Ramsar Site Profile to Assess Infrastructure and Capacity Needs for Beung Kiat Ngong Wetlands, Pathoumphone District, Champassak Province, Lao PDR

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Ramsar Site Profile To Assess Infrastructure and Capacity Needs for Beung Kiat Ngong Wetlands, Pathoumphone District, Champassak Province, Lao PDR

International Union for Conservation of Nature

0 October 2011

The designation of geographical responsibility is accepted by Citation: IUCN (2011). Ramsar entities in this publication, and IUCN or its employees for any Site Profile: To Assess the presentation of the material, loss or damage arising from Infrastructure and Capacity do not imply the expression of reliance on t Needs for Beung Kiat Ngong any opinion whatsoever on the Wetlands, Pathoumphone District, part of IUCN or the Overseas This publication has been made Champassak Province, Lao PDR, Environmental Cooperation possible in part by the generous Gland, Switzerland: IUCN. 70pp. Centre (OECC), Japan and ANA support of OECC and ANA Sales Sales Co. Ltd concerning the Co. Ltd. Cover Photo: Beung Kiat Ngong legal status of any country, Wetland, IUCN Lao PDR territory, or area, or of its Published by: IUCN, Gland, authorities, or concerning the Switzerland, and Vientiane, Lao Layout by: Eliza Berry delimitation of its frontiers or PDR. boundaries. Produced by: IUCN Lao PDR Copyright: © 2011 International Country Office The views expressed in this Union for Conservation of Nature publication do not necessarily and Natural Resources Funded by: Overseas reflect those of IUCN, OECC, or Environmental Cooperation ANA Sales Co. Ltd. Reproduction of this publication Centre, Japan and ANA Sales for educational or other non- Co., Ltd. This report is a summary of commercial purposes is previous research conducting by authorized without written Available from: IUCN and others (referenced permission from the copyright IUCN throughout document) as well as holder provided the source is fully Lao PDR Country Office new research and meetings acknowledged. PO Box 4340 conducted by IUCN in September 082/01 Fa Ngum Rd ad October 2011 with support Reproduction of this publication Ban Wat Chan, from OECC and ANA Sales Co. for resale or other commercial Vientiane, Lao PDR Ltd. purposes is prohibited without Tel: +856-21-216401 prior written permission of the Fax: +856-21-216127 No warranty as to the accuracy copyright holder. Web: www.iucn.org/lao or completeness of this information is given and no 1

Contents Abbreviations and Acronym List ……………………………………… 2 Executive Summary………………………………………………………. 4 Introduction………………………………………………………………… 6 1. Background Information ………………………………………………… 8

2. Legal Instruments and Non-regulatory Mechanisms for Managing Ramsar Sites………………………………………………………………. 12

3. Ministries, Agencies, and Other Governmental Institutions Managing Ramsar Sites …………………………………….…………… 24

4. Relevant Activities of Private Entities, Public Interest Groups, Professional Bodies, and the Academic/Research Sector………… 30

5. Existing information about the site ……………………………………. 34

6. Environment and natural resources …………………………………… 36

7. Technical Infrastructure …………………………………………………. 44

8. Information Management, Access, and Use …………………………. 45

9. Conservation Preparedness, Response, and Follow-up …………... 46

10. Awareness/Understanding of Officials and the Public; and Training and Education of Target Groups and Professionals (TOT) 50

11. Linkages to international and national processes …………………… 51

12. Resources Needed for Ramsar Site Management …………………… 52

13. Conclusions and Recommendations …………………………………… 53

References …………………………………….…………………………………. 56

Annexes …………………………………….…………………………………….. 59

Acronyms and Abbreviations ADB Asian Development Bank ANA ANA *(??) Sales Co., Ltd. ASEAN Association of South East Asian Nations BDP Basin Development Plan CBD Convention on Biological Diversity CCAI Climate Change and Adaptation Initiative (MRC) CDM Clean Development Mechanism CITES Convention on the International Trade of Endangered Species of Fauna and Flora DAFO District Agriculture and Forestry Office DFRC Division of Forest Resources Conservation DLMO District Land Management Office DNA Designated National Authority DoE Department of Electricity DoF Department of Forestry DoFI Department of Forestry Inspection DoPI Department of Planning and Investment DWREO District Water Resources and Environment Office ECC Environmental Compliance Certificate EIA Environmental Impact Assessment ESIA Environmental and Social Impact Assessment GAPE Global Association for People and the Environment GMS Greater Mekong Subregion GoL Government of Lao PDR Ha Hectare ICEM International Centre for Environmental Management IFAD International Fund for Agricultural Development IUCN International Union for Conservation of Nature IWRM Integrated water resource management Km Kilometer LARReC Lao Aquatic Resources Research Center Lao PDR Lao People’s Democratic Republic LFA Land and forest allocation LNMC Lao National Mekong Committee LNTA Lao National Tourism Administration MAF Ministry of Agriculture and Forestry MEA Multilateral Environmental Agreement MEM Ministry of Energy and Mines MEPA Mining Exploration and Production Agreement MIC Ministry of Information and Culture MoNRE Ministry of Natural Resources and Environment MOST Ministry of Science and Technology MoU Memorandum of Understanding MPI Ministry of Planning and Investment MRC Mekong River Commission NAFRI National Agriculture and Forestry Research Institute NAST National Authority on Science and Technology NAPA National Adaptation Plan of Action NBSAP National Biodiversity Strategy and Action Plan NCCO National Climate Change Office NCSA UNDP’s Nation Capacity Needs-Self Assessment project NGO Non-governmental organisation NLMA National Land Management Authority 2

NPA National Protected Area NSEDP National Social and Economic Development Plan NTFPs Non-timber forest products OECC Overseas Environmental Cooperation Centre (Japan) PAFO Provincial Agriculture & Forestry Office PFA Production Forest Area PWREO Provincial Water Resources and Environment Office Ramsar Convention Ramsar Convention on Wetlands of International Significance RBC River Basin Committee RIS Ramsar Information Sheet STEA Science, Technology and Environment Agency SUFORD Sustainable Forestry for Rural Development UNDP United Nations Development Program UNEP United Nations Environment Program UNESCO United Nations Education, Scientific and Cultural Organisation UXO Unexploded ordnance WCS Wildlife Conservation Society WREA Water Resources and Environment Administration WWF Worldwide Fund for Nature

Executive Summary

Beung Kiat Ngong Wetlands complex in Champassak Province is one of two Ramsar sites in Lao PDR. The wetlands complex has important value for conservation because, among other reasons: it contains diverse wetland types (swamps, lakes, marshes, and peat land): has high biodiversity value; supports threatened species (e.g. Fishing Cat, leopard cat, sambar, and Malayan snail-eating turtle); and supports the livelihoods of approximately 11,500 people.

Since the Beung Kiat Ngong Wetlands was formally recognized as a Ramsar site in September 2010, key steps have been taken to implement the convention. National, Champassak Province and site level committees have been set up to manage the site. In addition, site boundaries have been demarcated, a regulation has been developed and approved, and work on a management plan has started. These activities have been funded by donor support as the Government of Lao PDR’s primary resource contribution to Ramsar implementation is currently in the form of paying salaries of government of officials. Government funds to support activities are currently very limited.

As funds and resources are identified for further support to Ramsar implementation at Beung Kiat Ngong, the following activities should be prioritized: finalization of the management plan, implementation of the management plan, and designation of buffer zones. Implementation of the management plan will include educating local people about sustainable use of natural resources in the site and setting up a comprehensive patrolling system to ensure that the site regulation and management plan are followed. Designation of a buffer zone is a high priority because if there are no restrictions on natural resource use, agricultural chemical use, etc. in the area immediately outside of the site boundaries, efforts to conserve the Ramsar site will be fruitless.

Secondary priorities for site management include:

Assign government staff to be based at the wetlands and work specifically on wetlands management and patrolling. Awareness raising activities on the importance of wetlands conservation. Set up a Ramsar site office. Post sign boards around the area with information about wetlands conservation and the site regulation. Organize trainings and awareness raising activities for local people and local government on: need for a buffer zone; sustainable resource use and environmental flows; site regulation; organic/minimal chemical use agriculture; environmentally and socially responsible tourism (targeted at tourism operators). Conduct the following research on the wetlands: extensive biodiversity surveying; impacts of tourism and hydropower development; hydrology and soil types. Implement projects focused on exploring the intersection between conservation measures and flood/drought control

Pilot aquatic plant restoration Continued work on NTFPs, sustainable tourism, community-managed fisheries, and environmental education.

Through prioritizing site management needs in this way, this profile seeks to ensure that future work at the site is carried out in a strategic and coordinated manner.

Introduction

The Beung Kiat Ngong Wetlands complex in Champassak Province is one of two wetlands designated as Ramsar sites upon Lao PDR’s accession to the Convention on Wetlands (Ramsar Convention) in 2010. Initial steps have already been taken to set up the instructional structure for site governance—a Ramsar committee for the site is in place, boundaries have been demarcated, a regulation has been approved and work on a management plan for the site has started. However, much more work will be required to implement conservation activities on the ground and to put into place a long term conservation plan for the site. A key next step for Ramsar implementation will be improvement and expansion of the current draft management plan so that it lays out both urgent conservation activities and a long term vision for the site.

However, before work on Management Plan finalization and then implementation can progress, a report or “profile” is needed to explain what is already known about the site and identify key information gaps and conservation priorities. This profile, funded by the Overseas Environmental Cooperation Centre (OECC), Japan with support from ANA sales Co. Ltd. and written by IUCN Lao PDR seeks to:

• act as an official reference document, providing a clear picture of the legal, institutional, administrative, and technical structure for managing Beung Kiat Ngong Ramsar Site;

• assist in the identification of structural strengths, weaknesses, and gaps, as well as priority needs for actions and external technical assistance; and could provide a baseline description of the site, against which progress towards improving livelihoods and services of the ecosystem can be judged.

• identify gaps in the current draft management plan

• identify conservation measures that can be taken while the Management Plan is still being drafted and prioritize first actions to be taken once the Management Plan is finalized and officially approved.

As there are many conservation and management needs for the site, this profile will serve the important purpose of ranking these needs so that work can proceed in a strategic and coordinated manner.

IUCN Lao PDR designed this profile to reflect Ramsar Convention’s 2003 “Guidelines for management planning for Ramsar sites and other wetlands” (Ramsar, 2003) and compiled information obtained during past surveys and projects within this site. Much of the information is this profile comes from the “Baseline Report: Beung Kiat Ngong Wetlands” (IUCN, 2011a) that IUCN Lao PDR finalized in June 2011 under the Mekong Water Dialogues project and the Information Sheet on Ramsar Wetlands (RIS) that the Department of Environment, Water Resources and Environment Administration (WREA) completed for Beung Kiat Ngong in January 2011 (WREA, 2011). The “Institutional and Policy Analysis: Governance of Wetlands and Climate Change Adaptation in Lao PDR” (IUCN, 2011b) 1 draft report written by IUCN under the Lao component of the “Climate change and vulnerability assessment of wetlands in the Lower Mekong Basin for

adaptation planning” project is also frequently referenced. Much of the information in the reports listed above and contained in this profile was gathered from project reports from key organizations working in the wetlands and surrounding areas over the past decade or so, as well as from documents prepared for the site’s nomination when Lao PDR joined the Ramsar Convention on Wetlands of International Importance in 2010. Reports besides those listed above are specifically referenced.

Updated information about the site and updated stakeholder analysis of site management needs were obtained through a meeting organized at Provincial Water Resources and Environment Office (WREO) by IUCN Lao PDR on 30th September, 2011 in Pakse City, Champassak Province.

1. Background Information

The Beung Kiat Ngong Wetlands complex is made up of a number of important wetland types, including swamps, lakes, peatlands and marshes. The edge of the wetland is forested, and is surrounded by large trees, including species typically found in the south and east of Lao PDR. The forest is rich due to the quality soil and abundance of water, and seasonal and perennial flooded grasses are found here. The Beung Kiat Ngong Wetlands is one of the few places in Lao PDR where peatland areas can be found.

The wetlands are shaped somewhat like a bat with outstretched wings: the perennial- peatland wetlands are found in one wing, the northwestern part of Beung Kiat Ngong, which includes high quality peatland accounting for about 400 hectares (ha); the seasonal semi-peatland wetlands with a low quality of peatland are found in the other wing, the southeastern part of the site, and cover about 1000 ha (see Map 1 below).

Map 1: Beung Kiat Ngong Wetlands

Northwestern perennial peatlands

Southeastern seasonal/semi‐peatlands

Source: WREA, 2011

Detailed studies on biodiversity have not yet been undertaken in the Beung Kiat Ngong Wetlands; although exact numbers of species are not always known, the existing data shows that it hosts an important array of aquatic and terrestrial biodiversity. During wet season the wetlands provide a passage for a variety of fishes to move upstream along these rivers and streams, as well as providing spawning grounds. The wetlands also form an especially important habitat for fish during the low water dry season. Forty-three

fish species have been reported in wet season, while during the dry season only about 20 fish species remain in the area (IUCN, 2009a).

The Beung Kiat Ngong Wetlands provide small and medium nesting sites for water birds, as well as a source of food, such as plants, insects, fish and other small animals, for birds, wild and domestic animals, and humans. In 1996 a survey of the wetlands found 33 wetland-associated bird species (Claridge, 1996). In 2009, surveys conducted in six main villages around the wetlands showed similar number of bird species including: Cattle egrets (Bubulcus ibis), Immediate egret (Mesophoyx intermedia), Lesser tree duck (Dendrocygna javanica), Painted snipe (Rostratula benghalensis) and Chinese pond heron (Ardeola bacchus) (IUCN, 2009a). More detailed bird surveys would undoubtedly reveal a much larger number of wetland-associated bird species.

The wetlands also support a human population of around 11,500 people from eight villages from within the site boundaries and another five surrounding villages. These villages are primarily reliant on subsistence agriculture, wild-capture fisheries, wild vegetables and non-timber forest products (NTFPs) for their livelihoods, food and income. Some income is also earned from tourism businesses, particularly in Ban Kiat Ngong. Paddy fields are found around the edge of the wetlands, especially in the seasonal wetlands in the east of the site. In addition, about 4,300 cattle and water buffalo and 33 elephants are living in the wetland area (IUCN, 2008b; ElefantAsia, 2010). The economic value of all agricultural, fishery and NTFP products coming from the Beung Kiat Ngong Wetlands is estimated to be about USD 850,000 per year (IUCN, 2009b).

The Beung Kiat Ngong wetlands cover 2,360 hectares and are located in Pathoumphone District, Champassak Province in the southern Lao PDR, approximately 56 km south of the provincial capital, Pakse. The elevation of the site is 120 to 200 meters above sea level. The southern parts of the wetlands, as well as most of the village of Ban Kiat Ngong, are located within the Xe Pian National Protected Area (NPA) (Duckworth, 2008). At the broadest regional scale, the Beung Kiat Ngong Wetlands are included in the Indo- Burma Biodiversity Hotspot or the Central Indochina area (tropical lowland plain) (Conservation International, 2006). Map 2 shows the wetlands’ location between the two NPAs.

