An Integrated Framework and Guidelines for Avoiding, Mitigating and Compensating for Wetland Losses

An Integrated Framework and guidelines for avoiding, mitigating and compensating for wetland losses (Resolution XI.9, 2012) CONTENTS 1. Introduction 4 2. Structure of the Framework 7 2.1 The elements of the Framework 4 2.2 Definitions of key terms used in the Framework 5 3. Deciding on appropriate responses to wetland loss and degradation 8 3.1 Avoiding wetland loss and degradation 8 3.2 Applying risk-based approaches 8 3.3 Selecting responses for all wetlands 9 3.4 Additional responses for Ramsar Sites 16 3.5 Additional responses for sites that qualify for Ramsar Site designation 18 4. Principles and guidance for avoiding, mitigating and compensating for 19 wetland losses 4.1 Introduction 19 4.2 Describing the ecological character 19 4.3 Monitoring and early warning indicators 20 4.4 Avoiding change in wetland ecological character 22 4.5 Mitigating for loss of wetland ecological character 23 4.6 Compensating for loss of wetland ecological character 24 Wetland restoration as a response option Wetland creation as a response option Applying “no net loss” policy Mitigation banking and biodiversity offsets 4.7 Monitoring and verification of outcomes of mitigation, compensation and 29 restoration activities 4.8 Reporting obligations 30 1. Introduction 1. This integrated framework and guidance has been developed by the Ramsar Convention’s Scientific & Technical Review Panel (STRP) in response to the request from the Contracting Parties in Resolution X.10 (2008) to “develop guidance on mitigation of and compensation for losses of wetland area and wetland values, in the context of Resolution X.16 on A Framework for processes of detecting, reporting and responding to change in wetland ecological character, including lessons learned from available information on implementation of ‘no net loss’ policies, the ‘urgent national interest’ test, and other aspects relating to situations in which Article 2.5 and 4.2 and/or Resolution VII.24 are relevant”. 2. The starting point for understanding mitigation and compensation for wetland losses is the imperative to seek to avoid wetland losses (or degradation) in the first instance. This Avoiding wetland losses, page 2 imperative to avoid wetland losses applies to all wetlands and is underscored in the Ramsar Convention text and Resolutions subsequently adopted by the Contracting Parties, including the Strategic Plan 2009-2015 (Resolution X.1, 2008). 3. The preamble of the Convention text states that “wetlands constitute a resource of great economic, cultural, scientific, and recreational value, the loss of which would be irreparable” and that the Contracting Parties desire “to stem the progressive encroachment on and loss of wetlands now and in the future”. Hence avoiding further wetland losses has been the overall objective of the Ramsar Convention since 1971. 4. Article 3.1 of the Convention mandates that Contracting Parties “promote the conservation” of Ramsar Sites. To that end, Article 3.2 of the Convention emphasizes maintaining the ecological character of Ramsar Sites, providing that: Each Contracting Party shall arrange to be informed at the earliest possible time if the ecological character of any wetland in its territory and included in the List has changed, is changing or is likely to change as the result of technological developments, pollution or other human interference. Information on such changes shall be passed without delay to the organization or government responsible for the continuing bureau duties [i.e., the Ramsar Secretariat] specified in Article 8. 5. Article 4.2 states that if a Contracting Party invokes “its urgent national interest” to delete or restrict a Ramsar Site’s boundaries, then “it should as far as possible compensate for any loss of wetland resources”. Although the Convention contemplates compensation in such a scenario, the overriding and primary duty (in light of Article 3 and the rarity with which Contracting Parties have formally invoked urgent national interest) is to maintain the ecological character of Ramsar Sites and avoid the need for compensation in the first place. 