarita), the Sand Fox (Vulpes rueppelli), the Desert Gazelle (Gazella dorcas isabellina) and the Spiny Tailed Lizard (Uromastix aegypticus).

17. All the above developments necessitate the involvement of RSCN, as the organisation mandated to protect wildlife and natural resources within the protected area and buffer zone. The extension of the protected area to the national border will require substantial upgrading of reserve staff capabilities to control such a vast area with increasing tourism and development impacts. On the other hand, it will also provide a major opportunity for the development of nature-based tourism, managed by indigenous Bedouin tribes and local cooperatives. All development opportunities will therefore be directed at maximising the beneficial links between the local community and the reserve.

Activities for both Dana and Azraq Protected Areas

(a) Update of Management Plans in line with new pressures, threats and opportunities;

(b) Development and implementation of Conservation and Recreation Zoning Plans;

(d) Recruitment and training of interpreters and guides among the local community; and

(e) Collaboration with mass-tourism operators to develop ecologically sensitive conservation tourism packages.

Activities for Dana extended Protected Area

(a) To create a protected area across the Rift Valley by extending the Dana Reserve to the Jordan/Israel border;

(b) To complete baseline ecological studies in the extended reserve area; and

(c) To promote alternative livelihoods (including locally based visitor services and other options such as organic agriculture, etc.) to alleviate communities' pressure on biodiversity in the protected areas.

Outputs

(a) New Management Plans in place which take into account new realities and pressures;

(b) Designation of visitor management zones and development of trail systems;

(d) Locally recruited, trained nature guides and interpreters providing a high quality visitor experience and ensuring the continued ecological sustainability of visitor activity;

(e) Business plans developed for the protected areas to provide a framework for financial sustainability;

(f) Coordinated cross-border biodiversity conservation established;

(g) Baseline ecological studies into the proposed Biosphere reserve; and

(h) Pressures by nomadic and sedentary communities for grazing rights in protected area alleviated through alternative income generating activities with conservation objectives.

Component 2: Long term monitoring and case studies of the Azraq Wetlands.

Context

18. The Azraq Wetlands are of declared global importance for biodiversity. Their location in the centre of a large arid region makes them one of the world's unique ecosystems. Migratory birds (over 250 species), unique flora, endemic fish and a generally complex limnological structure are among their most important characteristics.

19. Towards the end of 1993 the wetlands were considered to be almost "ecologically dead", but owing to the efforts made under the GEF project, the trend was reversed and the oasis is coming back to life. A key factor in this success has been securing adequate amounts of water for the restoration effort.

20. The proven success of the rehabilitation efforts, including the amassing of political and community support, will make it virtually impossible for the wetlands to be degraded again, provided that the water supply can be maintained. As a result of the Peace Process several major bilateral projects are under way to help Jordan reduce its acute water shortage. Few of these projects will yield significant volumes of water before 3 to 5 years which means that the effort to sustain and manage the water supply to the Wetlands must be continued carefully in order to keep the re-instated ecological integrity of the wetland area.

21. The potential threats and opportunities from increasing tourism and the pioneering nature of the restoration of Azraq Wetland spelled out by the 1996 Independent Evaluation have been described in detail in the background section. In addition, the Evaluation emphasized that, "For maximum benefit and experience transfer on a global scale, additional research dimensions are needed in order to develop a reproducible model for wetland restoration. The Azraq component is at a threshold, whereby additional funding will ensure both the best management plan for sustainability of the biodiversity and ecological function of the wetland and maximum benefit on a global basis as a pioneering model for wetland management." The Evaluation recommended that "a long term monitoring programme be established for the Azraq Wetlands for the purpose of determining successional trends and management needs following re-flooding."

The need for a continued conservation and water management programme

22. The rehabilitation work conducted to date under the GEF project required heavy mechanical intervention and, over most parts of the wetland, ecological restoration started from scratch. The maintenance of the oasis depends, primarily, on the availability of water generated by rainfall. Rainfall in Jordan is characterised by its variability in temporal and spatial terms from one season to the next. In view of the fact that primary restoration of the wetland is still very recent, its biological diversity will be highly vulnerable to significant fluctuations in rainfall at this stage in the rehabilitation. The 1994-95 rainy season was an above normal season and the results of the rehabilitation were remarkable. On the other hand, the 1995-96 season was a declared drought but, despite this, water levels were maintained in the pools through reverse pumping. It is therefore vital that water levels are consistently maintained in the core of the wetland area whilst restoration continues.

