CUBA - PROTECTED AREAS - CONCEPT AND PDF B - final submission

UNITED NATIONS DEVELOPMENT PROGRAMME GLOBAL ENVIRONMENT FACILITY PROPOSAL FOR PIPELINE ENTRY AND PDF B FUNDING Country Focal Area Operational Programme Project Title Duration Funding Requested PDF B Full Project (Estimates) Phase One (5 years) Republic of Cuba Biological Diversity Cross Cutting: OP# & [Freshwater and Forest Ecosystems] Strengthening the National System of Protected Areas PDF B 12 months Full Project 10 Years, Divided into Two Phases US $ 421,450 Total US $ 148,278 GEF US $ 273,172 Government of Cuba US $ 16-20 US $ 7-10 US $ 9-10 million - Total million - GEF million in co-financing from the Government of Cuba, UNDP, United Nations Foundation/ UNDP, WWF and other donors (to be confirmed) Phase Two (5 years) US $ 21-27 US $ 7-9 US $ 14-18 million – Total million -GEF million in co-financing from the Government of Cuba, UNDP, WWF and other donors (to be confirmed) Requesting Agency Executing Agency Country Eligibility Block A Grant Awarded Council Submission UNDP Ministry of Science, Technology & Environment Cuba Ratified the CBD in 1993 Not requested November 2001 I: SUMMARY The Cuban archipelago harbors a rich and globally significant storehouse of biodiversity, acclaimed for its species richness, habitat diversity and biological distinctiveness Although Cuba has made great strides in insulating biodiversity from humaninduced threats in recent years, further efforts are needed to safeguard the integrity of natural habitats The proposed project would strengthen Cuba’s National System of Protected Areas (SNAP) as a cornerstone of the nation’s efforts to protect flora and fauna in situ The project will focus on the management of strictly protected areas (PAs), concentrating on terrestrial ecosystems It is proposed that the project be divided into two phases, each with a five year duration A two-tier initiative is planned for phase one comprising field-based interventions to remove threats to biodiversity, which will account for the bulk of project activities, and umbrella support for capacity development At a field level, activities would focus on strengthening conservation operations in no more than six PAs, strategically selected to capture the major terrestrial ecoregions represented in Cuba and the spectrum of management challenges facing the PA estate This component would provide a means of testing and adapting management approaches, and establish the know-how to manage the PA network Accompanying capacity development interventions would strengthen policy coordination, planning, regulatory controls, monitoring and reporting functions, support training and impart awareness of conservation values — thus reinforcing the institutional foundations of SNAP A follow on phase would extend conservation management to other globally outstanding protected areas, ensuring that the best practices established in phase one are comprehensively applied, as well as connect protected areas by establishing corridors between priority sites II: LINKS TO NATIONAL PRIORITIES, ACTION PLANS AND PROGRAMMES Cuba has adopted a progressive policy and legal framework for biodiversity conservation that reflects its obligations under the Convention on Biological Diversity as well as other international treaties to which it is party, including the World Heritage, CITES and RAMSAR Conventions The Ministry of Science, Technology and Environment (CITMA), established in 1994, is charged with regulating and coordinating environmental management The National Center for Protected Areas (CNAP) was created within the Ministry in 1994 to execute responsibilities for protected areas Law 81 on Environment, passed in 1997, establishes enabling legislation for environmental management The Law vests CITMA with specific responsibilities for directing and controlling protected areas in collaboration with other relevant institutions, including the Ministry of Agriculture (MINAG), Ministry of Fisheries (MIP) and Ministry of the Interior (MININT) The Government created a National System of Protected Areas in 1997, and enacted legislation (Decree Law 201) giving the System legal backing in 1999 The Law prescribes management categories, allowable activities, and regulations for protected areas and establishes an approval mechanism for site establishment The Government prepared a Biodiversity Country Study in 1998 which provides an overview of the status of biodiversity across the country A National Biodiversity Strategy and Action Plan (NBSAP) was completed in 2000 with financial support from the GEF The Plan elaborates the pillars of Cuba’s conservation strategy, and provides an agenda for action Eleven major objectives are specified, six of which bear directly on the scope of this initiative: i Establish a representative network of protected areas to conserve natural habitats; ii Strengthen the legal framework for conservation by drafting specifications to Laws; iii Reinforce institutional capacities for conservation at all levels of administration; iv Enhance capacities to monitor and evaluate the status of biodiversity, including by strengthening scientific research capabilities, and data management systems; v Develop integrated policies, strategies and programs for conservation and development; vi Impart public awareness of ecological values and encourage citizen participation in conservation The Ministry of the Interior manages the National Forest Guard, and assists with the enforcement of Protected Area and other conservation specific regulations under an Agreement with CINAP and MINAG III: PROJECT CONTEXT Global Significance of Biodiversity The Cuban archipelago is located in the Greater Antilles and comprises 4,196 islands and keys The main island (Cuba), which stretches 1,250 km from East to West, is fringed by four island groups: Los Colorados and Jardines del Rey to the North and Jardines de la Reina and Los Canarreos to the South (see map in annex 4) The archipelago covers an area of 110,921 km2, accounting for 89% of the total surface area of the Antilles Much of the land area consists of wide plains, which cover some 79 % of the total land surface The remaining land area encompasses four mountain ranges: Cordillera de Guaniguanico, Sierra Maestra, Macizo de Guamuhaya, and the Montañas de Nipe-Sagua-Baracoa The highest point is 1,974 meters above mean sea level Five terrestrial ecoregions are recognized, namely Cuban Moist Forests, Cuban Dry Forests, Cuban Wetlands 2, Cuban Pine Forests and Cuban Xeric Shrub All but the last ecoregion are ranked amongst the highest priorities for conservation at a regional scale on account of their high species richness, endemism and vulnerability (Dinerstein et al, 1995) These ecoregions may be divided further into bio-geographic zones (East, Central and Western Cuba) and 39 floristic districts (Vales et al 1998 –see Annex 2) Cuba has the highest species diversity in the West Indies, with over 6,500 species of higher plants recorded, possibly 2.2% of the world total, 350 species of birds, including many migratory species, 147 species of reptiles and amphibians, 42 of mammals and perhaps as many as 13,000 species of invertebrates Much of the biota is unique: for instance, Cuba harbors the world’s smallest bat (the Butterfly Bat: Natalus lepidus), frog (Eleutherodactilus iberia), bird (The Bee Hummingbird: Mellisuga helenae) and scorpion (Microfityus fundorai) Over 50% of the flora and 32% of the vertebrate fauna are endemic to Cuba Endemism is particularly high amongst the vascular plants and herpetofauna although it is also significant amongst some other taxonomic groups, including for instance, the spiders and mollusks Over 75% of the endemic biota is now threatened, and 36% classed as globally endangered (ibid)3 As in many small islands, many Cuban plants and animals have naturally localized distributions and small source populations, being restricted to small patches, such as a single mountain range Habitat loss within these rangelands threatens these species with global extinction Other species, once widespread, have been extirpated from much of their former ranges For instance, the Cuban Crocodile (Crocodylus rhombifer) is now found only in the Zapata swamps in southern Cuba, and the unique Almiquí or Cuban Giant Shrew (Solendon cubanus), an endangered insectivore considered a ‘living fossil, is found only in montane rain forests in the country’s North Eastern wildlands Cuba also provides an important refuge for migrating birds in the boreal winter, particularly passerines, raptors and waterfowl, harboring the largest Caribbean populations of many species Several of these species have restricted winter ranges, centered on Cuba Loss or degradation of these areas In a separate study, Cuba’s freshwater marshes were ranked as Regionally Outstanding (Olson et al, 1998) Cuba’s Zapata wetland complex comprises one of the most bio-diverse marshes in the Caribbean Cuba contains ecoregions in the Greater Antilles, ranked by WWF as one of 233 Priority Ecoregions globally (WWF 1999), and is also listed as an Endemic Bird Area by Birdlife International (Stattersfield 1998) The insular Caribbean islands, including Cuba, are listed as one of 27 Global Conservation Hotspots (Mittermeier, 1999) These rankings are indicative of Cuba’s global conservation significance could cause the extirpation and possible extinction of sub-species and races of these birds Finally Cuba harbors the largest populations of a number of extant, non-endemic endangered or vulnerable birds, including the Plain Pigeon (Columba inornata), which is endangered Clearly, the continued survival of a host of species, both endemic and non-endemic, hinges on the preservation of their habitat underscoring the importance of Cuba’s protected areas Threats to Biodiversity Natural forests cover around 14% of Cuba’s total land surface and freshwater wetlands for some 8% of the surface area Anthropogenic disturbances, particularly in the nineteenth and early twentieth century have resulted in large-scale alteration of the natural landscape, with a subsequent loss of habitat and of constituent biodiversity Cuban biologists estimate that, since 1600, some 960 plant species and over 250 vertebrate species have either been extinguished, or rendered endangered, threatened or vulnerable This equates to 15% of the original flora and 41% of the vertebrate fauna (WWF 1997) In the face of these trends, the management of remaining natural habitats for conservation purposes and rehabilitation of surrounding landscapes is of the essence Recognizing this, the Cuban Government has made a concerted attempt over the past decade to protect natural habitats, and threats to many protected areas at least, appear to have declined in the course of the past six years Nevertheless, a number of threats persist—their magnitude and determinants varying greatly from area to area The main threats to terrestrial biodiversity include habitat loss, over harvesting of some species, water pollution, bio-invasion and visitor use and infrastructural development a Loss of Habitat: Habitat loss has historically been spurred by expansion of the agricultural frontier, both for the cultivation of sugar cane, tobacco and other cash crops, and for cattle ranching The rate of expansion of large and medium-scale agriculture into wildlands has diminished in recent years, and the protected area estate is no longer threatened with permanent land conversion, although the threat endures outside the boundaries of some PAs However, shifting cultivation occurs in several parks, particularly in mountain areas, as is the case of the globally important Humboldt National Park in Eastern Cuba, where repeated slash and burn is leading to forest degradation The Government has begun to address the threat posed from the expansion of shifting cultivation through encouraging agro-forestry and other conservation friendly farming systems suitable for upland forest environments To complement this effort, conservation objectives will need to be nested within agricultural sector strategies with sustained investment in integrated land management and policy and programmatic coordination b Over Harvesting of Wild Resources: The harvest of fuelwood, timber, wood stems (primarily for the tobacco industry), certain non-timber forest products (particularly ornamental orchids, air plants and cacti) and fauna has contributed towards the past degradation of forest ecosystems Several established and proposed protected areas face pressures from over harvesting (i.e the Guanahacabibes and Desembarco del Granma National Parks) Although harvests of wild resources for subsistence purposes not on the whole seriously threaten the population viability of target species, gradual commercialization of resource uses poses a threat in some cases Cuba signed CITES in An additional 7% of the territory is covered in forest plantations Logging no longer poses a threat to protected areas in Cuba A new Forestry Law was passed in 1998 (Law 85), classifying forests (including natural forests and plantations) for conservation, timber 1990 and has since made a sustained effort to manage the trade in native wildlife Controls have been successful for some species, including Cuba’s colorful land snails, but the Cuban Parrot, Crocodiles and some mollusks are still collected and under pressure The international trade in plants and animals does not constitute a significant threat, although vigilance is needed as pressures will almost certainly accelerate over time c Pollution: The pollution of rivers and streams, mainly by the sugar industry, has led to the contamination of wetlands country-wide While point source pollution has decreased in recent years, following investment by the Government in pollution abatement schemes, the threat of water pollution remains a problem in some areas such as in Delta Cauto Fauna Refuge, and to a much lesser extent in the large Zapata wetlands complex d Invasive Species: Introduced plants and animals, including the Indian Mongoose (Herpestes auropunctatus), dogs, cats and feral pigs prey on wildlife such as the Almiquí, ground pigeons, reptiles and other species This threat is a particular problem within parts of the Cuban Moist Forest Ecoregion Invasive plants, such as casurina (Casuarina equisetifolia), Cayeput (Melaleuca leucadendron), Marabu (Dichrostachis cinerea) and Juniperus sp., pose a problem in other areas by out-competing native flora While, there has been some investment in controlling invasive plants on agricultural lands, there has been limited investment in the control