Map 2: Location of Beung Kiat Ngong Wetlands in relation to NPAs

Beung Kiat Ngong Wetlands

The northern boundary (14°47’06’’- 106°02’10’’ to 14°46’ 18’’- 106°05’12’’) is along Route 18A (the road connecting Ban Thangbeng at Km 48 of Pathoumphone District, Champassak Province, to Sanamxay District of Attapeu Province). The boundary follows from Ban Topsok to the junction with the road to Ban Phapho. The boundary curves along this access road running through Ban Kelae Noi then connects to Ban Phapho at the eastern boundary. The southern boundary is between 14°43’02’’/106°04’37’’ and 14°42’19’’/106°08’26’’ and runs along the forest of Xe Pian NPA from Ban Phapho to Ban Kiat Ngong, and the western boundary is from Bam Kiat Ngong to approximately 500 m before Ban Topsok (14°46’16’’/106°02’16’’). Map 3 below shows the wetlands and main villages.

Key Coordinates (from WREA, 2011):

Most northerly point: 14°47’29’’ N, 106°02’21’’ E (Ban Topsok, Route 18 A)

Most southerly point: 14°42’01’’ N, 106°08’30’’ E (Phalaybok, marginal forest of Xe Pian)

Most easterly point: 14°43’53’’ N, 106°08’42’’ E (Chong Houay)

Most westerly point: 14°46’16’’ N, 106°02’16’’ E (Ban Kiat Ngong)

Map 3: Beung Kiat Ngong wetlands and main villages

Source: IUCN LLS Project records

2. Legal Instruments and Non-regulatory Mechanisms for Managing Ramsar Sites

This section will describe the key policy and institutional instruments (including agreements, policies, strategies, laws and regulations) governing wetlands in Lao PDR at the international, national and local levels. This is not intended to be an exhaustive listing of all relevant instruments and organizations, but a review of the most influential in terms of wetland management.

2.1 International

The Government of Lao PDR (GoL) is party to a number of international agreements and processes that have direct and indirect bearing on the management of wetlands. Described below are key relevant agreements and processes in three categories: Multilateral Environmental Agreements (MEAs); international organizations; and targeted international agreements. Lao PDR is now a party to most MEAs, including the Ramsar Convention on Wetlands of International Significance, which it acceded to in September 2010. The major MEAs relevant to wetlands and climate change in the country are described below: Convention on Biological Diversity (CBD): Lao PDR acceded to the CBD in 1996. The Convention has three main objectives: the conservation of biological diversity; the sustainable use of components of biological diversity; and the fair and equitable sharing of the benefits arising out of the utilisation of genetic resources. Lao PDR’s accession commits it to, among other points: the development of a national biodiversity strategy; and the integration of biodiversity protection and sustainable use into other polices and programmes (CBD, 1992). In 2009, the Department of Forestry of the Ministry of Agriculture and Forestry (MAF) was made CBD focal point for Lao PDR. The country’s National Biodiversity Strategy and Action Plan (NBSAP) was completed in 2004, and is discussed in greater detail below. Lao PDR’s 4th National Report to the CBD was completed in 2010, setting out status of biodiversity in the country and actions taken so far for its protection, including for wetland ecosystems. Although implementation of the CBD in Lao PDR has been uneven and insufficient, the NBSAP remains the core guiding document for reviewing the status of biodiversity in the country and for actions to conserve it. The Ramsar Convention on Wetlands of International Significance: Signed in Ramsar, Iran, in 1971, this is an intergovernmental treaty which provides the framework for national action and international cooperation for the conservation and wise use of wetlands and their resources. There are presently 160 Contracting Parties, with 1951 wetland sites, totaling 190 million hectares, designated for inclusion in the Ramsar List of Wetlands of International Importance (Ramsar Secretariat, “About Ramsar”). Ramsar’s mission is “the conservation and wise use of all wetlands through local, regional and national actions and international cooperation, as a contribution towards achieving sustainable development throughout the world” (Ramsar Secretariat, “Ramsar and its mission”). Lao PDR joined the Ramsar Convention in September 2010, nominating two wetlands of significance: the Beung Kiat Ngong Wetland in Champassak Province; and the Xe Champhone Wetland in Savannakhet Province. The government’s Ramsar focal point is located in the Water Resources and Environment Administration (WREA), and is expected to move to the new Ministry of Natural Resources and Environment (MoNRE) shortly. Since its accession, the country has 12

established national and provincial level committees to manage Ramsar implementation. Lao PDR’s accession to Ramsar signals an important step forward in recognising the value of wetland ecosystems. The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES): CITES seeks to prevent over-exploitation and extinction of wild species through the regulation of the harvesting and trading of the products derived from them. Its aim is to ensure that international trade in wild animals and plants does not threaten their survival (CITES, “What is CITES?”). This aim directs convention implementation toward both the regulation of unsustainable and illegal trade as well as promotion of sustainable trade mechanisms. Lao PDR became a party to CITES in 2004, and Department of Forestry (DoF) under MAF was subsequently designated the CITES Management Authority and the Scientific Research Institute under the National Authority on Science and Technology (NAST) was designated the CITES Scientific Authority (now moving into MOST). The Management Authority is mandated to control all permitting procedures and procedural feedback; the Scientific Authority advises the management authority on the effects of trade on the status of the species. Implementation of CITES in Lao PDR has been challenging: there remains a strong need for coordinating and training the multiple stakeholder departments and agencies; and for improved law enforcement. Lao PDR is substantially involved in several international organizations and associated processes and agreements which influence the governance of wetlands in the country. These include: The Mekong River Commission (MRC): The Mekong Committee was originally established in 1957 as the Committee for Coordination of Investigations of the Lower Mekong Basin. In 1995, Cambodia, Lao PDR, Thailand and Vietnam signed the “Agreement on the Cooperation for the Sustainable Development of the Mekong River Basin”, forming the current Mekong River Commission (MRC, “About MRC”). The 1995 Agreement set a new mandate for the MRC "to cooperate in all fields of sustainable development, utilisation, management and conservation of the water and related resources of the Mekong River Basin". The MRC supports joint planning process for the basin, and its programmes cover fisheries management, navigation, irrigated agriculture, watershed management, environment monitoring, flood management and hydropower options (MRC Secretariat). The MRC is also increasingly involved in wetland activities and climate change, such as through its project “The Climate Change Adaptation Initiative” (CCAI). The 1995 Agreement along with several strategies and plans play important roles in the management of water resources in the Basin: o “Agreement on the Cooperation for the Sustainable Development of the Mekong River Basin” (1995): sets out a framework for cooperation for sustainable development and management of the Mekong River, covering “all fields of sustainable development, utilization, management and conservation of the water and related resources of the Mekong River Basin including, but not limited to irrigation, hydro-power, navigation, flood control, fisheries, timber floating, recreation and tourism”. The agreement emphasizes joint, basin-wide planning and programs, including calling for a “basin development plan”. Several articles also address environmental issues, such as Article 3, which asks Parties “[t]o protect the environment, 13

natural resources, aquatic life and conditions, and ecological balance of the Mekong River Basin from pollution or other harmful effects resulting from any development plans and uses of water and related resources in the Basin.” Article 6 deals with maintenance of flows in the Basin, including the maintenance of the natural reverse flow of the Tonle Sap during the wet season. The agreement also sets out requirements for parties to make “every effort to avoid, minimize and mitigate harmful effects” to the environment, cease any such activities, and notes responsibilities for damages to river by the parties (MRC, 1995). The agreement is also complemented by several important documents, such as the “Procedures for Notification, Prior Consultation and Agreement”, approved in 2003. o The IWRM-based Basin Development Strategy: this is a recent product, approved by the MRC Council in January 2011. It aims to “promote regional cooperation for the sustainable development of water resources and help to address climate change impacts and protect ecosystems and livelihoods”. The context of the Strategy is described as the changes in the Mekong Basin, driven by development and growing demands on the river, along with the challenges of climate change. The Strategy defines a series of strategic priorities for basin development and basin management, including: maintaining flows; irrigated agriculture for food security and poverty alleviation; enhancing the sustainability of hydropower development; improving knowledge to better understand and mitigate risks from development; preparation and implementation of a Climate Change Adaptation Strategy; development of management strategies for key sectors, such as fisheries and wetlands; and building up water resources management capacity. The implementation of the Strategy and development of the Basin Action Plan is considered a core priority for the 2011-2015 Basin Development Programme (BDP) (MRC, 2011). A review of the BDP and the Strategy carried out in 2010 notes that the MRC, through the BDP and strategy development, has been shifting toward development and poverty reduction (based on water resources), and away from IWRM and environmental management issues. Analysis of hydropower development and other water uses has been dominant. However, the reviewers also point to a lack of project-specific economic, social or environmental analyses, as well as mitigation measures, which would be essential for achieving sustainable development (Blackmore et.al., 2010). The Asian Development Bank (ADB): According to the ADB website, it is the largest multilateral financier for Lao PDR, and is thus an influential actor in the country. Lao PDR joined ADB at its founding in 1966 and, as of the end of December 2010, has received approved loans and grants totaling $1.60 billion, with technical assistance projects amounting to $133.1 million (ADB, “Overview: Lao PDR”). The ADB’s Greater Mekong Sub-region (GMS) program and plans have also proven influential, as Lao PDR embraces the idea of regional integration as a path to economic development. Through the ADB, and with the Bank’s support, the countries of the GMS have worked on a program of economic cooperation (the GMS Program) since 1992. It aims to promote development through closer economic linkages by enhancing connectivity in transport, power and telecommunications, improved competitiveness through better trade, logistics, regional power trade, ICTs, tourism cooperation, etc, and promotion of the idea of 14

a GMS community. The GMS Strategic Framework runs over ten years, 2002-2012, with a new framework currently under development. According to the ADB website, it is expected that the GMS Program will continue its physical infrastructure investments, but will increasingly focus on softer aspects of subregional cooperation- including human resources, trade and transport facilitation, shared environmental resources, and disease control (ADB, “GMS Strategy”). Although not directly related to wetlands, the GMS cooperation and its priorities can be influential, including: the Biodiversity Corridors Initiative, which covers some important wetland sites; the development of economic corridors, which may increase pressure on wetland areas; and the promotion of regional power trade, which is strongly linked to hydropower development in the case of Lao PDR. Under the ADB, the GMS countries adopted an “economic corridor approach” to development in 1998, seeking to improve and enhance investments in transport, energy, and telecommunications in the subregion. The program is supported regionally by the ADB. The approach is complemented by certain agreements on cross-border transport and trade facilitation. Economic Corridors Strategies and Action Plans have been developed for the north-south, east-west and southern corridors, although only a 2009 draft for the north-south corridor is available. Key features include: o Recognition that it covers some of the most ecologically sensitive and least developed areas in region o Identifies opportunities for investments in context of corridor development, such as agro-industry, construction materials, cottage industries, etc. o Lists social and environmental concerns to address; discussion of biodiversity loss and environmental degradation risks are general; some mitigation measures listed, including SEA. o Based on linking and improving national transport/infrastructure. The Emerald Triangle Agreement: This agreement to promote tourism in the Emerald Triangle area (border area of Lao PDR, Thailand and Cambodia) was signed by the three countries in 2009. It was prepared and endorsed by local authorities of all three countries and then officially approved by the ministerial level of all three countries. Under the agreement, they will work together to promote cooperation between state and private organisations in tourism development. An information center will also be set up in Champassak Province to provide tourism- related information from the countries, especially related to the Emerald Triangle area. The agreement is designed to complement GMS and ASEAN cooperation initiatives. The success of the initiative is not clear, especially given the ongoing Thai-Cambodian conflict over Preah Vihear temple, which lies in this area. The MoU will be discussed at a ministerial level three country meeting in Attapeu Province, Lao PDR in December 2011.

2.2 National

Lao PDR’s national level framework for the governance of natural resources, including wetlands, is complicated. The country has enacted a comprehensive set of environmental and natural resources related laws and regulations, and a variety of 15

government agencies are involved in managing wetlands. In addition, reforms set in motion in 2011 will significantly change the institutional set-up, with the establishment of the new Ministry for Natural Resources and the Environment (MoNRE). Given the large number of policies, laws, regulations, plans and institutions, only the most relevant will be discussed here. These are divided into the categories of strategic planning, laws and regulations, government structures, and multi-sector cooperation. 2.2.1 Strategic planning Recent years have seen the development of numerous strategies, policies and action plans relevant to this study. Strategic planning documents with relatively important influence over natural resources and climate change are: The 7th National Social and Economic Development Plan (2011-2015): The five- year NSEDP seeks to define future directions for the development of Lao PDR. The main aspects related to the water sector in the “specific directions” of the 7th NSEDP are under: agriculture and forestry (e.g. irrigation); industry and commerce (e.g. expansion of agricultural production); energy and mining (which is focused on hydropower); and environmental protection and natural resource management, which includes the target of protecting environmental quality in 25 towns with development projects. Although it does not provide detailed planning, the NSEDP provides the basis for sectoral and provincial plans, and sets targets that have significant influence over the economic and developmental policies and projects promoted in that period. The NSEDP does provide some framework for environmental protection/sustainability efforts; its stated aim is to “Ensure the sustainability of development by emphasizing economic development with, cultural and social progress, preserving natural resources and protecting the environment” (MPI, 2010). National Forestry Strategy to 2020 (FS2020). Prepared in 2005, FS2020 analyzes the status of the Lao forest sector and provides targets and recommendations for its development. Importantly, it sets out the categories of forests: production forests; conservation forests; protection forests; regeneration forests; and degraded forests. Protection forests can be for the protection of a watershed. Targets for the sector include: stabilization of shifting cultivation by 2005 and its eradication by 2010; improvement of forest cover and quality, with the regeneration of up to 6 million ha of forest and the planting of up to 500,000 ha of tree plantations, with a target of 500,000 ha of planted forest by 2020; and a sustainable flow of forest products for domestic consumption and to generate household income. FS2020 also notes the establishment of NPAs in order to protect natural areas and species of fauna and flora to ensure the balance of nature, and for protecting watersheds (Prime Minister’s Office, 2005). National Biodiversity Strategy to 2020 & Action Plan to 2010 (NBSAP): The GoL acceded to the CBD in 1996, which included committing itself to developing a national biodiversity strategy. Lao PDR’s NBSAP was approved in 2004 and aims to protect biodiversity resources and to ensure their sustainable use. The NBSAP covers terrestrial and aquatic biodiversity and concentrates on the conservation of indigenous biodiversity. Key objectives include: o identify important biodiversity components and improve knowledge base; o manage biodiversity on a regional basis;