Studying and monitoring the Azraq case: scientific importance and global applications

23. The Azraq restoration represents one of the most unique cases in the world, where an ecological pyramid is being rebuilt. To observe, monitor, document and administer the recovery of this arid-land wetland ecosystem is a unique opportunity in scientific and ecological terms. The lessons learned from this will provide a much better understanding of the management of wetlands in other arid regions throughout the world.

24. The scientific, practical and political realities that have emerged during the successful rehabilitation of the wetlands over the last three years demonstrate the vital importance of continuing the rehabilitation and ecological evaluation of the project for at least a further three years in order to capitalise on past success and ensure continuity.

Activities

(a) Install a monitoring system involving surveys on key species and other ecological data, to determine the successional trends following reflooding and management needs of the wetland given the new challenges of increasing tourism (the latter in conjunction with Component 1);

(b) Expansion of the water harvesting efforts to direct additional amounts of water to the wetland;

(c) Strengthening the national, regional and international awareness of the project to arouse additional support and enhance sustainability; and

(d) Strengthen the ties with the newly established Friends of Azraq to ensure continued public advocacy for the conservation of the oasis.

Outputs

(a) Monitoring and documentation of the rehabilitation of a globally unique arid-land wetland ecosystem as a case study to be disseminated world wide;

(b) A fully rehabilitated wetland reserve;

(d) An established grassroots movement which will act as a buffer against possible degradation of the wetland.

Component 3: Institutional strengthening of an indigenous NGO, Outreach, and Financial Sustainability

Context

25. RSCN is a unique organisation in the Middle East. Created in 1966, it was the first conservation NGO in the Arab countries of the region. Shortly after its formation, it was assigned responsibility by the Government of Jordan for the establishment and management of all protected areas where nature conservation is a priority. At present, this responsibility is transferred to RSCN through the Ministry of Agriculture. The total area of the 5 reserves now designated to RSCN is 5600 square kilometres, (approximately 0.5% of Jordan's total land area). In addition, RSCN has a mandate to enforce the laws pertaining to hunting, which includes the issuing of licences, setting quotas, patrolling and prosecution. It is also the only NGO in Jordan which has permission to participate in the development of the national school curriculum as it relates to the environment.

26. Under the new Environmental Law, RSCN's role is likely to be strengthened and broadened. Clear indication has been given that RSCN will become the protected area management agency under the umbrella of the new quasi-governmental body - General Corporation for the Environment (GCE), with direct responsibility for protected areas rather than the currently transferred responsibility, and that as the articles and by-laws of the Environmental Law are developed, RSCN will be asked to expand its enforcement role to meet the new requirements.

27. RSCN has been remarkably effective in the implementation of the GEF project. Through this project, the institution has been greatly strengthened, for example, by the introduction of organisational structures and management systems based on objective setting, forward planning, teamwork performance monitoring and intensive staff training. New functional divisions have been created reflecting RSCN's priority activities and responsibility has been delegated throughout the organisation. The 3-year Strategic Plan has also been prepared collaboratively by staff and board members. This Plan defines RSCN's mission, sets clear goals and priorities and presents a clear and transparent financial budget.

28. However, well after the start of the GEF project, in addition to increasing tourism and development pressures following the Peace Accord, major changes have taken place in the national legislative, policy and organisational framework related to environmental protection. These include the Ratification by Parliament of the New Environmental Law (October 1995) which makes provision for new by-laws on protected areas and species and habitat conservation, formation of the GCE, preparation of the NEAP, and the development of a national policy on protected areas. These new pressures and changes effectively place new responsibilities on RSCN, which the Pilot Phase GEF project was unable to prepare the RSCN to meet.

29. As a consequence of these changes, RSCN will be required to extend its role and responsibilities pertaining to the management of biological resources. In particular, it will be re-positioned in linkage with the new GCE as the key partner responsible for Jordan's Protected Area network, designate and manage the rest of the proposed network (another 7 sites covering approximately 350,000 km sq) in the near future, and have greater responsibility for enforcing environmental legislation related to species and habitat protection and protected areas.