of invasive species within the bounds of protected areas, and financial and technical support is needed to establish the local know-how e Visitor Use and Infrastructural Development: The tourism sector has witnessed a development boom in Cuba in recent years following active promotion of and investment in the industry Some two million foreign tourists visit Cuba each year, up from less than one million five years ago Tourists travel to Cuba primarily to visit its beaches and sample its culture, but a gathering number of visitors are taking the opportunity to also visit protected areas during their stay Given that the sector is expected to grow rapidly in coming years (perhaps by as much as 15% per annum), such visitation, and associated infrastructural development poses a threat to the integrity of protected areas An investment in land use planning, visitor education and other aspects of visitor management within and adjacent to protected areas is urgently needed to contain these pressures Although carefully managed nature-based tourism has the potential to create alternative and conservation compatible sources of rural livelihoods, so diminishing threats stemming from many of the afore-mentioned sources, ad hoc developments will almost certainly exacerbate these other pressures, and so cause habitat deterioration Protected Areas System When CNAP was first established, more than 400 applications from the scientific establishment and local authorities to establish new protected areas were pending rulings As one of its first assignments, the Center undertook a priority setting exercise to determine the extent to which these applications met basic criteria for inclusion in the PA network, including ecoregional coverage Pursuant to the review, some applications were accepted and others rejected The PA System presently comprises 79 sites of national importance, and 185 sites of local importance6, within eight management categories, corresponding to the six categories in the IUCN classification system Categories 1-IV of the IUCN system and 1-6 of production and other uses Clear felling of natural forests is only allowed in exceptional circumstances the Cuban system correspond to strictly protected areas Table provides a summary of the categories, distribution of protected areas across each category, and description of allowable activities Table 1: Protected Area Categories IUCN SNAP CATEG CATEG PROTECTED AREAS (NATIONAL IMPORTANCE) PROTECTED AREAS (LOCAL IMPORTANCE) Estab Prop Estab Prop ACTIVITIES ALLOWED I Natural Reserve II National Park (generally larger areas) Ecological Reserve (smaller areas) Natural Outstanding Element (usually a geological formation) Fauna Refuge (to manage a particular species) 10 0 19 1 33 Only those activities that not harm the attribute to be protected In general, research and managed tourism are permissible 46 Managed Flora Reserve (to manage particular plant communities) Protected Natural Landscape Managed Resource PA TOTAL 3 69 Only those activities that not harm the attribute to be protected (i.e scientific research, education etc.) In general, research and recreational use, in addition to intensive management interventions to protect target species or ecological communities 1 14 Productive activities and traditional land uses that not adversely affect aesthetic values 3 Area managed to provide flow of ecological goods and services to meet community needs 33 46 10 175 III IV V VI Scientific research only; public access is restricted Recreational uses, education, species management and environmental rehabilitation; subsistence uses of wild resources are allowed as long as they are compatible with management objectives Stakeholders 10 The main stakeholders in the arena of Protected Area management include i] PA management authorities performing various functions specified by law (CITMA, MINAG and MIP); ii] local communities, represented through municipalities and community based groups, which include farmers organizations and women’s groups; iii] The Ministry of the Interior, which manages the National Forest Guard, and enforces PA regulations at a site level; iv] the State Forest Service (within MINAG), which regulates all forestry activities, Many of these sites happen to be contiguous: taking the case of Biosphere Reserves, both the Reserve and the core, where gazetted as a National Park or other PA category, are counted separately After correcting for such overlap, 15 ‘clusters’ of protected areas (of national importance) may be identified PAs of local importance generally constitute set-asides and are smaller than those of national importance including taking of non timber forest products; v]the Institute of Physical Planning (IPF), responsible for town and country planning ; vi] national government agencies concerned with education and culture, including the Ministry of Education, and Ministry of Culture; vii] the Ministry of Tourism, charged with tourism promotion, and viii] national and international NGOs, including PRONATURALEZA, and the Foundation for Nature and Man (both national), and WWF Canada and other international groups that are gradually expanding their programs in Cuba These stakeholders will be involved fully in designing project interventions IV BASELINE SITUATION 11 The default scenario, in the absence of support from the GEF is described below While Cuba’s investment in its protected area system is significant and will continue, the country lacks essential know-how and capacities to fully contain the threats to protected areas and further on-site investment is needed to assure the sustainability of conservation management Thus the conjunction of pressures described above would undermine the natural integrity of protected areas, and threaten their global conservation values Financial support is urgently needed from the international community to pilot conservation methods that are appropriate to the local context and specific management dilemmas, sensitise staff to these new approaches, and build their capacities to execute them, and strengthen the institutional framework for managing PAs These needs mark out the entry point for a GEF intervention i Planning and Monitoring: The three responsible management authorities prepare annual work and financial plans for the purposes of making annual budgetary appropriations But of the protected areas so far established, only ten have Management Plans, leaving an unmet need for site-focused planning Management Plans are essential to provide the blueprint for management at specific sites, prioritize activities and gear operations so as to mitigate prevailing threats However, the capacity to prepare these plans is inadequate and needs strengthening Data collection, management and interpretation capabilities need to be improved in tandem, with the introduction of GIS and other advanced planning tools Monitoring and evaluation functions also need to be strengthened and linked to planning, enabling management to be adapted as pressures change While scientific institutions undertake biological studies, there is a dearth of applied research geared to site management ii Administration: The SNAP constitutes an ambitious attempt to protect a representative sample of ecosystems in Cuba Cuba is committed to gradually operationalising new