o increase public awareness; o adjust legislation and regulations; and, o harmonise MEAs. The NBSAP notes that implementation requires cooperation and coordination from all levels of government authorities and society. Water resources are one of many issues addressed in NBSAP document. It states that “[w]ater resources such as ground water, lakes, rivers, streams and wetlands should remain clean and abundant, and where necessary, be improved, through their protection, conservation and sustainable use”. In addition, objective 11 under is to manage water resources for socioeconomic development, including the sub-objective of protecting and maintaining wetlands. The NBSAP was accompanied by the Decree On Agreement and Endorsement of the National Biodiversity Strategy to 2020 and Action Plan to 2010, and is currently under revision. National Water Resources Strategy and Action Plan [draft]; currently at Prime Minister’s Office]. The drafting process for this strategy has been receiving World Bank support. According to WREA, the main priority will be the people of Lao PDR, their water needs, and governance of basic subsistence water use. Developed in 2010, it provides the Government’s direction and decision making for water resources management, summarized in nine major policy statements which address the major issues which face the water sector. It notes that increasing scarcity/competition is a driving need for development of the policy and that water is a valuable national asset, with economic as well as social and environmental values. Further, decision-making should be based on consultation and local involvement. The most relevant of the nine policy statements are: o the development of IWRM plans for priority (sub) basins; o allocation of water resources is to prioritise human and ecosystem needs where scarcity exists; o the need for water quality protection; and, o efforts to reduce the impacts of flood, drought and climate change. The policy also forms the basis for drafting a five year strategy & action plan (2011- 2015). In the action plan, 22 activities are identified under the nine policy statement areas. There is no specific mention of wetlands in either document, although wetlands can be tied to other water issues, such as groundwater, water quality, and so on. The impact of prioritization of human needs in water allocation requires further discussion. 2.2.2 Regulatory framework As mentioned above, Lao PDR has a comprehensive regulatory framework of laws, regulations and decrees to govern natural resources, including wetlands. There are now few gaps in the country’s regulatory framework, particularly in the environmental sector. The key regulations related to wetlands are discussed below. Law on Water and Water Resources (1996): This law is currently under revision. The laws states that the GoL is responsible for the prevention of adverse impacts from water and all acts that cause the depletion of water; water resources must be managed and used according to centralized, comprehensive and integrated 17

management principles and according to the ‘allocation plan’ which gives individuals and organizations the right to use water. The law includes several key points about regulating use and environmental impacts: o Medium and large-scale use of water requires approval, registration and/or a contract. Large-scale use must be accompanied by a feasibility study, an ESIA and detailed measures to deal with the impact. o The Law regulates ‘Water Source Development activities’, stating that these activities require approval from the relevant authorized agency and must comply with ‘socio–economic and environmental development plans, the master plan, periodic development plans of each sector, and the construction plan for each approved project’. These must also ensure the preservation of water and prevent adverse impacts on the environment. Various agencies are listed as having responsibility to manage pollution, erosion, flooding. There is no provision for civil society participation in policy. According to a review carried out by the UNDP, the Law allows water sources to be categorised as “reserved water sources" for care of animals, vegetation and the environment, which could potentially be used to designate wetlands of significance (UNDP, 2011). Law on Environmental Protection (1999): This law sets out the basic principles of environmental protection at Article 5, stating that all persons and organizations residing in the Lao PDR have an obligation to protect the environment. Water is recognized as an important substance of the environment. The Law states that national socio-economic development plans must also come up with environmental protection plans. It empowers the Science, Technology and Environment Agency (STEA) (now WREA and soon MoNRE) to oversee environmental management and monitoring. It states at Article 8(3) that development projects and operations that have or will have the potential to affect the environment shall submit an Environmental Impact Assessment (EIA) report in accordance with the regulations of WREA. WREA is responsible for environmental management and monitoring, and the issuance of an Environmental Compliance Certificate (ECC). Law on Land (2003): This Law is relevant to environmental and wetland management, as well as the management of the country’s land resources. The Land Management Authorities are responsible for, among other things, coordinating with concerned sectors and local administrations to plan the use of land, to protect and develop land, and to define land areas for certain uses; they can allocate land use rights to lease or grant concessions, and withdraw the right to land use. Various articles allow for the lease or concession of land from the State. In terms of environmental protection, Article 6 obliges individuals and organizations to ‘protect the land to ensure that it is in a good condition’. It also states that land use shall not have a negative impact in the natural or social environment. Regarding wetlands, the Land Law is considered most important piece of legislation as it recognizes “water area land/wetlands" as a classification in terms of land-use management. The law also identifies MAF as the institution charged with the responsibility for water area/wetland management (UNDP, 2011). Law on Forestry (2007): This Law is currently under revision. It defines distinct uses of forest or forest products (e.g. tourism, recreational sites, logging) and specifies which ‘Forest Category’ each ‘use’ may be conducted within. Those wishing to 18

engage in ‘business operations in the forest’ must seek approval from the Forest and Forest Land Management Authority. Utilizing forests for business purposes ‘shall avoid causing any negative impacts to forest and forest production areas, nature, the environment and society’. Degraded forestland and barren forestland can be used for other activities; the level of degradation is vaguely defined at Article 3 as forestland areas where forest has been heavily and continually damaged and degraded, causing a loss in the balance in organic matter, which means that the forest may not be able to regenerate naturally. The Law also defines buffer zones as the forest and forestlands from 100m to 500m in width surrounding protected areas. The Law recognizes the importance of forestry to water resources protection. With responsibility for production forests, MAF may continue to play an important role in water resources governance (especially as it is also responsible for fisheries). Law on Cultural, Historical and Natural Heritage (2005): this Law addresses a number of environmental protection issues. It states that socio-economic development shall proceed side by side with protection and conservation of the national heritage. It defines cultural, historical and natural heritage, noting that natural heritage may have scenic or ecological value. The Law also sets out zoning and measures for protection of heritage sites. Areas of national natural heritage shall be registered, especially those containing heritage of high value, such as biodiversity areas, conservation forests, wetlands, caves, and so on . Although it states that sources of biodiversity which have national natural heritage, e.g. wetlands, ponds and marshes, shall be administered by inspection and registration, as proposed by the concerned sectors, it does not provide much detail or guidance on how this should be implemented. It also sets out regulations for protection of national heritage, such as the need to obtain prior approval for development in any national natural heritage area from the Ministry of Information and Culture (MIC) and other concerned sectors (the State administers national heritage through the MIC). Fisheries Law (2010): The GoL recently developed this Fisheries Law, specifically for the fisheries and aquaculture sector. The Food and Agriculture Organization (FAO) and other organizations carried out a “Legislative Review of Fisheries and Aquaculture in the Lao PDR” to provide guidance to this process. The review noted that (in 2008) unlike in most countries, Lao PDR had not enacted a separate fisheries and aquaculture legislation and that the sector was regulated under the Forestry Law. Fisheries-related provisions were also to be found in the Agriculture Law and the Penal Law (UNDP, 2011). The new law is considered “enabling legislation” (rather than “prescriptive legislation”), to allow for flexibility and adaptive management and ensure that measures adopted at the local level are commensurate with local realities (UNDP, 2011). The Fisheries Law takes fisheries to mean “those activities including aquaculture, conservation, protection, development, fishing and the use of aquatic fauna in various ways in a body of water”. It defines bodies of water for fisheries as permanent or seasonal, natural or man-made, inclusive of rice fields and rivers. The Law charges MAF with the management of fisheries and coordination with other agencies, and notes sustainability as one of the principles of fisheries management. The Law allows for the establishment of fish conservation zones, which are already widely used in Lao PDR, and classifies three types of fish: protected; managed; and common. Certain fishing activities and gears are prohibited, such as drag nets and poison. As well as central, provincial and district management, it provides for the establishment and operation of Fisheries Management Committees for Bodies of Water and fishing 19

associations/cooperatives. Fisheries Management Committees are to include the participation of fishermen, as well as district and village level mass organizations and security officers. There are a number of other laws with influence over wetlands and natural resource management in Lao PDR. These include the Law on Investment Promotion (2009), which regulates all investment activities, domestic and foreign, in Lao PDR. This Law sets out the requirements and processes for investment application and the approval of investments, including environmental and social matters, such as ESIA requirements and the provision incentives to promote investment in rural and remote areas. The Law on Wildlife (2007) deems wildlife and aquatic resources to be the property of the nation and sets out regulations for wildlife categories, management plans, surveying, breeding, capture and hunting. A key point is that the commercial trade of wildlife, unless especially permitted by MAF, is prohibited in Lao PDR. Catching or hunting wildlife and aquatic species in conservation zones and in breeding season is also illegal, as is the destruction of wildlife conservation zones. The Decree on River Basin Committees (2010) is a recent and potentially influential regulation for the water sector in Lao PDR. This Decree sets out the location, mandate, duties, jurisdictions, organizational structure and working methodology for RBCs. An RBC has the mandate to act as a water resources executive in the river basin under the direction of the Lao National Mekong Committee (LNMC) for management, development, conservation, rehabilitation and utilization of water resources in that area. Currently only the Nam Ngum and Nam Theun-Kading RBC’s are close to operational; additional RBC pilots are proposed for the Xe Bangfai, Xe Bang Hieng and Nam Ou rivers. 2.2.3 Local regulation A Regulation on Natural Resource Management for the Kiat Ngong Wetlands was approved in 2010 by the District Government (Pathoumphone District Government, 2010). The Regulation sets out the boundaries, as endorsed by the eight wetlands villages: Kiat Ngong, Topsok, Phommaleu, Kele, Phapho, Phalai, Nongmak Ek and Phakha (Article 7). It also describes the protected zones, seasonally protected zones and managed zones, where activities such as fishing, grazing and farming continue, provided they do not harm the wetlands. Conversion of the wetlands or forests of Beung Kiat Ngong is now banned (Article 6). The table below provides more detail on the various zones recognized in the Regulation. In addition, the Regulation sets out the rights and responsibilities of the local villages in managing the wetlands, including shared patrolling duties (Article 10; see Map 4 below). The Regulation on the Wetlands was agreed upon and applies to 8 wetlands villages in 3 clusters (there is not yet a buffer zone). Each village cluster has a representative on the District Wetlands Committee; local Committees are planned at the khumban level in the future.

In accordance with the regulation, a basic patrolling system is already in place. The village militias do some basic patrolling and reporting of problems to the head of village. To date, no problems have been reported. The patrolling is currently focused mostly on conflicts over village boundaries and encroachment by outsiders. Much more comprehensive patrolling system will be needed in the future to also address use of resources by local people and apply wise use principles.

Zones of the Beung Kiat Ngong Wetlands, as set out in the Regulation I. Protected areas No. Local Area Respons Location Remark Name s ible North South East West (ha) village 1.. Done 28.5 Kiat Done Yang Done Ya Done Done Fish Yang Ngong Ka Time Pa Lao conservation (Nong Moung Kao pond Joke) 2. Done Ka 164 Kiat Done Ka Done Done Done Fish Dun Ngong Dun Kuang Tome Lao conservation Done Hor Kao pond 3. Done 73 Phapho Done Pak Done Done Fish Nok Hor Thome Thong Hi Kork Kuang conservation pond Total 265. 5 II. Seasonal protected areas 1. Wang 0.7 Kiat None Pa Done Na Nong Leuam Fish Nong Lak Ngong Kok, near Ngai Lak + conservation Nong Lak (Time Pa areas Khem’s pond river Moung) rice paddy 2. Wang 0.5 Kiat Done Pa Phuta Phuta Upland Fish Takuang Ngong Pao khuane khuane rice conservation paddy pond 3. Wang 0.3 Kiat Beung field Done Done Mango Fish Mak Jeng Ngong Nok Hor Nok Hor tree, conservation – End – Begin Done pond Mak Jeng 4. Wang 3.2 Kiat To’s rice Fish Kuai Ngong paddy conservation pond 5. Wang 0.6 Kiat Bountha Soun’s Fish Yao Ngong vy’s rice rice conservation paddy paddy pond 6. Wang 0.3 Pakka None Hin Lee’s rice Kork Hin Pone Fish Nong Na Lang paddy Lang Hin conservation Mood (small Dou (Peuy Lang pond tree) Tree) (Nom’s rice paddy hut) 7. Wang 0.4 Palai Kisang’s Kok Lang Kok Lang Upland Fish Nong Pa rice paddy near near field rice fall conservation Poi (village Papoi to Papoi pond area) pond pond 8. Wang 8.5 Palai Hong Tami Sai + Irrigation Hong Fish Kasai Pheung’s Kae conservation (Beung rice pond 21

Kasai) paddy Total 14.5 III. Specific conservation areas for certain activities 9. Done Yai 4 Kiat Sing, Khamvon Nu Done No logging and Time Pa Ngong Leum, g’s rice Phone’s Pa Ya agriculture Mouang Khem’s paddy rice Ka areas rice paddy paddy or and Nong Na None Lak Ngai conservat- Done Pa ion pond Mouang 10. Done Pa 0.7 Kiat Done Yang Done No logging and Ya Ka Ngong (Nong Ngai agriculture Joke) (Time Pa areas Muang) Total 4.7 Overall total: 299.2 ha Source: Regulation on Wetlands (2010)

Map 4: Wetland boundaries related to villages’ patrolling responsibilities

3. Ministries, Agencies, and Other Governmental Institutions Managing Ramsar Sites

3.1 Central level Governmental Institutions

Similar to the regulatory framework, Lao PDR’s government structures for natural resource management are relatively complicated, as there are overlapping roles and responsibilities between key agencies. However, this system is currently being reformed, with the creation of MoNRE. The following section will discuss both the new and old structures relevant to the governance of wetlands. Until recently, the lead agency for the management of water resources in Lao PDR has been WREA. Established in 2007 under the Prime Minister’s Office, but with the status of a ministry, WREA’s mandate was to ensure environmental protection and sustainable development. It was responsible for management of water, a number of MEAs (including Ramsar), climate change, environmental monitoring and conducting, approving and monitoring EIAs and issuing environmental certificates and RBCs. WREA also hosted the LNMC. WREA has suffered significant capacity constraints, although this situation has been changing, with the creation of new divisions and attempts to increase staffing. However, the lack of capacity is still pronounced at the provincial and district levels, where in some cases, there is only several environmental staff. In 2011, the creation of four new ministries was announced, including MoNRE. Although the Ministry’s new mandate has yet to be published, it is expected to include the departments of WREA combined with the conservation departments of MAF, the National Land Management Authority (NLMA) and several other resource related departments, such as geology. According to officials cited in the Vientiane Times, MoNRE aims to centralise the management of natural resources in order to protect the environment and ensure sustainable development (Vientaine Times, 1 August 2011). With several departments moving to MoNRE, the role of MAF will change significantly. Previously, MAF was the main agency responsible for the management of natural resources, including agricultural land allocation and management, forestry and forest conservation, fisheries, wildlife conservation and protected areas. It was also mandated under the Land Law to manage wetland areas. Under the new system, MAF will retain responsibility for agriculture and production forestry only. MAF is mandated to carry out land and forest allocation (LFA), although it is unclear whether this task shall shift to MoNRE or not. The Ministry also issues agribusiness certificates, an important regulatory tool which allows companies to invest in the Lao agricultural sector. MAF’s continued role in managing agriculture and agribusiness (including irrigation), as well as potentially fisheries, means it will still be influential in wetlands management (especially as so many wetlands are located outside of protected areas). As mentioned above, the NLMA is another agency now to be shifted into MoNRE. The NLMA was established in 2006, and like WREA, it had the same status as a ministry although directly attached to the Prime Minister’s Office. The Authority was mandated to draft laws and regulations on land management, and in cooperation with other relevant agencies to investigate, register and develop land use management plans and strategies. The NLMA also cooperated with other agencies to consider and issue land-use certificates, and was obligated to monitor, control and evaluate land-use within the

country. The NLMA has a network of offices at the provincial and district level but due to its recent establishment it still lacks human and technical resources. The following diagrams show the old and new roles and responsibilities of these three key agencies for the management of natural resources.