30. In this context, it should be noted that RSCN plays a truly unique role in fulfilling the national responsibility of safeguarding the country's global biodiversity heritage. The GEF support to the RSCN through the Pilot Phase project should be seen as a major contributor to identifying the need to address national biodiversity conservation and further to allocate this responsibility to this indigenous NGO. This is effectively providing a unique and very successful model for protected area management throughout the Middle East and beyond.

31. As a consequence of its expanded role and responsibilities to face new challenges, RSCN urgently needs to extend and develop its technical and organisational capacity, particularly in relation to policy development, strategic planning, law enforcement and eco-tourism management affecting global biodiversity. It is also likely to require restructuring of its constitution, its "top-end" managerial structure and its liaison mechanisms with government agencies.

32. For RSCN to be able to take on this new responsibility, it needs to gain financial sustainability. While this was most difficult to achieve when the Pilot Phase project was designed and initiated, as the income opportunities were rather limited, the Peace Accord and the accompanying economic changes have completely altered the scenario.

33. As has already been outlined in Component 1, RSCN will, through the present project, be able to maximize the positive benefits of tourism and minimize the negative impacts. However, as RSCN has never before been involved in income generation and eco-tourism management to provide alternative livelihood, there are still a number of transaction costs and hurdles which will need to be overcome if this income potential is to be realized and global biodiversity conservation in Jordan to be sustained.

Activities

(a) Develop staff skills and capacity in the fields of land-use planning for biodiversity conservation, legislation and policy development, enforcement strategies and techniques;

(b) Prepare national strategy for protected area acquisition for incorporation into the policy framework of the Environmental Protection Agency;

(c) Upgrade the enforcement unit in RSCN to meet the new legislative requirements and new threats, and create a CITES unit in the customs department to effectively enforce controls on the trade in endangered species;

(d) Produce and implement a public awareness campaign, based on lessons learnt from the pilot phase project, to support the introduction of new laws and the enforcement operations in response to new challenges on global biodiversity conservation;

(e) Create mechanisms for enhanced liaison and cooperation between RSCN, the GCE and relevant Government departments to enhance cross-sectoral involvement in protected area establishment and management, and species and habitat conservation; and

(f) Enhance the resource mobilization capacity of RSCN to meet the future costs of its enlarged role and ensure the future sustainable management of Jordan's biological diversity in its protected areas, especially in Azraq and in the extended Dana Reserve.

Outputs

(a) Enhanced capacity within RSCN, enabling it to meet its broader biodiversity conservation responsibilities at both the site protection and enforcement levels, and the new environmental challenges following the Peace Accord;

(b) A cost effective law enforcement system for species and habitats covering the whole of Jordan;

(d) Effective public awareness campaigns explaining the new laws and encouraging public involvement in their implementation;

(e) A consolidated RSCN - Government collaboration for conservation and biodiversity protection; and

(f) A long term sustainable RSCN well able to handle its national responsibility for biodiversity conservation.

RATIONALE FOR GEF FINANCING

Biodiversity Convention

34. Jordan has ratified the Convention on Biological Diversity on 12 November 1993. Following the ratification of this and other relevant global conventions, Jordan set out to formulate a major new Environmental Law in order to bring national legislation on par with both national and global priorities and obligations. As has been noted elsewhere in the present document, the new Environmental Law was ratified by Parliament in October 1995.

GEF Operational Strategy

35. The GEF Operational Strategy highlights the importance of Arid and Semi Arid eco-systems as an Operational Programme. The Operational Strategy states that "activities in this operational program will focus on the conservation and sustainable use of endemic biodiversity in the dryland ecosystems (....) in the Mediterranean type ecosystems, where biodiversity is threatened by increased pressure from more intensified land use....". Moreover, the Operational Strategy highlights that GEF financed activities will "demonstrate integrated approaches to the conservation of representative natural habitats and ecosystems through effective systems of conservation areas, including protected areas...".

36. The present project aims thus precisely meets the criteria of the Operational Strategy as it aims to ensure the sustainable conservation of unique and endemic Mediterranean type dryland biodiversity which is under threat from over-exploitation and degradation due to new pressures following the 1994 Peace Accord.

37. The present project builds on the Pilot Phase project but in view of the changes which have occurred in Jordan following the signature of the Peace Accord (which could not have been envisaged at the time of designing the Pilot Phase project), there is a need to undertake a number of limited activities which will ensure that the biodiversity protection activities secured during the Pilot Phase project will not be undermined by the added mass tourism and development pressures which are now occurring.