protected areas, but lacks the financial wherewithal to properly manage 266 discrete sites The baseline situation would be characterized by sub-optimal levels of management Clearly, new administrative arrangements are needed to create cost efficiencies, and thus expand the impact of the funding that is available Amongst other things, established and proposed sites need to be organized into clusters that can be managed by sub-regional offices This would enable management to be harmonized across sites with common ecological attributes and threats and enable scale economies in PA operations to be captured iii PA Operations: At the present moment, 43 sites (33 of national importance and 10 of local importance) have been operationalized to some degree These include one World Heritage Site (another is under establishment) and Biosphere Reserves The sites each have some rudimentary infrastructure, but lack adequate equipment inventories These inadequacies hamper efforts at site management Communications infrastructure is especially poor, and visitor interpretation centers, and visitor management facilities are urgently needed Donor support is needed to defray the one-time investment costs of developing infrastructure and supply equipment for enforcement and other vital PA functions CINAP, MINAG, and the MIP currently employ some 2000 staff dedicated to PA management, and MININT employs 1000 Forest Guards While this is substantial, there is a need to better distribute human resources across SNAP At present, PAs account for nearly 30% of the total staff complement iv Capacity Building: The Government provides routine training to park rangers and technical staff, maintaining a mobile training program In addition, some 40 staff have received short-term training at overseas institutions, such as at Colorado State University in the USA and CATIE in Costa Rica with funding from WWF, UNEP and other organizations However, the capacity of park rangers and technical staff to perform the full suite of protected area functions is inadequate, necessitating that the in-country training program be strengthened The Program will also need to be expanded to cover a wider range of PA management functions such as the control of invasive species, with a focus on ‘hands-on’ instruction in the field This will require the establishment of demonstration sites to pilot innovative management measures and gain experience in their application The authorities have created information networks for biosphere reserves and wetlands to disseminate lessons, but these will need to be broadened and improved as a vehicle for disseminating information v Institutional Coordination: While CNAP gives direction to Protected Area management, establishing regulations and management standards and approving management plans, management operations at a site level are performed by other agencies CITMA has primary responsibility for managing Natural Reserves, National Parks and Ecological Reserves, while the Ministries of Agriculture and Fisheries have authority over other PA categories and MININT assists with regulatory enforcement New institutional arrangements are needed to strengthen coordination at the operational level across all responsible agencies Additionally, the capacity of CNAP to audit the quality of management interventions in protected areas will need strengthening At present, CNAP has a staff on strength of just 20 vi Sustainable Livelihoods The Government has established two incipient programs that are linked to protected areas and aim to advance ecologically sustainable development, one for mountain ecosystems and the other for watersheds Cuba’s four mountain ranges and the Zapata swamp have been designated multiple use protected areas, within which National Parks and other PA management categories have been established for strict protection A number of investments are planned, including in environmental restoration through reforestation, and development of alternative livelihood options For example, MINAG is providing assistance to enable upland communities to adapt their farming systems, and in particular shifting cultivation, to better reflect agro-ecological conditions and alternative energy supplies are being developed to satisfy domestic energy demands (to reduce fuelwood consumption) At a country level, the Government plans to increase forest cover to 27 % of the land surface from a current total of 21%, establishing multiple use woodlots that can supply rural communities with timber, building materials and other products This effort is important to reduce the harvest of these resources from natural forest stands There has been some experience planting native species, mainly in Biosphere Reserves This technology needs to be applied to silvicultural systems in the vicinity of other PAs Finally, while the country has hitherto focused on promoting mass tourism, there is recognition that the nature based tourism sector needs attention too If developed carefully, this could provide conservation compatible livelihoods and contribute towards the sustainability of PA management However, for this to occur, financial mechanisms need to be introduced and earmarked for conservation vii Environmental Education The Center for Environmental Education, attached to CITMA, is responsible for guiding environmental education programs countrywide The Ministries of Education and Higher Education and citizens groups are responsible for implementing these programs Although education programs are being carried out in the environs of 24 protected areas, mainly at the community level, the national education drive has tended to focus on ‘brown’ issues A National Environmental Education Strategy has however, been developed, and establishes conservation education as a priority There is a need to put the Strategy into action by expanding conservation awareness efforts, to improve understanding of the values of natural ecosystems, and the role played by PAs in protecting them V PROJECT RATIONALE, OBJECTIVES AND ACTIVITIES 12 The objective of the full project is to improve management of the National System of Protected Areas by addressing gaps in the default baseline By supporting a number of sitebased demonstration/investment activities geared to mitigating a cross section of threats/ risks and refining conservation practices and approaches, the project will build the capacity to perform protected area management functions, including planning, enforcement, interpretation, public outreach, financial administration and reporting In particular, capacity will be developed in Cuba to manage protected areas on an adaptive basis so as to successfully contain both present and future anthropogenic threats The replication of new approaches and methods will be facilitated within the framework of a 5-year Systems Operations Plan for SNAP, to be developed as part of project preparation This will define the focus of activities and funding priorities over the medium term, ensuring that interventions are targeted at the most critical repositories of biodiversity within the PA network To ensure that this effort is institutionally sustainable, ancillary capacity support will also be extended to management authorities, with a focus on training, improving controls, policy coordination, data management, and