Enhancing Effectiveness of Marine Protected Areas through Networking and CASE STUDY 27 Implementation of the “Ecological Red-line” Policy Case Study 27 Enhancing Effectiveness of Marine Protected Areas through Networking and Implementation of the “Ecological Red-line” Policy

Zhang Zhaohui* First Institute of Oceanography, State Oceanic Administration , Peoples’ Republic of , 266061

for migratory birds and nursing grounds Key Message for various marine species. The city government implemented a comprehensive • The “ecological red-line” policy can ICM program and adopted a holistic be an effective tool for biodiversity and vision-oriented approach and a conservation in conjunction with working model for integrated planning, zoning permit fees and a “zoning pay- coordination, and management. back” scheme. These are innovative successfully hosted and implemented a financing options that can be used to natural nature reserve (NNR) and five support marine protected areas (MPA) special marine protected areas (SMPA) in management and operation. close cooperation with national agencies. It effectively utilized zoning permit fees from its functional zoning scheme to Abstract support and build up management capacity. This section is part of the book: The Dongying initiatives verified the Chua, T.-E., L.M. Chou, G. Jacinto, Dongying City is located in the Yellow S.A. Ross, and D. Bonga. (Editors). effectiveness of utilizing the “ecological red- 2018. Local Contributions to Global River estuary. The area is recognized as line” policy to support preservation of the Sustainable Agenda: Case Studies in ecologically significant, with nesting sites delta. Integrated Coastal Management in the East Asian Seas Region. Partnerships in Environmental Management for the Seas of East Asia (PEMSEA) and Coastal Management Center (CMC), Quezon City, Philippines. * Email: [email protected] 319 CASE STUDY 27

Background Approach and Methodology

Dongying is a coastal city located in the estuary Recognizing the ecological importance of of the Yellow River (Figure 1). The city hosts the Yellow River, the national government the second largest oil industry in PR China established the Yellow River Delta National and is also one of the cities in northern China Nature Reserve, on the northeast coast of the with a rapidly developing marine economy city (Figure 2). In addition, five national SMPA (Hou, 2011). The local government efforts were established between 2008 and 2009 (Figure in ensuring sustainable use of the coastal 3). SMPA is defined as “any special geographical and marine resources were greatly enhanced space identified for special marine economic with the implementation of a comprehensive development administered and managed ICM program. The setting up of an MPA through effective protection of the ecosystem and functional zoning was an integral part of and sustainable use of the living and non-living the ICM program under the leadership and resources therein using appropriate scientific coordination of the local government. This approaches” (SOA, 2005). In total, Dongying case study showcases the development and set up six national MPA, including one NNR, networking of the MPA and the application (i.e. the Yellow River Delta National Nature 2 of the national “ecological red-line” policy Reserve, 1,530 km ); and five national SMPA 2 within the broader framework of the local ICM including those for shellfish in Hekou (396 km ), 2 program. for benthic fish in Lijin (94 km ), Yellow River

Figure 1. Dongying City at the estuary of Yellow River.

B o h a i S e a

Dongying Port

Hekou Yellow River Delta Natural Nature Reserve

Y e l l o w R i v e r

Lijin Country Kenli District Dongying Airport B o h a i China University of Petroleum S e a Dongying City

Guangrao Country

320 Enhancing Effectiveness of Marine Protected Areas through Networking and CASE STUDY 27 Implementation of the “Ecological Red-line” Policy

Figure 2. The Yellow River Delta NNR.

Experimental zone Core zone Buffer zone

Figure 3. The five SMPA in Dongying City.

Dongying City

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Estuary Ecologic SMPA (926 km2), for mussel and restoration in the Yellow and Pearl River in Bay (210 km2), and for clam worm in Estuaries” (GEF, 2009). Guangrao (65 km2). The main differences between an NNR and an SMPA lie in their objectives, In the communiqué of the Third Plenary Session scope, standards, zoning schemes, protection and of the 18th Communist Party of China Central management tasks, approving government agency, Committee, a proposal was put forward to and environment requirements (Table 1). establish an “ecological red-line” as a policy for regulating human activities in areas of ecological Dongying City actively participated in a significance. This was supported by the Chinese Global Environment Facility (GEF) Project leadership, which directed the drawing up of on “Demonstration of Estuarine Biodiversity a “red line” for ecological protection and the Conservation, Restoration and Protected Area development of an economic compensation Networking in China” to strengthen local capacity system based on the user pay principle. This in managing MPA. The project’s specific objective policy focused on enhancing the management was “to mainstream the conservation of estuarine and protection of identified ecologically important biodiversity into economic development plans areas by controlling the use of coastal zones. In and to develop a series of best practices. The best 2012, SOA finalized and announced the Bohai practices were based on experiences derived Sea Marine Ecological Red-line Zoning Plan, from field activities focusing on the creation of which clearly identified zones for restricted and protected area networks and wetland conservation prohibited developments (Figure 4).