38. The RSCN has secured the legal basis to collect the potential revenue from ecotourism, however, the NGO is not yet in a position to capture these financial benefits as there are a number of transaction costs and financial hurdles which will first have to be overcome. The present project will help the RSCN remove these hurdles and hence able to extend the Dana Reserve to establish the Biosphere Reserve in the Jordan Rift Valley.

39. The importance of "wetlands in drylands" is globally known. The Pilot Phase project made unique strides towards the rehabilitation and conservation of the dying wetland in the Azraq oases. The 1996 Independent Evaluation of the project states that "the rehabilitation efforts at Azraq are some of the first of their type in the world, and therefore the results of this pioneering effort will serve as an excellent restoration model for similar efforts throughout the world. For maximum benefit and experience transfer on global scale additional dimensions are needed in order to develop a reproducible model for wetland restoration. The Azraq component is at a threshold, whereby additional funding will ensure both the best management plan for sustainability of the biodiversity and ecological function of the wetland and maximum benefit on a global basis as a pioneering model for wetland management."

Land Degradation

40. The GEF Scope and Preliminary Operational Strategy for Land Degradation outlines as priority activities for the GEF "land use planning and management ... to guide development and to minimize degradation of fragile areas critical to conserving significant habitats, including wetlands and freshwater eco-systems in drylands". The present project fits well with this guidance.

National priorities

41. Jordan's national strategies give priority status to the objectives and activities of the proposed project. The National Environment Strategy (NES) and National Environment Action Plan (draft) include specific recommendations to support biodiversity conservation, establishment of a protected area network, combating land degradation, capacity building for environmental agencies (including NGOs) improved environmental law enforcement and integrated conservation and development. By encouraging regional collaboration, the project also supports the peace process.

Innovation

42. There are many innovative elements in the project, including a pioneer case study of the recovery of a restored arid-land wetland, the use of an NGO as the executing agency, development of a country-wide enforcement network using the police force, regional collaboration in the conservation of key ecosystems, development of nature tourism as a means of regulating and capitalising on increased tourism pressure, integration of conservation measures with in-country rangelands management schemes and the application of organic agriculture in protected area buffer zones.

SUSTAINABILITY AND PARTICIPATION

National commitment

43. For the present project, the Government of Jordan will provide in kind contribution amounting to US$450,000, consisting of policing costs and portion of its annual grant to RSCN. This annual grant has consistently supported the RSCN. In 1996, the grant sum negotiated ($280,000) amounted to approximately 25% of the Society's running costs, the largest ever contribution. Such support is expected to continue in the future and is likely to increase in recognition of the re-positioning of RSCN as the only organisation in Jordan having a clear mandate to establish and manage protected areas. In addition, the process of establishing a trust fund for RSCN is close to completion and the Government has agreed to transfer the annual interest generated from a $1.5 million bank deposit to the fund. Through investment this will contribute about 20% of the projected annual running costs. The protected areas themselves, will become financially independent through the income generated from the increased visitors' flow to the reserves. The legal framework is already in place which will ensure that the RSCN can collect all such income. Based on the increased tourism pressures observed during the last two years alone at the reserves, it is expected that, (once the facilities are in place through this project, to better handle and manage this tourism pressure), the protected areas/reserves will be financially self-sufficient and sustainability thus ensured for their operating budgets.

Financial Setting

44. Even with the above mentioned financial support from the Government, RSCN will still be required to raise a substantial proportion of its revenue from other sources to meet its strategic objectives. The proposed GEF project will focus on increasing the income generation capacity of RSCN, so as to ensure the continuation of its biodiversity conservation programme after the project ends. In particular, development of eco-tourism in protected areas will provide a sustainable source of revenue and, on the basis of evidence from the Pilot Phase GEF project, is expected to cover most of the costs of managing the protected areas assuming that management plans and systems can be set in place though the present project.

Stakeholder commitment

45. RSCN's Public Awareness section (non-GEF funded) will ensure the timely implementation of educational and environmental awareness programmes at local and national level. The Society's publications, awareness campaigns and membership programmes will ensure a wide dissemination of information related to project development and active participation of Jordanian citizens from all sectors of society. Regular contacts between major Jordanian Universities and RSCN are well established. Results of all ecological, archaeological and socio-economic surveys will be widely circulated at national level. Publication of results in scientific journals will also be promoted at all levels to favour dissemination of information among the wider scientific community.