monitoring & evaluation This support will serve to improve the discharge of their responsibilities 13 Given the high ecological heterogeneity of Cuba and impracticality of addressing management needs in all ecosystems and PA categories through a single initiative, the project will focus on protecting terrestrial ecoregions of recognized global importance A phased approach is proposed, whereby support will initially be geared towards strengthening strictly protected areas, so conserving critical refugia GEF funding for a follow on phase would then be solicited (through a subsequent proposal) The follow on phase will strengthen management systems in other priority PAs and establish biological corridors between sites 14 Up to six demonstration PA sites will be picked as the focus of intervention in phase one, strategically selected to capture a representative sample of terrestrial biodiversity, including alpha, beta and gamma diversity, and particularly, rare, endemic, and endangered species In addition, attention will be paid to management issues, so as to ensure that the sample contains examples of the different management challenges facing the Protected Area estate Other criteria for selection include 1] the likelihood that threats to biodiversity can be successfully abated, and 2] the ability to secure co-funding A total of ten candidate sites have been identified (see Table 1) Selection will be confirmed during project preparation Table 2: List of Candidate Sites for Demonstrations Ecoregion Sites Cuban Dry Forest Turquino National Park Cuban Dry Forest Alejandro de Humboldt National Park Cuban Dry Forest Pico Cristal National Park Cuban Moist Forest Desembarco del Granma National Park Cuban Moist Forest Guanahacabibes National Park Cuban Moist Forest Sur Isla de la Juventud Cuban Pine Forest Viñales National Park Cuban Wetland Ciénaga de Zapata National Park Cuban Wetland Delta del Cauto Forest Reserve Baitiquirí Nature Reserve Cuban Xeric Shrub 15 The following activities are proposed for funding under phase one The list is subject to change, based on the outcomes of further planning exercises and stakeholder engagement It is anticipated that field demonstration/investment activities would absorb the bulk of project resources (between 70 and 75% of total funding), with umbrella capacity strengthening accounting for the remainder of costs The cost of these activities will be shared between the GEF and other financiers, following an assessment of incremental costs Demonstration/ Investment Activities at the Site Level i Planning & Administration: Management Plans for protected areas would be prepared where lacking using participatory planning tools, and operational planning capacities would be enhanced to abet work planning To reduce threats stemming from externalities imposed by development activities, the project would systematically integrate conservation objectives into local development plans, including for the tourism sector Support would be provided to improve financial administration, reporting and information flow to CNAP, other management authorities, local government and rural communities The feasibility of clustering protected areas for operational management purposes will also be established ii Threat Mitigation: Infrastructure would be developed, and equipment and training supplied Coordination with law enforcement agencies, including the Forest Guard would be improved to arrest malfeasance, and surveillance and reporting systems strengthened The Government of Cuba would rationalize staffing across the PA network to ensure that sites are adequately resourced The project would support the control of introduced predators, evaluating the success and cost-effectiveness of different approaches Visitor management systems would be improved to control the impacts of tourism Associated interventions would be developed to strengthen Information on the biological attributes of these areas, and prevailing threats, is provided in the annexes 10 pollution controls and forest management as required to realize conservation outcomes iii Monitoring & Evaluation: Indicators would be developed to monitor conservation processes and management impact and monitoring efforts fully institutionalized and linked to national data gathering and planning systems Monitoring and evaluation operations will be tied to annual operational planning and to long-term management planning iv Sustainable Livelihoods: The Cuban Government will promote the development of nature tourism, conservation compatible forest industries and sustainable agriculture to improve economic conditions within communities neighboring the protected areas Capacity Support v Operational and Policy Coordination: New institutional mechanisms will be established to improve coordination between management authorities and coordination with the development strategies of the productive sectors The feasibility of establishing a National Council on protected areas would be reviewed during preparation The capacity of CNAP to perform its legislated PA audit functions would be strengthened vi Training: A comprehensive training program would be supported, linked to the site demonstrations, but also including study tours to other protected areas in Latin America and the Caribbean to expand the range of management skills amongst PA managers vii Financial Mechanisms: The feasibility of establishing earmarked user fees and other mechanisms to capture the consumer surplus associated with visitation to protected areas will be established and appropriate financial mechanisms developed and linked to operations at sites viii Information Management: The capacity of authorities to collect, interpret and utilize information for PA management purposes will be improved, with an investment in information management systems The links between field centers and headquarters would be strengthened by improving communications infrastructure and information flow Linkages to other GEF Financed Projects in Cuba 16 The GEF has financed two Enabling Activities and one full project in the Biodiversity Focal Area The Enabling Activities (both UNEP-GEF financed) have included preparation of the Biodiversity Country Study and National Biodiversity Strategy and Action Plan Both efforts have abetted priority setting for conservation informing development of this initiative UNDP-GEF has funded a full project to protect biodiversity in the Sabana Camaguey Ecosystem in northern Cuba That initiative focuses on integrated coastal zone management and conservation in globally important coastal and marine ecosystems While complementary, the two projects focus on different landscapes and management challenges Linkages to UNDP Programs in Cuba 17 The Executive Board of UNDP approved the First Country Cooperation Framework 11 (CCF) for Cuba in September 1997, covering the period from FY 1997 to 2001 Environmental protection constitutes one of four thematic areas for cooperation The protection of biodiversity is listed as the top priority for support under this area To this end, UNDP is assisting the Government of Cuba to source funding and technical assistance UNDP will secure co-financing for this project for activities that facilitate sustainable development, including improving forest management and peoples