Table 1. Main differences between NNR and SMPA*.

Difference National Nature Reserve (NNR) Special Marine Protected Area (SMPA) Designation Strict restrictions on human uses (NRC, 2001) Conservation and appropriate multiple use (SOA, 1992) objectives Designation Focus primarily on original, valuable, and natural Focus primarily on sustainable development and multiple scope habitats and species uses of marine resources Designation Social and economic developments are not Socioeconomic, natural resources and ecological standards taken into consideration environment aspects are covered Zoning Core zone, buffer zone, and experimental zone No take zone, sustainable resource use zone, ecological schemes are included restoration zone and reserved zone are included. Protection and Main focus is on constraint enforcement and Cover many aspects in marine resource sustainable management closure management in terms of different zones development such as marine development plan, and tasks optimization of marine industrial structure Government 3 relevant materials for NNR establishment Relevant materials for SMPA establishment application agency for application are submitted to the State Council are submitted to the State Oceanic Administration (SOA) approval for final approval and declaration (Qui, et al., for final approval and declaration (Qui, et al., 2009) 2009) Environmental Should meet >Grade I, which is the strictest Depends on actual requirement of marine function requirements standard (SOA, 2012) zones, which means less restricted and more flexible than that of NNRs (SOA, 2012)

* Table modified from China’s SMPA policy: trade-off between economic development and marine conservation(Ma, et al., 2013).

322 Enhancing Effectiveness of Marine Protected Areas through Networking and CASE STUDY 27 Implementation of the “Ecological Red-line” Policy

Figure 4. Marine ecological red-line zoning plan of Dongying City.

Prohibited development zone Restricted development zone

for utilizing a “sea use pay-back” scheme. The Results five SMPA were able to secure a total of RMB 39.73 million (US$ 6.3 million) from 2011 to Formation of a local MPA network. The NNR 2012. This fund was used primarily for capacity and five SMPA were able to form a local MPA development and ecological restoration. The network around Dongying City. This network management capacity of the MPA significantly played an important role in regional biodiversity improved through the use of monitoring conservation and protection, particularly for cameras, law enforcement instruments, and a migratory birds and fish(Sun, et al., 2015; Zhai, geographic information system. The biomass of et al., 2015). Several scientific research projects protected targets increased through the control were also undertaken to establish the biological of human activities and the release of fingerlings linkage of MPA in the region to be more efficient of four species of fish. The water quality also and effective in conserving their biodiversity improved through artificial wetlands restoration values. in the Yellow River Estuary Ecologic SMPA, an important spawning ground for crab and Improvement of MPA management capacity. After shrimp in Bohai Sea. Through these efforts, the establishment of SMPA, each management the effectiveness of MPA improved over the office started to raise funds for undertaking years and the damaged habitats were finally improved management measures of the MPA. restored. With the experiences gained, the The offices developed project proposals and overall planning for NNR and SMPA was finally secured the approval of the central government completed and approved in 2014.

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Figure 5. The oriental white stork in the Yellow River Delta NNR.

Photo by Shouqiang WANG

Improvement of coastal environment. The Yellow Lessons Learned River Delta is one of the important habitats for migratory birds along the Asian and Pacific Capacity development is a continuous process migratory pathways (Fu and Zhang, 2010). From to cope with increasing management challenges. 1997, oriental white storks (Ciconia boyciana) Dongying faced many challenges in improving were found every year during the migratory the ecological functions of the Yellow River Delta seasons (Duan, et al., 2015; Figure 5). In 2003, a and the adjacent coastal areas. The increasing couple of these oriental white storks was found pressure for coastal and sea areas for economic nesting in the nature reserve, setting the first development demanded efficient and effective nesting record. In 2005, two nests were found. coastal governance to ensure wise and sustainable The number of nests increased year by year. In use of the limited coastal and marine resources. 2014, a new record of 50 nests was recorded. Towards this end, the government of Dongying In 2013, the China Wildlife Conservation maintained a strong coordinating role through Association (CWCA) awarded Dongying “the the Interagency Coordinating Committee, an home of the Oriental white stork in China”. institutional mechanism established under its ICM program. The coordinating mechanism provided the needed platform for closer consultation among concerned agencies for the

