Quality Criteria and Standards As a Basis for the Evaluation of Large-Scale Protected Areas in Germany
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Quality criteria and standards as a basis for the evaluation of large-scale protected areas in Germany Volker Scherfose Abstract Protected areas are one of the key strategies to conserve the biological diversity in Germany. Shortcomings in the management efficiency of large-scale protected areas have impeded the achievement of the goals set for each protected area as well as the national conservation targets. In order to address this weakness, comprehensive evaluation systems based on quality criteria and standards have been developed for national parks, nature parks, and biosphere reserves in Germany. These monitor the status and trends of large-scale protected areas in a broad range such as framework conditions, natural conditions, conservation measures, institutional issues, education and research activities. The evaluation systems help identify weaknesses and enable the implementation of corrective measures and adjustment in the management strategies. In this paper the criteria systems are reviewed based on the experience of recent evaluations of large-scale protected areas in Germany and comparative analyses. Suggestions are presented towards the further refinement of the sets of criteria. 1 Introduction The last century has seen a steep worldwide increase in the area covered by protected areas (Figure1). Despite these international efforts, the global trend of declining biodiversity continues unabated. This underlines that not only the extent of protected areas, but also their quality and management efficiency need to be enhanced in order to achieve the goal of stopping the loss of global biological diversity. It also underlines that protected areas need to be complemented by integrated conservation strategies on the vast areas outside of protected areas. In Germany the number of protected areas, and in particular of large-scale protected areas, has also been growing since the adoption of the CBD programme of work on protected areas in 2004. As a result, two national parks (the Eifel and Kellerwald-Edersee National Parks), three biosphere reserves (the Bliesgau, Schwäbische Alb and Karstlandschaft Südharz Biosphere Reserves) and a number of nature parks were established. Despite this positive development, the status and number of endangered species and habitats have not changed fundamentally. For example, about 70 % of all types of habitats in Germany continue to be endangered (Riecken et al. 2006). The status and trends of the populations of breeding birds is mixed. While the populations of rare species, such as the common crane, the white-tailed eagle, the black stork, the eagle owl or the bluethroat, are growing, the populations of once common species, such as the snipe, partridge, sky lark and lapwing, have been included in the Red List due to their rapid decline in numbers (Südbeck et al. 2007). Quality criteria and standards as a basis for the evaluation of large-scale protected areas in Germany Figure 1: Global increase in the cumulative area covered by protected areas (based on Chape et al. 2008) Already during the 1990s it emerged that the efficiency and quality of protected areas in Germany was inadequate and needed to be improved. For example, an assessment on the status of German nature conservation areas found only 18% of the protected areas in good condition, while 56% were in medium and 26% in bad condition (for further details see Haarmann & Pretscher 1993). Due to these shortcomings, it has been widely accepted that systems to systematically monitor and evaluate the management efficiency of German protected areas need to be put in place in order to identify weaknesses at an early stage and guide the adjustment of management strategies resulting in an overall improvement of the quality of the protected areas in Germany. In order to address this gap, the Government of Germany initiated the development of evaluation systems to periodically assess the status, trends and management efficiency of large-scale protected areas. Thus, sets of quality criteria were selected for national parks and nature parks and the existing national evaluation criteria for UNESCO biosphere reserves were revised based on a thorough review (Scherfose 2004). This was done in a consultative manner and through convening several workshops focusing on the efficiency of the management of protected areas (Wörler et al. 2006, Stolton 2008). The effort by the German Government to establish national evaluation systems for large-scale protected areas was also a response to its international commitments under the CBD. The CBD programme of work on protected areas requires its Member States to set up monitoring and evaluation systems for their protected areas based on quality criteria and standards according to the following targets (COP 7; Decision VII/28): • By 2010, frameworks for monitoring, evaluating and reporting to assess the management efficiency of protected areas at site, national, regional and transboundary levels are adopted and implemented by Parties (Target 4.2). • By 2010, national and regional systems are established to enable effective monitoring of the extent, status and trends of protected areas at national, regional and global levels (Target 4.3). 2 Quality criteria and standards as a basis for the evaluation of large-scale protected areas in Germany In the following, we will present an overview of the criteria based evaluation systems, which were set up to assess and improve the management efficiency of large-scale protected areas in Germany. 2 The system of large-scale protected areas in Germany The German system of protected areas basically comprises seven different categories, including national parks, nature conservation areas, sites of the EU habitat directive, sites of the EU birds directive, biosphere reserves, landscape protection areas and nature parks. These categories pursue different goals and vary significantly in size, number and status of protection (see also Table 1). Table 1: Overview of the categories of protected areas in Germany for 2012; large-scale protected areas are highlighted (‘!!!’: strong protection; ‘!!’: medium protection; ‘!’: weak protection) Source: www.bfn.de/0308_gebietsschutz.html and www.bfn.de/0316_natura 2000.html Category Quantity IUCN Degree of Proportion of the land category protection area of Germany National parks 14 II and V !!! 0.54 % National Natural 0 III ? 0 % Monuments * Nature conservation areas 8,501 IV !!! 3.7 % Sites of EU habitat directive 4,619 !! 9.3% Sites of EU bird directive 740 !! 11.2 % Biosphere reserves ** 16 (15) !! 3.4 % Landscape protection areas 7,327 V ! 28,3 % Nature parks 103 V ! 26,8 % * - new category since 2010 ** (15) – number of biosphere reserves acknowledged by UNESCO Large-scale protected areas in Germany comprise national parks, biosphere reserves and nature parks as highlighted in Table 1. Their geographic distribution is depicted in Figure 2. These three categories pursue different purposes. While nature parks are mainly established for human recreation and enjoyment, national parks pursues the main purpose of setting aside an area for natural processes without any human disturbance. Biosphere reserves instead are areas that integrate nature conservation with rational use of natural resources and education with the aim to achieve a balanced relationship between man and nature. Biosphere Reserves are designated by UNESCO’s Programme on Man and the Biosphere (MAB). Table 2 provides an overview of the key characteristics of the large-scale protected areas in Germany, which have been slightly modified during the last decades. While nature parks were set up as early as 1956, the first national park (Bavarian Forest) was designated in 1970 and many biosphere reserves were designated much later. After the reunification of Germany in 1990 the system of large-scale protected areas was quickly expanded to protect the vast areas with high value for the conservation of nature in the eastern part of Germany. An overview of the current status of national parks, biosphere reserves and nature parks is available (Scherfose 2009, German MAB National Committee 2005 and VDN 2009). 3 Quality criteria and standards as a basis for the evaluation of large-scale protected areas in Germany Figure 2: Map of all large-scale protected areas in Germany (Green: national parks; red: biosphere reserves; hatched: nature parks) 4 Quality criteria and standards as a basis for the evaluation of large-scale protected areas in Germany Table 2: Overview of the key characteristics of large-scale protected areas in Germany Category Size (ha) Main purpose Legal requirements National 3,000 – To enable undisturbed natural Requirements of a nature parks 441,500 processes and dynamics on at least conservation area are met in 75% of the area a large part of the national park Biosphere 11,700 – To foster the integration of Requirements of a nature reserves 443,100 sustainable land management, conservation area are met in conservation of cultural landscapes a large part of the biosphere with high species and habitat reserve; otherwise, diversity and the conservation of requirements of a landscape agro-diversity protection area are met. Nature parks 11,151 – To promote sustainable tourism / Combination of landscape 374,000 recreation, nature conservation, protection and nature environmental education, conservation areas. sustainable regional development and sustainable land use Like for the protected areas in general, borders of large-scale protected areas partly overlap. For example,