participation in resource conservation UNDP will also play an active role in fostering policy dialogue with the Government of Cuba and brokering funding from other parties, including bilateral agencies Sustainability and Potential for Replication 18 The Government of Cuba will shoulder the recurrent costs of managing the protected areas System Demonstration activities sponsored by the project will develop cost-effective solutions to management dilemmas that can be systematically applied across the PA network Not only will this improve the effectiveness of management efforts, it will reduce costs-perunit effort The project will also expand linkages between management authorities and international conservation agencies and donor bodies, helping to generate new investments and enabling Cuba to learn from best practices established elsewhere the region The mobilization of co-financing for the project from the Government of Cuba, UNDP and donor agencies will spread the risk inherent in intervention and expand the basis of project ownership A major focus of interventions will be to internalize conservation objectives within sector strategies at each site, so ensuring a better match between conservation and development By investing in awareness raising and education, the project will build new constituencies for conservation amongst the public at large, which will be crucial for sustainability VII DESCRIPTION OF THE PROPOSED PDF B ACTIVITIES AND OUTPUTS: 19 The PDF B grant and associated co-financing appropriated by the Government of Cuba will finance activities required to prepare the full project, and scope out capacity strengthening activities These activities will be scheduled over a ten-month time frame OUTPUT A FIVE- YEAR SYSTEMS OPERATIONS PLAN FOR THE SNAP IS DEVELOPED Activities: A 5-year Systems Operations Plan will be prepared for the protected area network, defining objectives and providing a blueprint for replicating the management approaches developed under this project The Plan will 1] define the number of protected areas to be established over the next years; 2] elucidate the sequence in which new and existing protected areas will be operationalized; 3] elaborate the capacity strengthening needed within the System Consequently, it will give bearing to activities proposed under the full project and to associated programs, helping to magnify the global conservation benefits accruing from these efforts Activities will be costed, enabling the Plan to be used as a basis for informing funding decisions by the Government of Cuba and leveraging other funding commitments 1.1 1.2 Convene a National Planning Workshop involving all major stakeholders to prepare a Strengths, Weaknesses, Opportunities and Threats (SWOT) Analysis of SNAP; Conduct an assessment of the priority capacity development needs of PA management authorities; 12 1.3 Define management priorities and objectives, and interventions needed to meet those objectives; 1.4 1.6 Select sites for demonstration activities under the full project, distinguishing by project phase, and a framework for replicating the best practices and experiences gained from demonstrations; Prepare a work schedule and monitoring and evaluation plan to track progress in implementation; Prepare a budget for proposed interventions, ranked by order of their priority; 1.7 Draft the Systems Operations Plan, and circulate the Plan for endorsement 1.5 OUTPUT 2: A PROJECT DOCUMENT OTHER PARTIES IS PREPARED FOR PRESENTATION TO THE GEF AND Activities: A UNDP Project Document will be prepared for presentation to the GEF Executive Council As part of the process of preparation, a donor round table will be convened to confirm funding commitments The Project Document will be circulated to STAP, other Implementing Agencies, the GEF Secretariat and the Secretariat of the CBD for appraisal, and comments received from these reviewers and the Executive Council will be addressed in finalizing the document for final approval and financial delegation by the GEF 2.1 Undertake an in-depth investigation of threats and root causes at selected demonstration sites, including policy, institutional, social and economic issues that have a bearing on conservation; 2.2 Engage stakeholders at each demonstration site in the design of project activities and prepare a stakeholder involvement plan; 2.3 Develop strategies for integrating conservation objectives within protected areas into regional development policies and strategies, including the agricultural and tourism sectors; 2.4 Convene a donor round table, to confirm co-financing for the full project; 2.5 Collect budget data for the purposes of calculating the realistic baseline; 2.6 Prepare a monitoring and evaluation plan for the project, and quantify baselines for selected indicators; 2.7 Perform an assessment of incremental costs; 2.8 Design project activities, define their sequencing, and prepare cost estimates; 2.9 Define institutional arrangements, including mechanisms for inter-agency coordination; 2.10Prepare the logical framework for the project, with a clear strategy for mitigating threats at each site, and defining assumptions underlying the project and risks to outcomes; 2.11 Prepare project documentation, addressing all national, GEF and UNDP requirements; 2.12Circulate the Project Document to a STAP reviewer for appraisal, and respond to comments 2.13Circulate the Project Document to the GEF Executive Council for clearance VIII ELIGIBILITY 20 Cuba ratified the Convention on Biological Diversity on March 9, 1993, and has taken a number of significant steps towards realizing its commitments under the Convention, including by strengthening the institutional framework for conservation and passing necessary enabling legislation The proposed project will fulfil a number of the objectives of 13 the Convention, including the in situ conservation of biodiversity and the enhancement of national capacities to manage natural ecosystems The project is fully consistent with national policies and strategies to protect biodiversity, including those recently articulated within the NBSAP The project is strongly supported by the Cuban authorities and has been endorsed by the GEF Operational Focal Point (see attached letter of support) The GEF would fund eligible activities under Operational Programmes and 3, Freshwater and Forest Ecosystems, covering the incremental costs of measures required to secure global conservation benefits IX JUSTIFICATION FOR PDF B GRANT 21 Although considerable information has already been collected on the status of biodiversity and protected areas in Cuba, further information is needed in order to prepare the full project The Systems Plan will ensure that the results of project demonstrations are effectively replicated across the PA network, and that capacity support under the project addresses the most pressing capacity-related needs Further information is also needed to concretize conservation strategies, including to deepen understanding of the threats and management options at each of the proposed demonstration sites The PDF B will fund further stakeholder consultations, and enable the development of a Monitoring and Evaluation Plan to measure management effectiveness Finally, funding is needed to confirm financing arrangements, including by