MAF

Production forests Protection forests and NPAs Wildlife Agriculture & extension CBD & CITES MA

Fisheries Wetlands REDD Land & forest allocation Land use planning Ramsar (& wetlands) Concessions RBCs Climate change Land policy ESIAs Land dispute resolution Water resources

Environmental management & NLMA pollution WREA Environmental policy

Figure 1. Old overlapping responsibilities of MAF, WREA and NLMA

‐ Water resources ‐ RBCs ‐ Production forests ‐ ESIAs ‐ Agriculture & extension ‐ Wetlands & Ramsar MAF ‐ Agribusiness ‐ Climate change, natural MONRE ‐ Irrigation disasters & REDD ‐ Fisheries? ‐ Environmental management & ‐ Land & Forest Allocation? pollution ‐ Environmental policy ‐ Protection forests & NPAs ‐ Wildlife ‐ Land use planning & policy ‐ Land concessions

Figure 2. New expected responsibilities of MAF and MONRE

source: IUCN, draft ICEM Institutional framework report, 2011.

There are a number of other agencies that must be considered in discussions of natural resource governance in Lao PDR. Despite being ostensibly concerned with other policy areas, these agencies remain influential in decisions about natural resources. These include: The Ministry of Planning and Investment (MPI): MPI is the lead agency for the promotion of investment, and is responsible for coordinating the investment approval process at the national, provincial and district levels. After an investment proposal has been submitted to MPI, the Ministry will distribute it to all concerned agencies and seek their comments; it organizes monthly meetings to discuss investment projects. It therefore plays an important and coordinating role in approving investments in the natural resource sector, such as plantations and infrastructure. MPI also has some responsibility for planning and promoting investments. The Ministry is currently developing a National Investment Strategy. The Ministry of Energy and Mines (MEM): MEM is responsible for mining, electricity generation and other energy resource policy making, administrative and technical management, surveying and associated environmental and social protection measures. As such, MEM plays an important role in the development and management of hydropower. It has overall responsibility for power sector development, which is administered by the Department of Electricity (DoE), including planning, promotion of projects, participation in negotiations, monitoring of environmental and social management plans (in cooperation with other relevant 25

bodies) and establishing and monitoring technical standards for power development in Lao PDR. The Energy Promotion Department promotes and negotiates investments in power projects, regional grid and connection, electricity exports and contracts. Mining projects are currently governed by individually negotiated Mining Exploration and Production Agreements (MEPAs), which are different for each investor. 3.2 Multi-sector cooperation Multi-sector cooperation between different government agencies and other stakeholders is a growing trend in Lao PDR. Often in the form of committees, multi-sector cooperation is increasingly used in the governance of natural resources, such as the country’s newly established RBCs, as well as in other areas, such as Investment Approval Committees at the national and provincial level. A number of multi-sector committees are involved in wetlands policy and management. These are: National Committee for Wetland Management and Ramsar Convention: This Committee was formed after Lao PDR joined the Ramsar Convention in September 2010. According to the PM’s “Decree on the Appointment of National Committee for Wetland Management of the Ramsar Convention in Lao PDR”, from November 2010, its duties are to: o Provide guidance on the implementation of management in Beung Kiat Ngong and Xe Champhone, the designated Ramsar sites; o Provide guidance on preparation and proposal of new wetlands to UNESCO/Ramsar Secretariat as Ramsar sites; o Provide guidance and comment on management plans; o Consider development of a technical organization and secretariat; o Provide guidance for coordination and cooperation with international actors/organisations; o Perform other duties and jurisdictions as assigned by the appropriate leading government office. The Committee is high-level; it is chaired by the Vice-Prime Minister and President of the National Environment Committee), currently H.E. Mr Asang Laolee. The membership is broad, including: o MAF (Minister; Deputy Chair) o WREA (Minister; Deputy Chair) o Dep. Head, MIC o Dep. Head, Ministry of Education o Dep. Head, Ministry of Justice o Dep. Head, Ministry of Public Works and Transport o Dep. Head, Lao National Tourism Authority o Head of UNESCO Committee Secretariat o Head of DoE, WREA (Head of Committee’s secretariat)

Notable absences include MPI, MEM and Water Supply. The Committee’s inaugural meeting was held in January 2011. In addition, the two provinces with Ramsar sites, Champassak and Savannakhet, have established provincial level Ramsar Committees, following the same model. The National Ramsar Focal Point: There are three National Focal Points, as follows: The Science Technical Review Panel (STRP) Focal Point (Living Aquatic Resource Research Centre-LARReC); The Government Communication, Education, Participation and Awareness (CEPA) Focal Point (Department of Environment); the NGO CEPA Focal Point (IUCN Lao PDR). All three National Focal Point are led by the Ramsar Administrative Authority which is currently WREA. These focal points are responsible for leading and coordinating the implementation of the Ramsar Convention, including leading research, supporting site level committees, and liaising between the National Committee for Wetland Management and the Global Ramsar Secretariat based in Switzerland. The Focal Points provide guidance to the National Ramsar Committee, which meets infrequently to make planning decisions.

3.3 Provincial, District and Local level Governmental Institutions There are two main aspects characterizing the governance of natural resources, including wetlands at the local level in Lao PDR. One is the extension of the same system seen at the national level to the provinces and districts, incorporating the same agencies and implementation of same laws and regulations. The other comprises particular actors and regimes which only occur below the district level. Important agencies for the governance of natural resources function through their networks at the provincial and district levels, such as PAFO, PWREA, PLMA and Provincial Planning and Investment Office. Provincial and District Agriculture and Forestry Offices (DAFO) are responsible for agriculture, irrigation, forests and fisheries at the local level, as well as the key player in LFA, making them influential in the management of wetlands. In Beung Kiat Ngong, the role of DAFO’s Division of Forest Resource Conservation (DFRC) has been particularly important since DFRC is tasked with overseeing NPAs and much of the Ramsar site lies with Xe Pian and Dong Hua Sao NPAs. The provincial and district Water Resources and Environment Offices (DWREO) are technically responsible for water resource management and climate change, but are often relatively understaffed (especially at the district level) and tend to provide technical oversight more than on-the-ground management. Responsible for land-use planning and land concessions, Provincial and District Land Management Offices (DLMO) are also important in natural resources governance at the local level. As with MPI the national level, Provincial and District Investment Promotion and Management Divisions under the Planning and Investment Office, are influential despite lacking a direct role in natural resource management. These offices can approve certain sizes of investments at the provincial and district levels, and are responsible for ensuring the investment and concession regulations are properly implemented and monitored. The Provincial Planning and Investment Department also play an important role in promoting and selecting investments for the province (for example, several provinces are currently preparing provincial investment strategies as part of a UNDP-UNEP supported project). In terms of multi-sector committees, Champassak Province has set up a Provincial Ramsar Committee and Provincial Secretariat. Chaired by Vice-Governor, members of 27

the Champassak Province Ramsar Committee include: the Provincial Tourism Office; Provincial Education Office; Provincial Land Management Office; Provincial Health Office; Provincial Water Resources and Environment Office; Provincial Agriculture and Forestry Office; Provincial Transport and Communications Office; and the District Governor for the Ramsar site. The Champassak committee meets every six months, and can call ad-hoc meetings if necessary. It mainly addresses issues at Beung Kiat Ngong, but is also proactively preparing a provincial wetlands strategy (as reported by Champassak provincial officials during workshop in June 2011). The Provincial Secretariat is nominated by the Provincial Ramsar Committee. To date, provincial WREO has been filling this role and is scheduled to meet once every three months to discuss Ramsar relevant work. The Provincial Ramsar Committee focuses on site planning whereas the Secretariat is more focused on liaising with the Ramsar Field Management team (district level) and three village clusters (khumban). For example, when field work activities are planned in Beung Kiat Ngong, the work is in coordinated through provincial WREO.

At the site, a multi-sectoral District Ramsar Field Management Team has been established to carry out field activities. The Field Management Team has nominated a District Ramsar Secretariat (DAFO) to assist in implementation of Ramsar work. Clearly, there is a thorough institutional structure and system of delegating Ramsar related work, starting at the national level and reaching the local level. However, at present, there are few resources available to carry out management and conservation activities on the ground. Once more resources reach the site and implementation of the site Management Plan begins, there will already be a solid structure in place to support these activities. During the meeting organized in Provincial WREO in Pakse on September 30th, 2011, the cross sectoral group of provincial and district government officials were unwilling to speculate about changes in Beung Kiat Ngong Ramsar site management that would occur as a result of the creation of MoNRE. They indicated that since structural changes were not yet complete at the central level and since they had not yet reached the provincial and district levels, they could not guess at impacts on the provincial Ramsar committee or Beung Kiat Ngong site management. Laws and regulations for natural resource management promulgated at the national level are also often developed at the district level. For example, based on national law, districts prepare and implement regulations on fisheries and forests, setting out conservation zones and penalties for infringements, usually fines. On rare occasions, these regulations skip the district level and are formulated at the village level, such as those for community fisheries. LFA, and in some cases land use planning, are also carried out at the district level and below. Similarly, development planning occurs at the provincial and district level. However, some actors and regimes for the management of natural resources, including wetlands, only occur at the village or community level. As structures and processes for on-the-ground management, these can be very influential. Khumbans, Khet and councils: Village clusters (khet) or “development clusters” (khumban), are groupings of villages, designed to promote development and local governance. The clusters meet regularly and can also have enforcement (militia) arms. Village councils, headed by a Village chief (Naiban), manage village affairs and are responsible for certain community resources, such as village protection or 28

production forests. Village leaders also play an important role in managing small- scale irrigation, enforcing fishing rules and allocating land (even where no land-use planning or titling has been carried out).

4. Relevant Activities of Private Entities, Public Interest Groups, Professional Bodies, and the Academic/Research Sector

The table below outlines activities of all non-governmental entities whose activities impact that wetlands.

Villages 13 wetlands villages o The Regulation on the Wetlands was agreed upon and applies to 8 wetlands villages. o An additional village is also engaged in work on Ramsar and wetlands management o Relevant projects in the area, such as BCI & LLS have worked in 11 villages in Pathoumphone District o Each village cluster has a representative on the District Wetlands Committee; local Committees planned at the khumban level in the future.

Local people Local villagers o Approx. 11,500 people in the 8 Beung Kiat Ngong & villages (plus additional surrounding villages) are organizations beneficiaries of the wetlands and dependent on the wetlands and surrounding areas for their livelihoods o Customary use of the wetlands involves allocation of paddies, fish ponds and traps to individual villagers/households o Local villagers play a very important role in implementing the Regulation on the Wetlands, as well as customary practices, and will be key partners in further management/conservation of the site

Ethnic groups o Most people in the area are of the Lao Loum majority o One village, Ban Houay Ko, is considered a Brao village. Brao are a Mon-Khmer group who live around the Bolaven Plateau area and border region with Cambodia.

Village Malva Nut o Established by the LLS Project in Ban Kiat Ngong Groups in Pathoumphone District to oversee the care, harvest and trade of Malva nuts; expected to expand to other villages in the future

Mass organizations o Mass organizations such as the Lao Women’s Union (LWU) and Lao National Front maintain a network at the village level o District LWU is represented on the District Wetlands Committee

International Ramsar Convention o The Ramsar Convention on Wetlands of organizations International Importance accepted Lao PDR as a & NGOs party in September 2010, after many years of preparation o Two sites were nominated by Lao PDR as wetlands of significance: Beung Kiat Ngong in Champassak Province and Xe Champhone in Savannakhet Province o Joining the Convention signals commitment to work actively to support its “three pillars”: 1) ensuring the conservation and wise use of wetlands it has designated as Wetlands of International Importance, 2) including as far as possible the wise use of all wetlands in national environmental planning, and 3) consulting with other Parties about implementation of the Convention, especially in regard to transboundary wetlands, shared water systems, and shared species.

ADB ‐ The ADB is currently implementing Phase 2 of its BCI project which includes Beung Kiat Ngong; the BCI is paralleled by one of the GMS economic corridors, linking Thailand to Vietnam across Lao PDR.

IUCN ‐ IUCN has been working in the wetlands area for some years, including some tasks for BCI, followed by the LLS project, starting in 2008. ‐ IUCN also supported the GoL in preparations for joining the Ramsar Convention and has been named CEPA focal point for this Convention in Lao PDR. ‐ Ongoing work in the wetlands will be supported under IUCN’s Mekong Water Dialogues project (Phase 2) and a number of other IUCN projects.

WWF ‐ WWF has been implementing the ADB’s BCI project in the corridor that includes Beung Kiat Ngong ‐ Also supported work on community-based tourism in Xe Pian NPA and piloting Green Club environmental education activities in schools. ‐ Between April 2009 and June 2011 implemented a project on law enforcement, training and equipping Xe Pian NPA staff.

Elefant Asia ‐ Carries out vet-care visits to the domestic elephants in Beung Kiat Ngong

‐ Consultant for WWF/BCI on elephant tourism potential in the area ‐ Other relevant programs include support for elephant breeding/baby bonus, plus experience in helping to set up mahout association (in Sayaboury).

GAPE ‐ GAPE has been working on community-based natural resource management in the area since 2001. ‐ Some activities focused specifically on fisheries management. ‐ Its Remote Village Education Support Project (RVESP), involving support for education, environmental education, agriculture, etc, has been implemented in 28 villages in Pathoumphone District. ‐ These activities were due to finish in 2010; eco- tourism work is also under development for 2011.

SUFORD ‐ The Sustainable Forestry for Rural Development project is a multilateral cooperation between GoL, Finland and the World Bank, aiming to introduce a nation-wide forest management system. ‐ Has included the establishment of production forest areas in a number of provinces, including Champassak, and support for participatory forest management with local villages. ‐ SUFORD has been working in a number of villages in the area, e.g. set up village forestry organizations in 9 BCI villages, plus nurseries in several villages.