324 Enhancing Effectiveness of Marine Protected Areas through Networking and CASE STUDY 27 Implementation of the “Ecological Red-line” Policy

implementation of the MPA. This facilitated the management issues across boundaries. Although implementation of management measures across effective networking facilitated mutual learning, jurisdictional boundaries. Management capacity sharing of experiences and promoting MPA developed over time through on-the-ground management were essential. The involvement implementation. of the local government ensured management stability and sustainability. Innovative financial resources should be solicited to sustain the effective management of the MPA. Another implementation challenge was the financial investment needed to sustain References MPA and their network. Innovative financing mechanisms such as the collection of sea use fees Duan, Y.B., X.H. Tian, and J. Z. Ma. 2015. proved affective to generate financial resources. Foraging Habitat Use of the Oriental White Although the collected fees were paid to the Stork during its Breeding Season. Acta treasury, substantial allocations were provided Ecologica Sinica, 35(8):2628–2634. (In Chinese to meet local demands. As such, SMPA were with English abstract). able to sustain their operations. Through such measures, financial resources generated from the Fu, S.Q. and C.H. Zhang. 2010. The Analysis of site through the sea use permit fees were diverted Annual Dynamic and Pattern of Waterbird back to the local government and utilized for its in the Yellow River Delta. Forest environmental improvements. Science and Technology, 4:20–25. (In Chinese).

The “ecological red-line” policy facilitates GEF (Global Environment Facility). 2009. CBPF: biodiversity conservation and implementation Demonstration of Estuarine Biodiversity of the coastal zoning scheme. The “ecological Conservation, Restoration, and Protected red-line” was an arbitrary line drawn by the Area Networking. Available at https://www. government through close consultation with thegef.org/project/cbpf-demonstration- concerned experts to delineate areas which estuarine-biodiversity-conservation- restrict or prohibit economic activities. Such restoration-and-protected-area. [Accessed on an approach, though subject to criticism on 20 October 2016]. scientific objectivity, proved to be effective as a governance tool to regulate strong competition Hou, Z.Z. 2011. Evaluation of Coordination for limited coastal and marine areas for Degree Between Ecological Environment and development. The approach was implemented Economic Development of Dongying City. effectively in regulating farmland or agriculture China Population, Resources and Environment, land conversion and protecting ecologically 28(4):2107–2112. (In Chinese with English sensitive areas. abstract).

The Dongying experience underscored the role of Ma, C., X.C. Zhang, W.P. Chen, G. Zhang, H.H. the local government in the management of MPA Duan, M. Ju, H.Y. Li, and Z. Yang. 2013. in terms of interagency coordination, financing, China’s Special Marine Protected Area Policy: and policy implementation, to be effective in Trade-off between Economic Development addressing area-wide challenges arising from and Marine Conservation. Ocean and Coastal multiple use conflicts, competing budgets and Management, 76:1–11.

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NRC (National Research Council). 2001. SOA (State Oceanic Administration of China). Marine Protected Areas: Tools for Sustaining 2012. National Marine Functional Zoning Ocean Ecosystems. National Academy Press, Plan (2011–2020). China Ocean Press, Washington, DC, USA. Beijing, China. (In Chinese).

Qui, W., B. Wang, P.J.S. Jones, and J.C. Axmacher. Sun, X.P., Y.L. Zhang, and M.C. Cao. 2015. 2009. Challenges in Developing China’s Structure of Waterfowl Community in Marine Protected Area System. Marine Policy, Relation to Habitat in the Yellow River Delta 33:599–605. Nature Reserve in Autumn Migratory and Wintering Periods. Journal of Ecology and SOA (State Oceanic Administration of China). Rural Environment, 31(4):514–521. (In 1992. Management Scheme of Special Marine Chinese with English abstract). Protected Area. China Ocean Press, Beijing, China. (In Chinese). Zhai, L., B.D. Xu, Y.P Ji, and Y.P. Ren. 2015. Spatial Pattern of Fish Assemblage and the SOA (State Oceanic Administration of Relationship with Environmental Factors China). 2005. Interim Measures for the in Yellow River Estuary and its Adjacent Administration of Special Marine Protected Waters in Summer. Chinese Journal of Applied Area. China Ocean Press, Beijing, China. (In Ecology, 26(9):2952–2858. (In Chinese with Chinese). English abstract).

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