6. Goal 2 of the Strategic Plan 2009-2015 recognizes “those internationally important wetlands that have not yet been formally designated as Ramsar Sites but have been identified through domestic application of the Strategic Framework or an equivalent process” and calls for Ramsar guidance on the maintenance of ecological character to be “applied with a priority upon recognized internationally important wetlands not yet designated as Ramsar Sites.” Accordingly, the principle of maintaining ecological character and avoiding wetland losses applies to those sites as well. 7. With respect to all wetlands, Article 3.1 states that “Contracting Parties shall formulate and implement their planning so as to promote . as far as possible the wise use of wetlands in their territory.” Resolution IX.1 Annex A (2005) linked the concepts of wise use and ecological character such that the present definition of “wise use” of wetlands is: “the maintenance of their ecological character, achieved through the implementation of ecosystem approaches, within the context of sustainable development.” Thus, in this context as well, the Contracting Parties have recognized a duty to avoid wetland losses. Avoiding wetland losses, page 3 8. Resolutions and Recommendations of the Conference of the Parties (COP) that discuss mitigation and compensation for wetland losses uniformly emphasize the need to avoid wetland losses in the first instance. These consistently recognize a three-stage approach to responding to threats to wetland ecological character: first, avoidance; second, if that is not possible, mitigating (or minimizing) loss; and third, compensating for any remaining loss (see Box 1). Box 1. Ramsar Resolutions and Recommendations which recognize the three-stage sequence of avoiding, mitigating (or minimizing), and compensating for wetland losses Recommendation 2.3 (Annex) (1984): national policies should include “provision of measures to mitigate or exclude any adverse effects of wetland transformation, including compensation measures, if transformation of wetlands is planned”. Resolution VII.24 (1999): “effective wetland protection involves the conservation of wetlands as a first choice within a three-step mitigation sequence, including avoidance, minimization, and compensation, the latter only as a last resort”. Resolution X.12 (2008): “to avoid negative impacts, and to mitigate unavoidable effects throughout the supply and production chain”. Resolution X.17 (Annex) (2008): “Remedial action can take several forms, i.e., avoidance (or prevention), mitigation (by considering changes to the scale, design, location, siting, process, sequencing, phasing, management and/or monitoring of the proposed activity, as well as restoration or rehabilitation of sites), and compensation (often associated with residual impacts after prevention and mitigation). A ‘positive planning approach’ should be used, where avoidance has priority and compensation is used as a last resort measure.” Resolution X.19 (Annex) (2008): “avoid, minimize or compensate (for example, through conservation offsets) possible negative effects on wetlands of activities within river basins”. Resolution X.25 (2008): “avoid negative impacts, and where such avoidance is not feasible, to apply as far as possible appropriate mitigation and/or compensation/offset actions, for example through wetland restoration”. Resolution X.26 (2008): “ensure that impacts on wetland ecosystems and their ecosystem services are avoided, remedied or mitigated as far as possible, and that any unavoidable impacts are sufficiently compensated for in accordance with any applicable national legislation”. 9. Although many COP Resolutions emphasize the concepts of avoiding, mitigating, and compensating for wetland impacts, besides remarks in Resolution IX.6 on contemplating restriction of the boundaries of a designated Ramsar Site, Contracting Parties have not yet adopted guidance concerning when and how to make the choice between different response options concerning wetland losses – that is, when it is appropriate to conclude that avoidance is not possible and thus move to considering mitigation and compensation options. Neither has the available Ramsar guidance clearly linked each response option to supporting implementation once it has been chosen. Avoiding wetland losses, page 4 10. This Framework has been prepared to provide guidance to Contracting Parties on selecting the appropriate responses to actual or potential wetland loss, and to identify available guidance for implementing each response. 2. Structure of the Framework 2.1 The elements of the Framework 11. Throughout this Framework, the term “wetland loss” is taken to cover both loss of wetland area and/or the loss or degradation of the ecological character of a wetland, regardless of whether or not there is any change to its overall area. 12. The Framework follows the basic three-stage approach set out in the preamble to Resolution VII.24 and other Resolutions: i) avoidance of wetland loss, if possible; ii) then in situ mitigation (minimisation), if avoidance is not possible; and finally iii) compensation for any remaining wetland loss – which usually, but not always, takes some form of ex situ action. 13. A key precursor step to choosing appropriate response options is the establishment of a baseline condition describing the ecological character of the wetland. (For guidance on describing ecological character,

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