Private sector Kingfisher Lodge ‐ Lao/Italian family operate guesthouse in Beung Kiat Ngong; offers activities as well as accommodation

Other tourism ‐ Community Guesthouse in Ban Kiat Ngong & operators community-based guides/treks ‐ Green Discovery Laos, a national company with tours to Bolaven, Xe Pian and Dong Hua Sao and investment in Dong Hua Sao zipline & treehouse project. ‐ Other international and national tour companies running programs to the area, such as Exotissimo and Diethelm.

Industry ‐ No industrial companies currently directly draw on the wetlands for water

‐ Beerlao established a plant 19km south of Pakse in 2008, which produces beer and soft drinks. ‐ Electricite du Laos plans to build an electrical transmission line from Phalay village to Tav Vang and Ta Eong villages. ‐ The planned Xe Pian-Xe Namnoi (390 MW) hydropower project on the border of Attapeu and Champassak provinces may have some impacts on Beung Kiat Ngong Ramsar site since it is upstream of Xe Khampho which is close to the site. This project is in the Planning Purchase Agreement stage (www.poweringprogess.org/).

Household businesses ‐ Household businesses are also an important source of income in the area, including handicrafts, transportation services, restaurants and small shops.

Other Pakse City ‐ Beung Kiat Ngong is located 56km south of Pakse City, the provincial capital of Champassak. Although Pakse receives few direct benefits from the wetlands, such as water supply or flood mitigation, the site does provide: o Tourism destination and business opportunities for Pakse-based operators o Food production, with many wetlands products such as fish sold in the markets of Pakse

5. Existing information about the site

Chapter 6 on “Environment and Natural Resources” summarizes all of the known information about the agro-biodiversity, landscape, ecology and water of the wetland. The majority of the information about the site comes from research and publications produced under IUCN’s LLS project and 1996 National Wetlands Inventory and ADB’s BCI project. Since this has work focused on certain section of Xe Pian and Dong Hua Sao NPAs and select production forests in the area, there is little known about areas of the wetland outside of these sites. The Ramsar Information Sheet (RIS) completed by national WREA also provides key information on the site drawing primarily on the sources listed above. Periodic updates of the RIS are a requirement of the Ramsar convention.

Biodiversity information gaps include the lack of comprehensive survey on fauna in the Ramsar site. To date, there is only information available on Malva Nuts in Xe Pian NPA and select other NTFPs. The only plant biodiversity study that has been carried out focused specifically on medicinal plants. As such, it has not been determined whether or not there is endangered fauna in the area.

In terms of flora, William Duckworth’s 2008 biodiversity survey in the Xe Pian and Dong Hua Sao NPA corridor, provides the most comprehensive and up to date information available on birds and mammals. IUCN’s 2009 survey provided some key information about fish, amphibians, and reptiles. Given the importance of fish for local livelihoods, it is important that in the future more extensive studies of fish are carried out. A more complete list of relevant biodiversity surveys is provided in Chapter 6.

Beyond biodiversity related information gaps, other information needs include a study on environmental and social issues which may be associated with tourism expansion. Pathoumphone District, including the wetlands and other sites such as Phou Asa, are attracting an increasing number of tourists. The Ramsar status of Beung Kiat Ngong, along with improved infrastructure and increased tourism numbers more generally, can be expected to boost the number of visitors in the future. Further assessment of the environmental and social risks of tourism in the area is required, along with measures to ensure that negative impacts are minimized while benefits are shared among the communities of the wetlands. If well-managed, tourism can offer an important contribution to local livelihoods and the management of the site.

The impacts of hydropower development on the rivers and streams, such as the Xe Pian and Xe Kong, feeding the wetlands must also be looked at in the future. Local officials suspect that at present, the primary hydropower dam in planning stage that may impact the wetland is: the Xe Pian-Xe Namnoi (390 MW) in Attapeu and Champassak. However, research will be required to determine impacts.

More work should be done to survey peat lands within the site. Some basic information is known about the peat lands including the fact that in some areas, peat was damaged by a Vietnamese fertilizer company that extracted peat from 2006 to 2009. However, in order to come up with a plan for peat conservation, restoration and potentially sustainable use, an in depth study of peat in Beung Kiat Ngong is required.

Finally, additional study is needed on hydrology and soil types. The site will be impacted by future irrigation development and water level management. Informed decisions 34

cannot be made about water management until more is known about the hydrology and soil types in the area.

6. Environment and natural resources

6.1 Catchment area

The catchment area of the Beung Kiat Ngong Wetlands, including the streams that flow into the wetlands, is estimated be at least 10,000 ha in size (Khamlibounthavi, 2008). There are two main water sources for the wetlands, one from the Xe Pian NPA (Xe Khampho Basin) and another from Dong Hua Sao NPA (Tamo Stream Basin). Thus the wetlands are linked to a number of rivers and streams, including the Xe Khampho, Tamo, Xe Pian and Xekong rivers and the Takuan and Ta Euang streams. During wet season, all these waterways are ecologically connected. The Xe Khampho is believed to support well over 150, and possibly up to 200-300 fish species. The main forest types in the catchment area include lowland dry evergreen forest, mixed deciduous forest, and shrubs.

6.2 Landscape and Ecology

The Beung Kiat Ngong Wetlands are one of the most important and unique wetland areas in Lao PDR. Much of this wetland is peatland or peatmarsh and swamps. Both perennial and seasonal ponds are also found in the wetlands complex, including landscapes composed of fresh water marshes, lakes, ponds, rice paddy fields, seasonally flooded grassland, shrubland and forest (Claridge, 1996). Found in the area are water birds, a variety of fish, vegetation, livestock grazing areas, fish ponds, settlements and traditional rice cultivation. According to the Ramsar Information Sheet (WREA, 2011) for the wetlands, four types of wetlands have been identified within the overall Beung Kiat Ngong site:

The Mekong River, with braided and main channels, deep pools, rapids and waterfalls; Rice fields (rain-fed & irrigated); Emergent and flooded shrubs, and riparian, seasonally flooded forest; Marshes with small pools (known as nong in Lao language), which are reduced significantly in area in the dry season, plus farm ponds.

The Beung Kiat Ngong wetlands are the only area in Lao PDR where peatland areas can be found. The area also includes rich semi-evergreen forest areas within the broader wetland mosaic. More detail on the features of the wetlands area is provided below.

6.3 Water

The main part of the Beung Kiat Ngong Wetlands is not an open surface wetland. Many different islands with large trees and piles of rocks can be found in the wetlands. Above the water surface, there is also a thick layer of decayed grasses with new shooting grasses and emergent weeds as well as bushes growing on top of this layer. The thick layer of grasses is found mainly in the northwestern wing, where it floats over still water. Most parts of the wetlands are shallow, although some areas are as deep as 2-3 m in the dry season. Water permanence during the dry season is about 300-400 ha for the main part of the wetland. Apart from this area, there are some other scattered small marshes and swamps that retain water throughout the year. During the wet season water levels go up, peaking from August to early October, with peaks close to 2m above 36

the dry season water levels. This occurs throughout the area. The thick layer of floating grasses can be observed in the dry season, particularly in April and May, when the layer becomes harder. Where there is shallow water, the layer is likely a mixture of both grass and soil. However, in the deep water area there is still water underneath. It is possible for people to walk on top of the soggy thick layers during the dry season.

Water quality in the wetlands is still quite good because it has not been heavily disturbed. It has not been heavily disturbed because it is not extensively used for irrigation, it is not subject to extreme flood/drought cycles and there is a relatively low level of agricultural chemical use around the wetlands (although there are concerns that this is increasing). Rice paddy fields are found around the edge of the wetlands and mainly in the southeastern part of the wetlands. Dry crop cultivation is also practiced but only on a small scale. Because the soil in the area is very highly fertilized by natural sediments distributed during flood periods, local villagers tend to cultivate without using large inputs of chemical fertilizers.

6.4 Biodiversity

The Beung Kiat Ngong Wetlands support high biodiversity values. Although there is a lack of detailed biodiversity data for Beung Kiat Ngong, this is consistent with other parts of Lao PDR. In fact, it has been claimed that Pathoumphone District is among the best surveyed areas of Lao PDR for birds and large mammals (Duckworth, 2008). However, preceding surveys have prioritized forests, while wetlands have been less well covered (although Duckworth, 2008, notes that Timmins et al. (1993) highlighted numerous wetland management needs).

Relevant surveys include:

Survey of Xe Pian NPA in November 1992–March 1993 and May 1993 (Timmins et al. 1993, Thewlis et al. 1996) in the ‘northern zone’, which constitutes the area north of Xe Pian NPA’s main block of semi-evergreen forest, dominated by functionally deciduous woodland with many wetlands, cultivation and villages. Survey of Dong Hua Sao NPA in May–July 1993 and in February 1996 (Thewlis et al, 1996, Evans et al, 2000), both surveys concentrating on the NPA’s lowlands, overlapping with the northern part of the Asian development Bank’s (ADB) Biodiversity Corridors Initiative (BCI) pilot area. Pathoumphone production forest area survey by Poulsen et al (2005). Unpublished bird records from M. K. Poulsen, from Xe Pian NPA and adjacent Pathoumphone District. Biodiversity survey focused on wetlands and bird species in ten villages of the BCI project area, as well as several adjacent areas, including Beung Nyai- Kiatngong as the biggest and best-known wetland in the BCI area (Duckworth, 2008). Interviews and surveys conducted for the IUCN Livelihoods and Landscapes Strategy (LLS) project in 2009 (IUCN, 2009a).

6.5 Flora

There is a paucity of information available regarding the flora of the Beung Kiat Ngong Wetlands. A general description is provided by Claridge (1996) and some work was

done during the “Rapid and Participatory Biodiversity Assessments” (BIORAP) survey in the main part of Xe Pian National Protected Area (Mather et al, 1997). Recent work has been carried out on the economic value of the wetlands (Khamlibounthavi, 2008). However, these surveys did not focus on specific plant species. At present it is not known if any rare or endangered flora species are present in the area. More broadly, the wetlands are surrounded by valuable tree species such as Malva nut trees (Mak chong). Although harvests vary from year to year, Malva nuts often provide an important source of income for local people. Other NTFPs such as berberine and wild honey are also harvested from the area.

A study (Elkington et al, 2009) conducted in 2009 focused on surveying and identifying medicinal plants growing in the wetlands and surrounding forested areas. The survey focused on five villages near the wetlands including Kiet Ngong, Topsok, Phapho, Kelae, and Phalai. More than 320 plants representing more than 240 species of plants, belonging to 180 genera in 80 families of vascular plants, are used by traditional healers in medical therapy in the area, including Tinospora crispa, Desmodium lanceolatum, Orthosiphon stamineas, and Vitex trifolia, among others. At least 15 of these species have not been previously reported for medicinal properties, suggesting that their uses may be unique to Lao PDR. More than 300 unidentified plants were also noted by the study, and specimens of 116 plants were collected and have been deposited at the Traditional Medicine Research Center herbarium in Vientiane and the John G. Searle Herbarium at the Field Museum of Natural History in Chicago, USA.

6.6 Fauna

The Beung Kiat Ngong Wetlands have not been adequately studied and surveyed, and therefore, there is a lack of detailed information on the fauna of the area. Historically, the wetlands have supported key species such as Siamese crocodiles (Crocodylus siamensis), Sarus cranes (Grus antigone), Great adjutants (Liptoptilos dubius) and Oriental darters (Anhinga melanogaster). These species were reported in the area 15 years ago (Claridge, 1996), but have not been confirmed recently, although there are still some occasional reports of Siamese crocodiles. Numerous bird species are found in the area including Cattle egrets (Bubulcus ibis), Lesser tree ducks (Dendrocygna javanica), Greater painted snipes (Rostratula benghalensis), and Chinese pond herons (Ardeola bacchus) (Claridge, 1996). In 2009, interviews and field surveys conducted in the six main villages surrounding the wetlands showed similar number of bird species and more detailed surveys would undoubtedly reveal a much larger number of wetland- associated bird species (IUCN, 2009a). There are also many fish species in the Beung Kiat Ngong Wetlands but a complete study on this has not yet been undertaken (see Section 5.2.3 below).

6.6.1 Birds As part of Xe Pian National Protected Area, this wetland area is considered an important site for bird feeding and occasionally for nesting. The Beung Kiat Ngong Wetlands are suitable for small and medium nesting sites for water birds, and provide a source of food, such as plants, insects, fish and other small animals, for birds, wild and domestic animals, and humans.

However, there is evidence that the area has suffered a decline of bird species. A 2008 survey (Duckworth, 2008) of biodiversity in the corridor between Xe Pian and Dong Hua 38

Sao NPAs, which includes Bueng Kiat Ngong, found that many non-forest species that should live in the survey area are now effectively absent, such as Sarus Crane, Black Kite, Grey Heron, Spot-billed Pelican and Greater Adjutant. Further, a number of species are at “real risk of local extinction”, including: Green Peafowl; Red-wattled Lapwing; all species of vulture resident in Lao PDR; Vinous-breasted Starling; White-vented Myna; and, among forest and -edge species, Oriental Pied and Wreathed Hornbills, Alexandrine, Blossomheaded and Red-breasted Parakeets, and Green Imperial Pigeon. As Duckworth notes, these trends are typical of Lao PDR, and although it has lost much, the survey area remains very important for wetlands and grasslands birds.

Highlights of the 2008 survey included: a foraging Brahminy Kite; Cotton Pygmy-goose; Pheasant-tailed Jacana and Greyheaded Lapwing; the first White-browed Crake sighting for South Lao PDR; thousands of mid-winter egrets; and a fly-over Spot-billed Pelican. Within Beung Kiat Ngong specifically, nearly all wetland bird species recorded during the survey were found here. These included: several large roosts of harriers, mixed Yellow Wagtails and Red-throated Pipits (by far the largest known in Lao PDR); Yellow-breasted Bunting (a globally near-threatened species); Streaked Weavers (the only Lao record); many Purple Herons (with the only breeding site reported); many egrets; Storkbilled Kingfisher; and several species of rallid, including the first record of White-browed Crake for South Lao PDR. However, as the composition and numbers of water birds varies significantly with season, further surveys are required to fully assess the status of bird species at the wetlands.

6.6.2 Mammals Some mammals are present in the area such as Barking deer (Muntiacus muntjak), rabbits, Civet (Viverra sp), as well as reptiles, amphibians, and fishes (WREA, 2011). Guar (Bos gaurus) has been recently reported in the area close to Kiat Ngong village (IUCN, 2009a).