convening a donor round table to synergise donor interventions X IMPLEMENTATION ARRANGEMENTS FOR THE PDF B 22 Preparatory activities will be executed by CITMA with the support of UNDP CNAP will be responsible for preparing the Systems Plan, drawing support from MINAG, the Center for Environmental Education, the Institute of Ecology and Systematics, Ministry of Fisheries, Universities, National Academy of Science, Institute of Physical Planning, environmental NGOs (PRONATURALEZA, Foundation for Nature and Man, and WWF), and Community Associations A Steering Committee will be formed to monitor progress in project development and guide activity design The Committee will be comprised by representatives from UNDP, CITMA, MINAG, the Institute of Physical Planning (IPF), Ministry of Interior (MININT), and PRONATURALEZA UNDP will provide assistance for donor coordination to secure co-funding XI BUDGET & WORKPLAN 23 The PDF grant will finance the following activities and inputs: ACTIVITY BUDGET Output GEF Gov’t of Cuba National Systems Plan 65,808 140,586 Project Preparation 82,470 132,586 148,278 273,172 Total INPUT BUDGET: UNDP/GEF CONTRIBUTION 14 B/L Description P/M 2001 2002 TOTAL 10 11 11.51 16 16.01 19 PERSONNEL International Personnel Technical Assistant [see Annex 2] Missions Mission Costs SUB-TOTAL 60 Days 20,000 7,000 27,000 5,000 25,000 3,500 10,500 8,500 35,500 20 21.01 29 SUBCONTRACTS Printing Services SUB-TOTAL 10,000 10,000 10,000 10,000 30 32.01 32.02 39 TRAINING National Workshops Donors Round Table SUB-TOTAL 10,000 10,000 20,000 5,000 15,000 10,000 25,000 40 45.01 45.02 45.03 48.01 49 EQUIPMENT8 Expendable Equipment Non-Expendable Equipment [see annex 3] Software and Remote Images Execution Costs SUB-TOTAL 2,000 31,460 33,000 3,463 69,923 1000 855 1,855 3,000 31,460 33,000 4,318 71,778 50 53.01 53.02 59 MISCELLANEOUS Communications Contingencies and Sundries SUB-TOTAL 2,000 2,000 4,000 1,000 1,000 2,000 3,000 3,000 6,000 99 TOTAL 118,923 29,355 148,278 2001 2002 TOTAL 38,400 9,600 6,400 19,200 4,160 9,600 51,200 138,560 6,400 1,600 832 2,560 320 640 5,760 18,112 44,800 11,200 7,232 21,760 4,480 10,240 56,960 156,672 SUBCONTRACTS Printing Services Rent & Electricity SUB-TOTAL 6,000 15,400 21,400 20,000 3,100 23,100 26,000 18,500 44,500 EQUIPMENT Expendable Equipment 10,000 2,000 12,000 5,000 INPUT BUDGET: GOVERNMENT CONTRIBUTION (IN-KIND) Description M/M PERSONNEL National Professionals From CNAP From IES From IDO From ENPFF From IGT From BIOECO Other institutions and provinces SUB-TOTAL Equipment requirements for 1] Systems Operations planning; and 2] preparation of project proposal 15 Description M/M Non-Expendable Equipment SUB-TOTAL TOTAL 24 2001 2002 TOTAL 50,000 60,000 10,000 12,000 60,000 72,000 219,960 53,212 273,172 Preparatory activities, slated to commence in 2001 will be scheduled as follows WORKPLAN Activity Convene Steering Committee Meetings Output Perform gaps analysis X Convene National Planning Workshop Conduct capacity needs assessment Define objectives and activities; Select sites for demonstration activities Prepare a work schedule and M&E Plan Prepare a budget Finalize Systems Operations Plan Print and Distribute the Plan Output Detailed threats assessment Review of policies and strategies Stakeholder engagement Convene donor round table Collect budget data Prepare an M&E plan for the project Perform an assessment of incremental costs Design project activities, and define costs Prepare logical framework Define Implementation Arrangements Finalize project documentation Circulate the Project Document to STAP Submit Pro Doc to the GEF Council XI X Months X 10 11 X 12 X X X X REFERENCES Dinerstein, E.; Olson, D.; Graham, D.; Webster, A.; Primm, S.; Bookbinder, M.; and Ledec, G; 1995 A Conservation Assessment of the Terrestrial Ecoregions of Latin America and the Caribbean World Bank with the World Wildlife Fund, Washington D.C Hockins, M.; Stolton S and Dudley N.; 2000 Evaluating Effectiveness: A Framework for Assessing Management of protected areas IUCN/WCPA, WWF, GTZ, World Bank and the University of Queensland 16 IUCN, 1991 Guidelines for Protected Area Management Categories, Gland, Switzerland Mittermeier, R.; Myers, N.; Gil, P.; Mittermeier, C.; 1999 Hotspots, Earths Biologically and Most Endangered Terrestrial Ecoregions, Conservation International Olson, D.;Dinerstein, E.; Canevari, P.; Davidson, I.; Castro, G.; Morisset, V.; Abell, R.; and Toledo, E.; eds 1998 Freshwater Ecosystems of Latin America and the Caribbean, A Conservation Assessment Biodiversity Support Programme, Washington D.C Stattersfield, A.; Crosby, M.J.; Long, A.; and Wege, D 1998 Endemic Bird Areas of the World Priorities for Biodiversity Conservation Birdlife International, Cambridge, UK Vales, M; Alvarez, A.; Montes, L and Ávila, A.; 1998, Estudio Nacional sobre la Diversidad Biológica en la Republica de Cuba, UNEP, CITMA, IES and CENBIO, Havana WWF (Dinerstein, E.; and Olson, D.); 1999 Global 200: A Representation Approach to Conserving the Earth's Distinctive Ecoregions,, Washington D.C Switzerland WWF, 1997 WWF Country Plan for Cuba: Conserving Biological Diversity and Sustainable Use 1997-2002, WWF Canada, Toronto WWF and IUCN, 1994 Centres of Plant Diversity: A Guide and Strategy for Their Conservation: Volume 3, The Americas WWF/UK, Godalming and IUCN, Gland, Switzerland List of Acronyms Used in the Text CBD: CNAP: CITMA: IPF: MINAG: MININT: MIP: NBSAP: SFE: SNAP: Convention on Biological Diversity National Center for protected areas Ministry of Science, Technology and Environment Institute of Physical Planning Ministry of Agriculture Ministry of the Interior Ministry of Fisheries National Biodiversity Strategy and Action Plan State Forestry Service National System of Protected Areas 17 ANNEX 2: TERMS OF REFERENCE FOR TECHNICAL ASSISTANCE Technical Adviser: Objectives: The Technical Adviser will assist responsible authorities in Cuba to 1] undertake a stakeholder analysis and prepare a stakeholder participation plan; 2] perform a review of prevailing threats at each site, and assess their social, policy, institutional or economic determinants; 3] develop a plan for monitoring and evaluating project activities and impacts; and 4] prepare a project proposal for consideration by the GEF The Technical Adviser will help integrate information generated by studies, workshops and national experts into an overall and cohesive project strategy The project proposal would contain a strong and clearly articulated strategic logic, describing the conservation values that would be protected, detailing threats to biological diversity, outlining the various activities required to mitigate these threats, determining the baseline of sustainable development activities, and justifying incremental costs to be financed by GEF The Adviser will also ensure that the lessons learned from similar conservation initiatives in the region are integrated into project design Duration: 60 person days over the course of 12 months Results: The Technical Assistant will contribute substantially towards the following deliverables: - An in-depth analysis of the prevailing threats to biodiversity and their underlying causes at each of the sites as a basis for scoping activities, including institutional, policy related, social and economic factors likely