46. RSCN has a proven track record of developing effective mechanisms to involve local communities in the planning and management of nature reserves. This ensures that conservation practices are, where possible, compatible with the local political, social and religious institutions. Full co-operation and reciprocal understanding between reserve management and local communities is the only way by which effective conservation of such large areas can be achieved. Existing participation mechanisms in the reserves will thus be strengthened and extended.

LESSONS LEARNED AND TECHNICAL REVIEW

47. As is also evidenced by the text of the project brief, prior to the preparation of this proposal, an Independent Evaluation was carried out on the Pilot Phase GEF project. The 66-page Evaluation (available upon request) formed an important basis for the formulation of the present extension proposal and will continue to guide the implementation of the requested consolidation phase of the project.

48. The present project was submitted to STAP and UNDP reviewers and a number of suggestions were made to ensure the strengthening of the proposal. The STAP reviewer suggested that further documentation regarding the regional initiative on the Biosphere Reserve should be included in the present project brief. Accordingly, therefore, additional information has been included in the project brief on this initiative.

49. A second observation is that the amount of background information on the particular habitats, species and resources and the need for enhanced protection is not documented fully. It should be noted that substantial information of this kind does exist and has been incorporated into the Pilot Phase project. All of this information is available in the many produced publications from the Pilot Phase project listed in Annex 5 of the present document.

50. The reviewer wished to see more details on the kind of survey and monitoring to be carried out in Azraq, and on the relationship between the regional initiative on the Biosphere Reserve concerning Dana and the present GEF project proposal. While not described in detail in the present project brief, it should be noted that based on the findings from the Pilot Phase project and from recommendations of the Independent Evaluation, a series of substantive survey and monitoring needs have been identified, including the relationships between both water level in the wetland and its intra and inter annual fluctuations and biological response, which necessitate the collection of ecological data on key species notably the dominant aquatic plants, and also studies on the relationship between plant community types and general habitat heterogeneity and the response of endemic biota and migratory birds. The primary aim of these studies is to determine the minimum water requirements for the ecosystem and how the corresponding plant community structure will affect the conservation potential of the wetlands.

51. For the extended area of Dana to the national border, baseline ecological studies including comprehensive inventory and mapping of the floral communities as well as the distribution of the major vertebrate and invertebrate fauna. Of particular need for focusing are the status, distribution and other ecological information of the rare and threatened desert species such as the Dorcas gazelle (Gazella dorcas isabella), Sand Cat (Felis margarita) and Sand Fox (Vulpes rueppelli). Ecological research on the impacts of livestock grazing and browsing on the Juniper and other trees in the reserve, and on the ecological successions at major springs and along moist wadi beds under changing grazing pressure, will contribute a great deal to developing sustainable rangeland management in the Dana Reserve.

52. With respect to the reviewer's observation regarding the alternative livelihood issue, the role of capturing the economic opportunities brought about by ecotourism and tourism in general should be emphasized. This is in fact a major thrust of the project. By transforming these present threats into opportunities through the creation of new employment, visitor services, cottage business and other related economic activities, alternative livelihoods will provided for the local people. It should also be noted that the CIDA funded rangeland management initiative (to be confirmed) in support of the present GEF proposal will also target at the socioeconomic aspects of the extended Dana Reserve, involving alternative resource uses for the indigenous Bedouin peoples.

53. The reviewer finally makes the observation that the time frame of the proposed consolidation project appears to be optimistic. While 18 months is a fairly short period, it should be recalled that the entire project team is already on the ground; that the team has already studied the results of the Independent Evaluation and that there therefore will be none of the usual "startup delays". Further, the project team has over the past three years produced major project results and have gained an enormous amount of experience and the team, RSCN, the Government, the World Bank and UNDP are confident that the activities as presented can be completed within the given timeframe.

54. With respect to how the present proposal will draw from lessons from other GEF projects, it is important to stress that the Pilot Phase GEF project was the first GEF protected area project in the drylands and many other projects have therefore already gained from the Jordan experiences. Most important in terms of experience exchange, is the Lebanon Protected Areas Project. Links have already been established between the RSCN and the Lebanese NGOs implementing the Lebanon project and these will facilitate an active transfer of experiences and lessons learnt between the two projects. Experience transfer has also been undertaken and will continue with a number of other groups in the subregion and in the Middle East, especially with respect to ecotourism management. Moreover, RSCN's active involvement in IUCN and its close cooperation with Birdlife International has facilitated that many experiences and new information has quickly been made available to a wider global community, while at the same time, lessons from other countries have been made available to RSCN from these partners in an ongoing manner.