The 2008 BCI survey report notes that the corridor habitat, a patchwork of forest types with many glades, wetlands, grasslands and all-year water sources, is perfect for large ungulates and associated big predators. Species probably extinct in Lao PDR such as Lesser One-horned Rhinoceros (Rhinoceros sondaicus), Hog Deer (Axis porcinus) and Wild Water Buffalo (Bubalus arnee) probably occurred in large numbers. Dhole (Cuon alpines), Leopard (Panthera pardus), Tiger (P. tigris), Asian Elephant (Elephas maximus), Sambar (Cervus unicolor), Gaur (Bos gaurus) and probably bears (Ursus spp.) would also have been present, along with smaller numbers of Eld’s Deer (Cervus eldii), Banteng (Bos javanicus) and perhaps even Kouprey (Bos sauveli). This community of fauna is now gone (Duckworth, 2008).

Although individuals may occur occasionally, Duckworth notes that up to four species of otter (Lutra sp(p).) should occur; locally caught captive otters were seen in the northern zone of Xe Pian NPA in 1992–1993 (Duckworth et al. 1994, cited in Duckworth 2008). The lack of signs found suggests that otters are rare at best, no doubt reflecting the trade in otters and their parts in Southeast Asia. Other mammal species of which the corridor might still support populations are Jungle Cat (Felis chaus) and Fishing Cat (Prionailurus viverrinus), the latter of which is classified as Endangered on the IUCN Redlist of Threatened Species.

In the 2008 survey, Duckworth found relatively few signs of ungulates, with only wild pigs, muntjacs (most likely the common Red Muntjac (M. muntjak), although Khounboline & Baird (2008) found Sambar signs around Ban Nabon. The following common mammals were seen directly: the squirrels (Callosciurus finlaysonii williamsoni and Tamiops sp(p).); Northern Treeshrew (Tupaia belangeri); Small Asian Mongoose (Herpestes javanicus); and Siamese Hare (Lepus peguensis). The sole record of a mammal of wider conservation significance was of a single Large-spotted Civet (Viverra megaspila) by the Ban Thangbeng–Attapu road, close to the turn to Ban Kiat Ngong. Duckworth (2008) notes that this species is now rare and the Xe Pian NPA area may be a global stronghold (citing Austain 1999, Khounboline 2005, Lynam et al. 2005). Village interviews in December 2007 (Khounboline & Baird 2008) confirmed that large mammal populations are greatly reduced and many species are effectively locally extinct.

According to the 2011 RIS, Beung Kiat Ngong specifically supports a number of threatened species, as shown in the table below.

Key Threatened Species in Beung Kiat Ngong Common name Scientific name IUCN CITES

Malayan snail- Malayemys Vulnerable Appendix II eating turtle subtrijuga

Sambar Cervus unicolor Vulnerable -

Leopard cat Prionailurus Least concern Appendix II bengalensis (App. I in Thailand, Bangladesh & India)

Fishing cat Prionailurus Endangered Appendix II viverrinus

Source: WREA, 2011

6.6.3 Fish, Amphibians and Reptiles There are many fish species in the Beung Kiat Ngong Wetlands but a complete study on this has not yet been undertaken. Compared to wetlands in the surrounding areas, water remains throughout the year in Beung Kiat Ngong, and thus it is an especially important area for fish to live during the low water dry season. Forty-three species have been reported here in wet season, with additional species migrating to the site to spawn, while 20 fish species remain in the area during the dry season (IUCN, 2009a). Fish species found in the wetlands include Walking catfish (Clarias spp.), Snakehead fish (Channa striata), and Swamp eel (Monopterus albus). The aquatic habitats are also thought to be home to freshwater tortoises such as the vulnerable Malayan snail-eating turtle (Malayemys subtrijuga), the endangered Elongated tortoise (Indotestudo elongate), and the endangered Yellow-headed temple turtle (Hieremys annandalii). Reptiles include snakes, such as the Striped water snake (Enhydris jagorii), Gerard's water snake (Gerarda prevostiana), White-lipped pit viper (Tremeresurus albolabris), and the Cobra

(Naja sp). (WREA, 2011). The tables below show key fish species in the wetlands according to season.

Key fish species in the dry season Scientific name Common name Local name

Channa striata Snakehead murrel Pa kho

Channa gachua Dwarf Snakehead Pa kang

Clarias batrachus Walking catfish Pa douk

Clarias Bighead Catfish Pa douk oui macrocephalus

Esomus Striped flying barb Pa cheo

metallicus

Monopterus albus Swamp eel Pa ein

Oreochromis Nile Tilapia Pa nin niloticus Rasbora Pale rasbora Pa cheo oa aurotaenia Trichogaster Blue Gourami Pa kadeut trichopterus

Key fish species that migrate into the wetlands for breeding in wet season Scientific name Common name/family Local name

Channa sp. Channidae Pa kuane

Channa sp. Channidae Pa do

Cirrhinus sp. Cyprinidae Pa keng

Cirrhinus sp. Cyprinidae Pa kha yang

Danio sp. Cyprinidae Pa vienphai

Notopterus Asian Knifefish Pa tong notopterus

Tetraodon sp. Tetraodontidae Pa pao

Source: WREA, 2011

6.7 Ecosystem services

More than 11,500 people in 13 villages rely on the wetlands for their livelihoods, which are mainly derived from fishing and collecting wild vegetables. With an area of only about 3,000 ha, the Beung Kiat Ngong Wetlands provide enormous direct and indirect benefits for local communities. It was estimated in 2008 that the wetlands provide US$ 897,607 (Khamlibounthavi, 2008) of annual direct economic value. Economic research conducted by LLS team and research students in the wetlands and with the communities living in and around the area in 2009 (IUCN, 2009b) reached a revised figure of US $849,682 of economic benefits annually from fish, NTFP and agricultural products coming from the wetland. The findings of this research are largely consistent with the previous estimate although different data sets were used. The “Provisioning” section of the table below describes additional estimates for dollar figures associated with additional ecosystem services.

The table below describes these ecosystem services following the categories used by the Ramsar Secretariat.

Types of Explanation of services services -According to IUCN (2008a), the wetlands supports grazing for 4350 elephants, buffalo and cattle, amounting to 5430 “grazing units” which consume almost 40,000 tons of wetland vegetation. At an estimated cost of 3 baht per 15 kilograms, the equivalent in purchased feed for animals would amount to about US$263,000 per year.

-In 2011 WREA estimated that approximately 10,000 tourists per year visit Pathoumphone District. Tourism earnings from elephant trekking alone has been placed at more than US$20,000 per year (Maurer, 2009). Tourism also brings in money from selling handicrafts, guiding tours, and Provisioning guest houses/homestays. (food production, fruits, grain, - IUCN field measurements in the wetlands area in 2009 found that there fiber, fuel wood, were 322 ha of rice paddies and about 4.5 ha of gardens. The rice grown genetic in and around the wetlands is worth about $130,000 each year (IUCN, materials) 2009b). There are special varieties of rice in the area that are adapted to local conditions, such as floating rice.

- Local villagers from the main villages around the wetlands annually harvest about 227 tons of fish, 187 tons of other aquatic resources, and 5-6 tons of vegetables; fish and eels account for a combined 70.7% of the total economic value derived from the wetlands (IUCN, 2009a).

- IUCN Lao PDR’s work through the LLS project found that around 89% of families in the area are engaged in harvesting NTFPs. IUCN’s efforts to promote the sustainable harvesting of Malva nuts has resulted in better management of the Malva nut stands and increases in local income from

the NTFP (IUCN, 2009 c&d).

- Between 2006 and 2009, a Vietnamese company was involved in peat extraction in the Beung Kiat Ngong wetlands. According to the Ban Kiat Ngong council, the company worked 2-3 months per year, extracting about 650 cubic meters of peat each day worked. This left more than 20 holes of about 10 x 10 x 5 m in size in the northern part of the wetlands (IUCN, 2008a). After complaints by local villagers and intervention by the District Governor, the peat extraction was halted in 2009.

-Duckworth and others have noted signs that timber is extracted from forests in the area (e.g. charcoal for sale nearby), but the amount of timber extartced from the site has not yet been studied or analyzed.

Regulating Further study of regulating and supporting ecosystem services are required, but initial information suggests that the wetlands play an (climate and important role in: water regulation, - Flood mitigation. hydrology, flows, - Storing and maintaining ground water. discharge, water - Sediment/nutrient trapping purification and - Sequestering carbon in peatlands and surrounding forests treatment) - Water purification/treatment -The area is characterized by rural Lao Loum culture, including a continuing traditional elephant mahout culture. As noted in Maurer (2009), the tradition of domesticated elephant ownership is viewed by government officials and villagers alike as an important element of the Pathoumphone District’s cultural heritage. Ban Kiat Ngong is home to Cultural around half of Champassak Province’s remaining domestic elephant population of 33 elephants (Maurer, 2009; Elefant Asia, 2010). A local (spiritual, elephant festival is also held each year in February at Beung Kiat Ngong. recreation, Populations are declining. aesthetic and education) - Beung Kiat Ngong Wetlands and its surrounds also host cultural sites which are visited for recreation and tourism, including Phou Asa and carved figures in the river bed rock at Ban Kasee (Xe Pian NPA website). Phou Asa, a hill adjoining the wetlands, is marked by many piles of flat stones where a ‘temple’ is located. This temple was built under the direction of the Buddhist monk, Phra, at the beginning of the 19th century.

- During wet season, the wetlands provide passage for a variety of fishes to move upstream along these rivers and streams, as well as providing Supporting spawning grounds. The wetlands also form an especially important (bio-habitat, habitat for fish during the low water dry season. spawning, - Sediment trapping (due to the slow water flow). sediment retention and - Habitat for key conservation species (Fishing Cat, sambar, and Malayan nutrient cycling) snail-eating turtle) and economic species (Malva Nut)

- Bird feeding grounds and sometimes as a nesting site

7. Technical Infrastructure

At present there are no government allocated funds, office space, or other contributions specifically to management of Beung Kiat Ngong Ramsar site. The Ramsar Committee is made up of members from various other government offices (WREO, DAFO, etc) so those officials’ salaries and office costs are paid by government. The salaries of the DAFO officials assigned to work in Xe Pian and Dong Hua Sao NPAs are also paid by government. Pathoumphone district employs about 35 government officials. Of these 15 officials do work relevant to the Beung Kiat Ngong. They are as follows: five officials working in Xe Pian NPA, two officials working for the Department of Agriculture and five from other DAFO departments (fisheries, irrigation and others), and three working at DWREO. GoL supports the cost of patrolling and managing the NPAs, with some of these funds (periodic grants of between 20 and 40 million kip) provided through the Forest Protection Fund.

Though meetings between Ramsar Committee members can be called when they are no associated costs, the only funds for the committee to be involved in management or conservation activities come from international donors.

There is currently no technical infrastructure specifically for wetlands management in place. However, there is some limited infrastructure in place for the NPAs. Each NPA has an office and there is a tourist information office in Ban Kiat Ngong (Xe Pian NPA). There are also three khumban (village cluster) offices in the area (in Kiat Ngong, Kalae and Phapho villages). Other infrastructure for tourism includes the Kingfisher Lodge in Beung Kiat Ngong which provides accommodation and organizes tours and hiking trails that lead up Asa mountain.

In terms of main roads in the area, the northern boundary is along Route 18A (the road connecting Ban Thangbeng at Km 48 of Pathoumphone District, Champassak Province, to Sanamxay District of Attapeu Province). The boundary follows from Ban Topsok to the junction with the road to Ban Phapho. The boundary curves along this access road running through Ban Kelae Noi then connects to Ban Phapho at the eastern boundary.

Planned investments in infrastructure that may impact the wetlands in the future include:

‐ As mentioned above, the planned Xe Pian- Xe Namnoi (390 MW) dam in Attapeu and Champassak may impact the site. ‐ Upgrade of existing roads, such as Route 18a from Pathoumphone to Sanamxay, as well as new roads may also result in negative impacts on the wetlands. An dirt access road that connects Route 18b to Pha Pho village is also being upgraded. ‐ An electrical transmission line from Ta Vang and Ta Eong villages to Phuk Kha village (this has not yet been surveyed). ‐ An irrigation scheme in Ta Koay is planned ‐ Since Ta Vang and Ta Eong villages are both quite small and located far from each other, government is discussing relocating and combining them so that development activities can reach them more easily.

8. Information Management, Access, and Use

While WREA has provided some limited information on the biodiversity and ecology of the site, the vast majority of information available has been collected through research projects funded by international organizations. Local authorities do some regular, socio- economic information monitoring, particularly regarding income in the districts, (linked to development planning processes). District 5 year plans include information on district income sources and revenues, labour force and population. In addition, the weather station in Pakse consistently collects weather and data information throughout the province.

In terms of environmental monitoring, there are no other relevant sets of data, except basic land use/allocation and possibly forest cover. Forest cover information is collected as part of a National Forest Inventory every 5 years, but the level and accuracy of this data is hard to guarantee. Therefore, a monitoring system will need to be set up for collection of natural resources and environment data.

Because there is currently such a limited amount of information available about the site and limited monitoring taking place, information management is not a substantial issue. In the future, when a monitoring system is set-up and data on the site is regularly collected, efforts to create a database will be required.

Once more monitoring and data collection occurs, there is already a system in place for disseminating information. Village authorities and cluster villages have meeting on the 5th day of every month.

9. Conservation Preparedness, Response, and Follow-up

9.1 Recent and ongoing conservation activities

All the villages were affected by the land and forest allocation process (LFA) in the 1990s, and some villages formed protected wetland areas, especially deep-water pools and forest areas within the broader wetland area. For example, a number of deep-water pools have recently been protected by villagers for fish breeding with the support of the Global Association for People and the Environment (GAPE), which started working in the area in 2001. These villages have also prepared other fisheries-based rules.

The Beung Kiat Ngong Wetlands lies partly within Xe Pian and the Dong Hua Sao NPAs, both established in 1993. The Forestry Law and related regulations have been developed as legal tools to support the management and conservation of biodiversity. Therefore, based on the legislation, the area is protected from natural resources exploitation. However, protection of NPAs can be overridden with express permission of the Ministry of Agriculture and Forestry (MAF). Another part of the larger Beung Kiat Ngong Wetlands complex is Beung Phapho, which is not legally protected because it lies outside of both of the NPAs.

Education and awareness raising activities on the importance of biodiversity and wise use of the wetlands have been conducted in the past with the support of a number of organizations, including: Swedish International Development Agency (SIDA); IUCN; Danida; ADB; Worldwide Fund for Nature (WWF) and GAPE. However, these activities have always been reliant on project funding from external donors. Due to a lack of long- term funding, these activities have had limited success, although it should be noted that GAPE has been working in the area for more than 8 years, and plans to continue working there (WREA, 2011).