to have a bearing on conservation outcomes; A well developed stakeholder participation plan, to be attached as an annex to the project proposal; A Monitoring and Evaluation Plan, to be incorporated into the project proposal; A well-defined project strategy for each of the sites, aimed at mitigating threats and assuring sustainability A detailed summary of project risks, and enumeration of workable measures to abate risk Full Project Brief, in the agreed GEF format with the following annexes:  Incremental Cost assessment, with a narrative justifying the calculation of incremental costs, and matrix describing global and domestic benefits and containing incremental cost estimates for each of the proposed project outputs  Logical Framework Matrix, in UNDP’s standard format  Overview of the global significance of the selected sites  Root causes matrix, describing the threats at each site and the activities required to remove them  Stakeholder Participation Plan, describing the main stakeholders and outlining their respective roles and responsibilities in project design, implementation, monitoring and evaluation  Maps of the project area  Terms of Reference for consultants and sub-contractors to be employed under the full project  Detailed Project Budget, in agreed UNDP format (input budget with standard budget lines)  List of key reference materials 18 ANNEX 2: EQUIPMENT REGISTER: DESCRIPTION SPECIFICATIONS UNIT COST UNITS TOTAL COST Desk Top Computer 17” Display 1.2 gigabytes Epson Expression 836 xl 800x1600 A3 HP 6300 C7671A UPS Americam Power BP1400 1400 VA HP Desingjet 2500c Color Format E 600 DPI TR IMP HP Laser Jet 4500 4/16 PPM 32 MB 600 DPI High Resolution Black and White 2,500 5,000 3,450 3,450 135 625 1 135 625 13,500 13,500 3,450 3,450 5,300 5,300 Scanner Adaptor for Scanner Stabilizer Map Plotter Color Printer Photocopier Total 31,460 19 ANNEX 3: DATA TABLES: - ENDEMISM AND ENDANGERMENT Higher Species Richness in Cuba Total Species Richness Number of Species Endemic to Cuba Number of Species Shared with other Countries 42 27 15 Birds 350 22 328 Reptiles 121 91 30 Amphibians 46 43 Higher Plants 6,520 3,422 3,098 Total 7,079 3,605 3,474 Taxa Mammals Reference: Vales et al, 1998 List of Threatened And Endangered Species Endemic to Cuba Taxa Endemic Species No of species No threatened No threatened that are endangered Mammals 27 12 10 Birds 22 Reptiles 91 50 43 20 Ferns 53 Gymnosperms 13 Dicots/Monocots 3,409 865 303 3,658 964 323 Amphibians Higher plants Total Reference:Vales et al, 1998 20 ANNEX 4: DATA TABLES: - BREAKDOWN OF ECOREGIONS INTO FLORISTIC DISTRICTS - PROTECTED AREA REPRESENTATION ACROSS ECOREGIONS - BIOLOGICAL ATTRIBUTES OF CANDIDATE SITES ECOREGION DINERSTEIN Area (Km2) Floristic districts of Biodiversity priority9 Cuban Moist Forest Diversity Outstanding (candidate Areas) Proposed/ Existing (P/E) Plants 20 750 Los mogotes de Los Organos Sierra del Rosario Colinas de La Habana - Limonar Distrito Guamuhaya (Escambray) Sierra de Nipe Sierra de Cristal Colinas del borde septentrional del Valle Central Distrito central de las montañas septentrionales de Oriente Distrito Serpentinas de Moa Baracoa Distrito Sierra de Imías Distrito de Baracoa Distrito montoso Cordillera del Turquino Promontorios de la Sierra Maestra Distrito de la Gran Piedra 245 332 197 286 72 42 31 86 549 464 29 105 50 327 39 976 373 61 105 426 19 139 127 14 105 TOTAL OF DISTRICTS Priority I protected areas Proposed Existing endemic Priority I Bosques Secos Total of plant formation & local endemics 69 738 Península de Guanahacabibes Los mogotes de Los Organos Sabanas centromeridionales de Pinar del Río Anafe Meseta de Cajálbana Colinas de La Habana - Limonar Zapata Distrito costero de Trinidad Distrito de Motembo Llanura centro occidental Distrito Serpentinas de Santa Clara Distrito serpentinas de Camagüey Distrito serpentinas de Holguín Llanuras y colinas de Cuba centro - oriental Distrito de la costa norte Bahía de Nipe - Cebollas Costas y cayos septentrionales de Cuba central Colinas del borde septentrional del valle central de Oriente Valle central de Oriente Distrito meridional de la isla de la Juventud 16/980 12 11 14 72 12 50 220 197 78 122 67 230 92 51 31 22 10 20 10 133 10 105 215 19 25 82 237 51 29 111 68 11 From Dinerstein et Al, 1995 21 (E) NP Alejandro de Humboldt (E) NP Pico Cristal (E) 14 106 245 204 NP Turquino 11/452 16 10 NP Desembarco del Granma (E) NP Guanahacabibes (E) Sur Isla de la Juventud (P) ECOREGION DINERSTEIN Area (Km2) Floristic districts Diversity of Biodiversity priority Total of plant formation & local endemics protected areas Outstanding (candidate Areas) Proposed/ Existing (P/E) 7/886 NP Viñales 9/248 19 NP Ciénaga de Zapata endemicv asc Plants Distrito costero Media Luna Cabo Cruz - Baconao Colinas de Bahía Honda Cabas Costa norte de Habana Matanzas Distrito Sierra de Imías 261 44 80 12 164 18 61 TOTAL OF DISTRICTS Bosques de Pinos 735 Priority I Humedales 11 752 Priority I Matorral de Cactus Priority IV 360 23 Sabanas de arenas blancas Alturas de Pizarras Los mogotes de Los Organos Sabanas centromeridionales de Pinar del Río Meseta de Cajálbana Sierra del Rosario Sierra de Nipe Sierra de Cristal Distrito central de las montañas septentrionales Distrito Serpentinas de Moa Distrito de Baracoa Arenas Blancas (Los Indios Siguanea) Distrito Central de la isla de la Juventud Sabanas de arenas blancas TOTAL OF DISTRICTS 130 68 245 204 24 12 72 12 220 332 549 464 327 51 42 105 50 39 976 105 130 373 19 24 150 13 229 50 Sabanas de arenas blancas Sabanas centromeridionales de Pinar del Río Zapata Llanura centro occidental Llanuras y colinas de Cuba centro - oriental Costas y cayos de septentrionales de Cuba central Arenas Blancas (Los Indios Siguanea) Distrito meridional de la isla de la Juventud Distrito Central de la isla de la Juventud Distrito costero Media Luna Cabo Cruz - Baconao Cayeria Meridional TOTAL OF DISTRICTS 229 204 50 12 78 230 215 20 25 237 51 130 24 68 150 13 261 44 Distrito xerofítico de la costa meridional Maisi Distrito Sierra de Imías TOTAL OF DISTRICTS 371 91 61 (E) 14 (E) FR Delta del Cauto (E) 11 22 6/94 NR Baitiquiri (P) ANNEX 5: OVERVIEW OF THREATS Traditional Agricultural Use Water Pollution Poaching and Fishing Bio-invasion InfrastructureVisitor Use and ECOIREGIONS/ PROTECTED AREAS Mining - CANDIDATE PROTECTED AREA DEMONSTRATION SITES CUBAN DRY FOREST NP Turquino 3 1 NP Alejandro de Humboldt 3 3 NP Pico Cristal 1 NP Desembarco del Granma 3 1 NP Guanahacabibes 3 1 Sur Isla de la Juventud 3 1 1 NP Ciénaga de Zapata 5 FR Delta del Cauto 5 1 0 CUBAN MOIST FOREST CUBAN PINE FOREST NP Viđales CUBAN WETLAND CUBAN XERIC SHRUB NR Baitiquirí Rankings None Medium 23 High ANNEX 6: MAP OF THE CUBAN ARCHIPELAGO 24 ... of Cuba? ??s global conservation significance could cause the extirpation and possible extinction of sub-species and races of these birds Finally Cuba harbors the largest populations of a number... Park Cuban Dry Forest Alejandro de Humboldt National Park Cuban Dry Forest Pico Cristal National Park Cuban Moist Forest Desembarco del Granma National Park Cuban Moist Forest Guanahacabibes National... FR Delta del Cauto 5 1 0 CUBAN MOIST FOREST CUBAN PINE FOREST NP Viñales CUBAN WETLAND CUBAN XERIC SHRUB NR Baitiquirí Rankings None Medium 23 High ANNEX 6: MAP OF THE CUBAN ARCHIPELAGO 24