PROJECT FINANCING AND BUDGET

55. Of the total project cost of US$ 3,299,000, US$ 1,949,000 will be from GEF. The Government of Jordan will fund the policing costs (officers, vehicles, radios, etc.) associated with the proposed enforcement network. Together with a proportion of its annual grant to RSCN, the Government will effectively contribute US$ 450,000 to the project. A number of cofinancing sources amounting to US$ 900,000 will also be available:

(a) The RSCN itself, through its own fund-raising efforts and the allocation of staff time, office space and vehicles, will make a contribution in the order of US$300,000.

(b) The Canadian Government is currently considering funding a rangelands management project linked to the extension of the Dana reserve which will lead to the contribution of US$500,000 (current indications are an 80% likelihood of approval).

(c) In the Badia region, close to Azraq, a long term conservation and socio-economic project is under way, managed by the Higher Council for Science and Technology and the higher Council has indicated that it will make a contribution in the order of $100,000.

56. Detailed allocations of the total budget are listed in the Indicative Budget over:

INDICATIVE BUDGET (Not available in electronic format. Copies are available upon request from the GEF Secretariat)

INCREMENTAL COSTS

Please see Annex 1 for full incremental cost analysis in accordance with GEF formats.

ISSUES, ACTIONS AND RISKS

Tourism and development pressures

58. The influx of unchecked and unmanaged tourism could lead to ad-hoc development by private sector operators within the buffer zone of the protected areas and unregulated activities within the areas themselves. The lack of an effective land use planning system, combined with inadequate infrastructure and visitor management capacity for protected areas poses a serious threat to the conservation of biodiversity.

59. The inability to tackle these issues can be clearly seen in tourist hotspots such as Petra and Wadi Rum, where infrastructure development has been led by economic considerations rather then landscape conservation and environmental concerns.

60. Most of Jordan's reserves are located in areas of high scenic value, close to main tourist attractions and often within close vicinity of historical sites of major importance (e.g. Feinan - King Solomon's mines; Wadi Mujib - Herod's Palace; Azraq - Azraq Castle).

61. The project will address these risks by enabling RSCN to be the driving force to manage the increased threats and pressures which can impact on the conservation sites. This will include the preparation and implementation of tourism development plans and zoning schemes embracing protected areas and their buffer zones.

62. By building staff capacity in visitors' management and interpretation, pioneering targeted tourism packages, and by maximizing local community participation, RSCN will minimize the threats to biodiversity whilst at the same time ensuring long-term sustainability of the protected areas.

Grazing pressures

63. Overuse and general mismanagement of rangelands in southern Jordan could potentially lead to further pressure to utilize rangelands resources within Dana reserve. To address this issue, the project aims to expand its area of operation to incorporate the buffer zone and proposed extension to the reserve across Wadi Araba.

64. By introducing participatory management practices and improving livestock management across a wider area, and by promoting alternative income-generating activities, it will be possible to minimize pressures on the reserve itself, whilst at the same time improving the living standards of the local Bedouin groups.

INSTITUTIONAL FRAMEWORK AND PROJECT IMPLEMENTATION

65. The local implementing agency will be the Royal Society for the Conservation of Nature (RSCN), a non-governmental organisation established in 1966 under the patronage of His Majesty King Hussein. RSCN has been responsible for implementing all three components of the Pilot Phase GEF project.

66. RSCN has, with Government approval and support, established five nature reserves since its inception, covering approximately 1% of the land area of Jordan. As a result of the Pilot Phase project, the capacity of the RSCN has been greatly increased in terms of its ability to implement integrated protected area and socio-economic development programmes.

LIST OF ANNEXES

ANNEX 1: INCREMENTAL COST ANALYSIS

ANNEX 2: GOVERNMENT REQUEST

ANNEX 3: TECHNICAL REVIEW

ANNEX 4: MAP

ANNEX 5: LIST OF AVAILABLE PUBLICATIONS FROM PILOT PHASE PROJECT

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