In 2006, the ADB started work in the area between the two NPA’s, covering parts of Champassak and Attapeu Provinces and including Beung Kiat Ngong, for a Biodiversity Corridors Initiative (BCI), a substantial part of its Greater Mekong Subregion Core Environment Program. The BCI project started implementation in six pilot sites in Cambodia, China, Lao PDR, Thailand, and Vietnam in the period 2006 – 2009. BCI has been carried out by a partnership of government agencies, non-governmental organizations and the ADB. Its purpose is to rebuild connectivity of fragmented natural ecosystems through corridor approaches, establishing by 2015 a number of priority biodiversity conservation landscapes and corridors in the region for maintaining the quality of ecosystems and ensuring sustainable use of shared natural resources (ADB, 2009). Work for the BCI project in Lao PDR was coordinated by the national Water Resources and Environment Administration (WREA), together with PAFOs and WWF. The project included biodiversity surveying, NTFPs market analysis, land use planning and small-scale infrastructure improvements. Financing for phase one of the project ended in 2009, although up-scaling of the BCI pilot activities has been requested by Cambodia, Lao PDR and Vietnam (ADB, 2009). Work for BCI in Lao PDR is ongoing, with phase two now being implemented.

The WWF project “Improve the Management of the Xe Pian NPA” was implemented between April 2009 and June 2011. This project supported conservation activities

throughout the NPA, including the wetlands, with a focus on law enforcement, including training and equipping Xe Pian staff to respond to illegal activities.

Also, in the BCI area between the two protected areas, the IUCN Lao PDR Livelihoods and Landscapes Strategy (LLS) began in 2008. The LLS started activities with education and awareness-raising for key decision-makers from the province, in order to address the lack of recognition of the wetlands’ importance. This was followed by a series of formal and informal consultations in Pathoumphone District to develop a ‘road map’ for improving management of Beung Kiat Ngong. A District Committee for the Wetlands was established in January 2009, and field surveys on the wetlands’ boundaries, land use, biodiversity, economic values and zoning were carried out. IUCN Lao PDR facilitated further consultations in the 13 villages in and around the wetlands to identify and solve wetlands issues. Growing exploitation of the wetlands for peat, fish and NTFPs were among the concerns raised. Zoning and the development of a regulation in 2010 to govern the wetlands were completed under the LLS project. NTFPs have been another focus for LLS, which has helped local villages to carry out NTFPs planning and harvesting improvements in the Beung Kiat Ngong area. Working with the villages, the District Government and PAFO, IUCN developed and established a sustainable management and trading system for the most important non-timber forest NTFP in the province, Malva Nut, to address unsustainable use of the resource and promote local ownership.

During this period, work also intensified to prepare Lao PDR to join the international Ramsar Convention on Wetlands of International Significance. Beung Kiat Ngong was one of two sites nominated by Lao PDR acceding to the Convention. Lao PDR officially joined Ramsar in September 2010; work is now focused on implementing the requirements of the convention for the “wise use” of wetlands, including the development of management plans.

As mentioned above, though a site management plan is currently being drafted, a Regulation on Natural Resource Management for the Kiat Ngong Wetlands was approved in 2010 by the District Government and is described in chapter 2 above.

9.2 Conservation priorities/needs

Since its nomination as a Ramsar site, more management and conservation measures have been proposed for the Beung Kiat Ngong Wetlands. The priority actions listed are a compilation of ideas from the Champassak Ramsar Committee and local people collected by IUCN in the course of IUCN’s work in the area since 2008. The list also includes recommendations from the multi-sectoral group present at the 30th September, 2011 meeting in Pakse.

9.2.1 Priorities/needs:

Priorities and needs for improved management and conservation of the site include:

Completion of a management plan; gain its approval and ensure implementation; As part of the management plan, extend the Ramsar institutional structure to the khumban level.

Detailed zoning and boundaries, including creation of a buffer zone Continued awareness-raising about the importance of the wetlands, and sustainable use of natural resources. Dissemination and piloting of regulations and putting up signboards. Continued work on NTFPs, sustainable tourism, community-managed fisheries, environmental education, and so on, by organizations such as IUCN, WWF and GAPE. Projects focused on exploring the intersection between conservation measures and flood/drought control Conduct research to fill information gaps outlined: extensive biodiversity surveying; impacts of tourism and hydropower development; hydrology and soil types of the wetlands. Pilot projects on aquatic plants and peat restoration

9.2.2 Threats:

There are a number of factors (past, present or potential) adversely affecting the site’s ecological character and the sustainable use of natural resources, including changes in land and water use.

For example:

Peat extraction for fertilizer was carried out in the northern part of the wetland for several years. Although this practice has ended, it has had an impact on the wetlands, with the creation of numerous holes and the release of carbon dioxide. The holes, however, have been converted to fish ponds by local villagers. Beung Kiat Ngong's ecology and local livelihoods may be negatively affected by the potentially unsustainable harvest of aquatic resources (such as fish), wildlife and NTFPs. Prior to intervention through the LLS project, for example, Malva nut stands were being destroyed through unsustainable harvesting practices, driven by strong demand for this product. Further studies are required to determine the status of fish and NTFP stocks in and around the wetlands. Illegal hunting of wildlife and use of illegal fishing equipment remain threats in and around the wetlands. Increased number of cattle and buffalo might generate more pressure on the capacity of the wetlands. The current level of around 5,400 “grazing units” (including cattle, buffalo and elephants) indicates that the wetlands provide an important function for the local economy in this respect. As the population in the area continues to grow, this pressure will grow as well. Insufficient human and financial resources to implement regulations and management plans effectively remain an important concern for the future of Beung Kiat Ngong. As in other parts of Lao PDR, the government departments charged with managing wetlands, the environment more generally and local planning, are often under-funded and poorly equipped. This can lead to patchy implementation of laws, policies and plans. On a positive note, the Regulation on the Wetlands has already been agreed to by villages in the area and passed in 2010. In addition, it is hoped that the Ramsar Convention status of Beung Kiat Ngong will help attract and direct resources towards better management of the site.

Environmental and social issues which may be associated with tourism expansion have not been properly studied or addressed. Pathoumphone District, including the wetlands and other sites such as Phou Asa, are attracting an increasing number of tourists. The Ramsar status of Beung Kiat Ngong, along with improved infrastructure and increased tourism numbers more generally, can be expected to boost the number of visitors in the future. Further assessment of the environmental and social risks of tourism in the area is required, along with measures to ensure that negative impacts are minimized while benefits are shared among the communities of the wetlands. If well-managed, tourism can offer an important contribution to local livelihoods and the management of the site. There have been some indications that agricultural practices and expansion of agricultural lands into the wetland may pose a threat to the wetlands in the future, such as increased use of chemical fertilizers for growing rice. Further irrigation projects are also under consideration, which may result in more water being taken from the wetlands. In addition, there are concerns that expansion of agricultural land is destroying bird habitats. Although not practiced in the wetlands, aquaculture does take place nearby, requiring vigilance to prevent the introduction of invasive/non-native fish species such as tilapia into the wetlands. Despite the protection offered by the new Regulation and the site’s Ramsar status, land use change remains a potential threat. Even NPAs in Lao PDR face problems from illegal encroachment and conversion into agricultural land or plantations, or the issuance of concessions for infrastructure or mining projects within their boundaries. It has been shown that conversion of wetlands to agricultural land rarely results in increased economic benefits (see Section 7). Conversion of the remaining natural marsh areas into rice-paddy fields, or the wider conversion of nearby forestlands into plantations or other uses, must still be guarded against. Particular attention needs to be paid to any encroachment into Xe Pian NPA for logging and road construction, either illegal or technically permitted by the authorities through the bidding process. Because high district logging quotas may lead to unsustainable logging in production forests, encroachment on the NPA is a risk. It is difficult to determine whether logs come from the NPA or the production forest. This should be addressed. The impacts of hydropower development on the rivers and streams, such as the Xe Pian- Xe Namnoi (390 MW) in Attapeu and Champassak. Upgrade of existing roads, such as Route 18a and 18b, as well as new roads may also result in negative impacts on the wetlands.

10. Awareness/Understanding of Officials and the Public; and Training and Education of Target Groups and Professionals (TOT)

The cross-sectoral meeting in WREO is Pakse on 30th September, 2011, highlighted the need for educating both provincial and district officials about Ramsar boundaries and zoning. In the meeting, IUCN suggested that a priority action should be setting up a buffer zone, explaining that controls on land and resource use need to be implemented around the Ramsar site boundaries to effectively protect the site. However, many district and provincial officials were resistant to the idea because they are worried out adding too many restrictions on land and resource use and feel that management and conservation work should be focused on the Ramsar site itself first. With further discussion and education about Ramsar site zoning, it is likely that these government officials will become more open to the idea of implementing some sort of buffer zone. It may also be possible to accomplish the goals of a buffer zone, by framing the issue differently. For example, government officials may be more interested in working on creation of ‘sustainable use zone/s’.

For local people, there is also a need for awareness raising about the boundaries of the Ramsar site and regulation and a need for trainings on patrolling and organic agriculture.

These training and awareness raising needs are outlined in the table below:

Target Group Training/Awareness Raising Needs

Ramsar Committee Awareness raising on need for buffer zone/sustainable use zones

Trainings on sustainable resource use and environmental flows

District level officials Awareness raising on need for buffer zone

Khumbans/village councils Trainings on regulation, patrolling and organic agriculture

Farmers Training on organic agriculture/decreasing chemical use

Fishers Training on regulation, with emphasis on aspects related to fishing

Tourism Operators Trainings on social and environmentally responsible tourism practices; trainings on how site regulation impacts their activities

Wetland adjacent communities Awareness raising on need for buffer zone

Training on organic agriculture/decreasing chemical use

11. Linkages to international and national processes

As detailed in Chapter 2, Lao PDR is involved in a number of international conventions and processes relevant to wetlands. Conventions include: the Convention on Biological Diversity; the Ramsar Convention; and, the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). Processes and institutions include: the Mekong River Commission; the Agreement on the Cooperation for the Sustainable Development of the Mekong River Basin; the IWRM-based Basin Development Strategy; the Asian Development Bank; and, the Emerald Triangle Agreement. National processes and strategies are also outlined in Chapter 2.

Of all of these conventions and processes, Asian Development work on the Greater Mekong Subregion (GMS) on economic corridors and the Biodiversity Corridors Initiative (BCI) should be tracked in the future as these projects may have the ability to most directly impact Beung Kiat Ngong wetlands. As part of GMS’s work has included a focus on improving infastractuture such as roads, there is a risk that its future work could include infrastructure development in the vicinity of Phatoumphone district (which could potentially impact the wetlands). However, as GMS is currently planning its next phase and plans are not yet available for review, this will have to be monitored in the future. In the past, BCI has worked on biodiversity surveying, NTFPs market analysis, land use planning and small-scale infrastructure improvements in the vacanity of the Beung Kiat Ngong wetlands. If this work continues in the future, it could certainly support Ramsar implementation. Again, since plans for the next phase of the project are not yet available, this will need to be watched in the future. Depending on the details of activities planned for GMS and BCI in the future, it may be necessary for GMS, BCI and Ramsar authorities to be in close communication.

Of the conventions and processes outlined in Chapter 2, the Ramsar Convention is clearly relevant. Ramsar has also had more measurable progress than the other Rio Conventions in Lao PDR. Though there are urgent needs for continued work at Lao PDR’s two Ramsar sites (as detailed in this profile on Beung Kiat Ngong Ramsar site and the corresponding profile on Xe Champhone Ramsar site), progress to date has been substantial and occurred over a short period of time. Since Lao PDR’s formal accession to convention in September 2010, at both Ramsar sites, Provincial Ramsar Committees and Field Management Teams have been established and boundaries determined. At Beung Kiat Ngong specifically, a regulation is in place, work on drafting a site Management Plan has started and boundaries have been demarcated.

This progress can be compared to the Convention on Biological Diversity (CBD). The National Biodiversity Strategy and Action Plan (NBSAP) that was written in 2004 to plan for biodiversity conservation work until 2010, should have functioned as a baseline for progress in implementing CBD (NBSAPs are required under CBD). However, without proper indicators in place and a monitoring and reporting system in place for the many stakeholders related to biodiversity conservation, progress has been very difficult to measure. The Agro-Biodiversity Initiative (TABI) and other donor funded projects are working to improve implementation. CITES implementation in Lao PDR is similarly uneven. A Management Authority and Scientific Authority have been established, but awareness of CITES requirements among local officials, Customs officials and law enforcement is very low.

Since implementation of CDB, Ramsar and CITES are so interconnected, there is a strong need for a coordination mechanism between them. At present, monitoring, reporting and donor money has been largely uncoordinated which may to lead to inefficient use of time and resources. UNDP’s Nation Capacity Needs-Self Assessment (NCSA) project is in the initial stages of designing the next phase of their project which will include a focus on improving this coordination. NCSA has invited contributions from IUCN Lao PDR and other stakeholders. Increased coordination between these conventions should also focus on Lao PDR’s other multilateral environmental agreements (MEAs), UN Convention to Combat Desertification and UN Convention Framework Convention on Climate Change. Improved coordination in the future is expected to aid Ramsar implementation.

Finally, though the National Water Resources Strategy and Action Plan is still being drafted, it may have the potential to support Ramsar implementation in the future. Though it does not specifically mention wetlands, it does address water quality issues and flood/drought mitigation (WREA, 2010). As such, if this strategy and action plan is effectively implemented it could have support Ramsar implementation as well.

12. Resources Needed for Ramsar Site Management

As detailed in Chapter 7, though there are currently no government funds allocated specifically for Ramsar implementation or to fund the activities of the provincial Ramsar Committee and newly assigned Field Management Team, government funds provide indirect support. Salaries of all provincial Ramsar Committee members and Xe Pian and Dong Hua Sao NPAs staff are paid through their respective departments.

In addition, as explained in Chapters 4 and 9, international organizations such as GAPE, SIDA, IUCN, ADB, and WWF have indirectly supported Ramsar implementation by carrying out conservation activities. However, most of these projects (with the exception of IUCN’s work) have not been focused specifically on site management.

Resources to support site management that are needed include:

GoL staff specifically assigned to work on Ramsar site management and with local communities on patrolling. Once government restructuring is complete, the department that is assigned to manage Ramsar implementation could be requested to assign staff to manage the site. This could be modelled after the current NPA system where the District Agriculture and Forestry Office (DAFO) must assign staff to be based in the NPA. Ramsar site office. The office could store wetlands data, serve as an educational centre and hold relevant meetings. Informational signs boards to educate local people about wetlands conservation and the Ramsar site regulation Funds to support trainings/awareness raising, as outlined in Chapter 10 Funds to support drafting of Management Plan, creation of a buffer zone, and the other top priority actions outlined in Chapter 13.

13. Conclusions and Recommendations (Priority Setting, Potential Directions, and Development Strategy for Ramsar Site Management Plan)

13.1 Conclusions

Though extensive biodiversity surveys and socio-economic studies of Beung Kiat Ngong wetlands have not been carried out, it is clear that it supports the livelihoods of local people, provides important ecosystem services and is a home to key threatened and economic species. By providing agricultural land, grazing land for livestock, fish, NTFPs and income from tourism activities, the wetlands supporting a population of approximately 11,500 people from eight villages within the site and another five surrounding villages. It is also home to the Fishing Cat, leopard cat, sambar, and Malayan snail-eating turtle, which are all threatened species. In the future, additional studies should be carried out on biodiversity, peat lands, hydrology and soil types, as well as the impacts of tourism and hydropower development.

Progress on beginning implementation of the Ramsar Convention in Beung Kiat Ngong wetlands has been significant, especially considering Lao PDR only acceded to the convention in September 2010. The most notable achievements include the creation of an institutional frame work to support site management, the creation of regulation to govern the site and drafting of a Management Plan. The institutional framework is well established at the national, provincial and district levels. In the future, it will need to be extended to the village or khumban (village cluster) level. This structure will also need to be adjusted to fit into the new ministerial structure once it is finalized. The regulation has already been approved by the villages within the Ramsar site and patrolling has already started. In the future, the regulation will need to be expanded to villages surrounding the site boundary and a more comprehensive patrolling system will need to be established. At present, the draft Management Plan is not complete. In the future, it will be to be completed, critically assessed and revised before consultations can be organized to finalize and approve it.

The main restraint to further progress is a lack of financial resources. Though the Ramsar institutional structure is already in place (albeit, subject to change with government restructuring), the Ramsar committees, secretariats and focal points are almost entirely reliant on donor funds to support implementation of activities. A number of international organizations have been supporting projects in and around the site for a number of years. Though some of their projects have conducted activities closely related to wetlands conservation (e.g. setting up fish conservation zones), only IUCN Lao PDR through its Mekong Water Dialogues (MWD) project has been specifically focused on implementation of the Ramsar Convention. IUCN Lao PDR and other international organizations with an interest in the site will continue to seek out additional funds for further activities to support Ramsar implementation.

13.2 Priorities for Beung Kiat Ngong management

Of the priorities for site management laid out in Chapter 9, the highest priorities should be finalization of the management plan, implementation of the management plan, designation of buffer zones and piloting aquatic plants restoration.

Finalization of the management plan will involve: 1) review of current draft by IUCN, National Ramsar Committee and National Ramsar Focal Points; 2) revising accordingly; 54

3) khumban, Ramsar Field Management team (district), and Provincial Ramsar Committee meetings to get feedback on plan (meetings should also be organized with potential “buffer zone” villages to see how they would like to be involved in management); 4) Finalize and endorse the management plan. A short assessment of the draft Management Plan by IUCN, highlighting areas that will need to be improved before for finalization is provided in Annex 5.

Implementing the management plan will involve community education/awareness raising about wetlands conservation, the regulation and the management plan. It will also involve extending the district Field Management Team to the khumban level. Khumban can take the lead in patrolling and monitoring the site. Though there is already some basic patrolling by village militia, it is focused mostly on encroachment from outsiders. Trainings will be needed to ensure that the patrolling is comprehensive and involves enforcement of a number of restrictions on activities banned/regulated within the Ramsar site. Patrolling will need to enforce wise use of resources (even by local people). Trainings will also teach data collection and monitoring skills. Trainings for local people on reducing chemical usage in agriculture may also be required. In addition, sustainable financing mechanisms will need to be explored through discussions with partners, private business and the Ramsar committee to ensure the sustainability of conservation and management activities.

As previously mentioned, work focused specifically on creation of a buffer zone will be required. The Ramsar site will not be able to be protected without restrictions on land and natural resource use in the surrounding area. This could be accomplished with detailed zoning (sustainable use zones, seasonal fishing zones, etc). Zoning will be conducted through participatory mapping and consultations with relevant villages and kumbans around the current Ramsar boundaries. This process of involving potential buffer zone villages will begin during finalization of the management plan, when these villages and khumban will be consulted.

Finally, aquatic plant restoration should be piloted. There areas where aquatic plants have been harmed by humans (e.g. clearing plans to ease fishing). If a pilot project can determine good methods of restoring plans and show the return of plants will help fisheries, then restoration will be easily carried out by local communities in the future.

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Annex 1: Glossary

1.1 Key English terms

Assessment

“Evaluation, estimation (of the quality, value, or extent of), to gauge or judge”

Oxford English Dictionary 2008

Biodiversity

“the variability among living organisms from all sources including, inter alia, terrestrial, marine and other aquatic ecosystems and the ecological complexes of which they are part; this includes diversity within species, between species and of ecosystems.”

Millennium Ecosystem Assessment (MEA) 2005

Co-management approach

“Co-management is a participatory planning and implementation process, which includes joint decision-making of all concerned parties working towards the same goals. Every party has shares roles and responsibilities with transparency and benefit sharing.”

Department of Forestry, Ministry of Agriculture and Forestry, On the implementation of Co- Management Plan for Hin Namno National Protected Area, March 2010.

Ecosystem services

“the benefits people obtain from ecosystems. These include provisioning services such as food and water; regulating services such as regulation of floods, drought, land degradation, and disease; supporting services such as soil formation and nutrient cycling; and cultural services such as recreational, spiritual, religious, and other nonmaterial benefits.”

MEA 2005

Governance

The patterns of exercise of public power. In terms of watersheds it can relate to allocation exercise and enforcement of rights to ownership, use of and access to resources. It can also involve management practices, policing and adjudication between claims.

IUCN Integrated Wetlands Assessment Toolkit 2009

Livelihood

“Means of living, maintenance, sustenance; esp. to earn, gain, get, make, seek a livelihood”

Oxford English Dictionary 2008

Public goods

Products and services which benefit society at large. Public goods are ‘non-rival’ in the sense that one person’s consumption does not affect what is left for others, and ‘non- excludable’ in the sense that no one can be prevented from enjoying the good. Many wetland services are public goods, such as hydrological regulation services.

IUCN Integrated Wetlands Assessment Toolkit 2009

Ramsar Convention on Wetlands of International Importance

The Convention on Wetlands, signed in Ramsar, Iran in 1971, is an intergovernmental treaty which provides the framework for national action and international cooperation for the conservation and wise use of wetlands and their resources. There are presently 158 Contracting Parties to the Convention, with 1,759 wetland sites, totalling 161 million hectares, designated for inclusion in the Ramsar List of Wetlands of International Importance.

“The Convention’s mission is the conservation and wise use of all wetlands through local, regional and national actions and international cooperation, as a contribution towards achieving sustainable development throughout the world”

Ramsar COP8 2002

Values and Valuation

“the relative status of a thing, or the estimate in which it is held, according to its real or supposed worth, usefulness, or importance”

Oxford English Dictionary 2008

Value is the subjective estimation of worth. Different people value things differently for a range of personal reasons. However, in order to compare values — which becomes important when decisions over resource management must be made — value may be estimated in terms of some standard, medium of exchange or monetary value, and valuation methods are used to do this. Note that value and price are different as price involves a market bargaining and exchange situation.

IUCN Integrated Wetlands Assessment Toolkit 2009

Wetlands

“areas of marsh, fen, peatland or water, whether natural or artificial, permanent or temporary, with water that is static or flowing, fresh, brackish or salt, including areas of marine water the depth of which at low tide does not exceed six metres”

Article 1.1 of the Ramsar Convention on Wetlands

Wetlands may be further categorized into freshwater and coastal zones.

Wetlands inventory

“the collection and/or collation of core information for wetland management, including the provision of an information base for specific assessment and monitoring activities.”

Ramsar Resolution VIII.6

Wise use of wetlands

“[Wetlands’] sustainable utilization for the benefit of humankind in a way compatible with the maintenance of the natural properties of the ecosystem”

Ramsar COP3 1987

The Ramsar Scientific and Technical Review Panel (STRP) has proposed updating the definition to: “the maintenance of their ecological character within the context of sustainable development, and achieved through the implementation of ecosystem approaches.”

1.2 Key Lao terms

Nong: lake

Kout: pond

Beung: wetland

Din bolaven nam/din tham: wetland ang: reservoir jee-ow: very small pond khumban: village cluster

Naiban: head of village

Annex 3: Contact Information for key people involved in Ramsar site management

Provincial Ramsar Committee

No. Name Position/Title Office Mobile No. Email

1 Mr. Bounkham Photisan Director WREO 22266661

2 Mr. Noukone Siphonepoumy Deputy of Director WREO 55730512

3 Mr. Visouk Tanchanthoun Director NPA management office 22438888

4 Mr. Khambai Sisouvong Deputy of Director Head of livestock and fishery 55432100 office

5 Mr. Khamphai Luanglath Deputy of Director Forest division, PAFO 55359916

6 Mr. Sonpaserth Soukasuem Deputy of Director Provincial tourism office

7 Mr. Chanthalay Sungsimsak Director Land management office 55430478

8 Mr. Vilavong Vannalath Field work coordinator of IUCN 55735135 MWD

Field Management Team (district)

No. Name Position/Title Office Mobile No. Email

1 Mr. Thatsaphone Outemtamala The Head Pathomphone district 98567187 Governor’s office

2 Mr. Phoumsai Phitsanukan Director of Division DAFO 99512288

3 Mr. Douangvilay Xaisimueng Deputy of Division Land use and Environment 55635930 office

4 Mr. Aone‐ta Bouaviset Xe Pain NPA management office

5 Mr. Bung‐aone Khamchan Deputy District Tourism office

6 Mr. Bounhom Siphandon Deputy District Education office 56048062

7 Ms. Phetsamone Vongsavath Deputy District Women union 55768325

8 Mr. Khekkeo Vongpasirth Technical staff District rural development 98206426 Office

Annex 4: Identifying Key Actors for the Prioritized Work Areas Recommended in Chapter 13

Priority Key Action(s) Key Actor(s)

Complete 1. Assessment of draft 1. IUCN Lao PDR; National management plan Management Plan Ramsar Committee; National Focal Points

2. Provincial Ramsar 2. Revise according to feedback Committee with support from IUCN Lao PDR

3. Provincial Ramsar 3. Organize meetings with Field Committee and IUCN Lao Management Team, khumban PDR field officer and Provincial Ramsar Committee to get feedback on plan and revise accordingly

4. Organize consultations with khumbans outside of the site 4. Provincial Ramsar boundary to get their feedback Committee and discuss how/if they will be involved in site management (discuss their interest in being part of a buffer zone)

5. Finalize and Endorse 5. Provincial Ramsar Management Plan Committee

Implementation of 1. Trainings on patrolling and 1. Led IUCN Lao PDR, Management Plan monitoring Provincial Ramsar Committeee, District Ramsar Committee and field work team. Local volunteers and militia participate.

2. Khumban meetings to 2. Khumban meetings disseminate contents of the facilitated by IUCN Lao management plan and review PDR, Provincial Ramsar regulation again. Committeee, District Ramsar Committee and

field work team.

3. Trainings on environmental 3. Led by IUCN Lao PDR, flows and natural resource for Provincial Ramsar management Committeee, District Ramsar Committee and field work team for village militia, khumban/village leaders and interested local people.

4. Trainings on reducing chemical 4. Organized by Field use in agriculture Management Team for local people.

5. Design sustainable financing mechanism 5, Meetings with all Ramsar administration, private companies and international organizations.

Create buffer 1. Participatory mapping and 1. Organized by Field zone/do detailed consultation with potential buffer Management Team with zoning zone villages support international organization.

Engage khumban 1. Include them on participant list 1.khumban authorities and authorities in Ramsar for Field Management team, with Field Management Team Field Management future plan to include heads of team khumban on Field Management Team.

Awareness-raising 1. Organize village/khumban 1 & 2. Meetings about the importance meetings on this topic. organized/materials of the wetlands, prepared by Field sustainable use, and 2. Prepare and distribute Management team with zoning educational materials. additional support international organization; Local people participate

Pilot aquatic plants 1. International Organizational 1. International restoration with experience in this area seeks organization with support funds and design pilot project from District Field Management team, khumban and local people.

Further -Sign boards about key parts of -District Field Management 65

dissemination of the regulation Team regulation

Continued work on -International organizations who - International organizations NTFPs, sustainable have worked in the area in the such as IUCN, WWF and tourism, community- past, continue their activities or GAPE in partnership with managed fisheries, seek new funds to expand relevant government office. and environmental activities. education.

Continue filling 1.International organizations seek 1. International organization information gaps funds for additional studies with support from about the site. government partner 2. Through new monitoring system, more data is available. 2. Patrolling/monitoring teams

Carry out projects 1. International organizations who 1.International focused on exploring have worked in the area in the environmental organization the intersection past, continue their activities or in partnership with between seek new funds to expand Department of Irrigation. conservation activities. measures and flood/drought control

Annex 5: Assessment of Draft Beung Kiat Ngong Ramsar Site Management Plan:

Recommended revisions to October 2011 Draft Management Plan:

1. Restructure to fit in the Ramsar structure:

The present report has a different structure than the one prescribed in the Ramsar guidelines (see Resolution VIII.14 of the 8th Meeting of the Conference of the Contracting Parties to the Convention on Wetlands (Ramsar, Iran, 1971) Valencia, Spain, 18-26 November 2002). We will need to change the structure of the current draft plan to fit in the international Ramsar guideline for management plans.

2. Complementary assessment and evidences of ecological values, better link with the baselines:

A strength of the draft is that it includes recommendations and lays out future actions based on information from the participatory work with the villagers. However, in some areas, these recommendations are not justified through links to former or ongoing studies and conservation threats are not clearly laid out. Evidence from the Ramsar baseline report, Ramsar Information sheet and this profile should be linked to targets, goals and measures provided in the Management Plan. This will make clear why and how we chose the targets and goals in the Management Plan. This will also make clear where the gaps in the assessment are. This should include links to existing biodiversity assessments, women’s studies and government planning on land use and irrigation.

3. Mapping of priority zoning for each item:

The location of different threats, values and activities are not well described in the draft. GIS points should be used to map and identifythe priorities areas and to assess the different land types where conservation activities will be carried out.

4. Activities, timeline and budgeting:

Future activities/priority actions are not described in enough detail. Steps for carrying out activities in the the field, key actors, costs and timeframe should be detailed This will help us to identify clear annual budgetary needs and design annual work plans.

5. Assess compatibility of management plan targets with Ramsar principles :

Some activities identified in the meeting with local communities may be not compatible with Ramsar goals and targets. We have to assess the compatibility of each action to make sure this management plan will fit into the Ramsar convention.

6. Integrate with MWD activities :

Since the Mekong Water Dialogue workplan for 2011 includes various activities at the Ramsar site (e.g., peatland and aquatic plant restoration), these activities should be addressed in the Management Plan to ensure that they coordinate with the overall conservation plan for the site. . All activities carried out on Beung Kiat Ngong should be included in the management plan and justified by its targets and goals.

7. Village feedback:

The final Management Plan draft will have to be presented to the villagers and local community to solicit their feedback. It will then have to be revised accordingly.