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by Dr. Jinie Dela

"As a first step in implementing the CBD (the Convention on Biological Diversity), Sri Lanka has prepared a framework for action for the conservation of biodiversity (BCAP), which has been approved by the Cabinet of Ministers in August 1998... I am particularly pleased that the Government now has a definite policy framework for the conservation of biodiversity. It necessarily brings out a commitment from all stakeholders to achieve the goals of this document." This is an excerpt from the message of the then Minister of Forestry and Environment, as it appears in Sri Lanka's national Biodiversity Conservation Action Plan (BCAP). This document was prepared by the Sri Lanka office of IMCN - The World Conservation Union during the period 1996/1997 on behalf of the Ministry assigned the subject of Environment. The Global Environmental Facility provided funds for this activity through the World Bank. The BCAP was approved by the Cabinet in 1998 and published by the then Ministry of Forestry and Environment in 1999.

Jeff McNeely, the Chief Scientist of IMCN - The World Conservation Union, has gone on record stating that Sri Lanka's Biodiversity Conservation Action Plan is no second to the best prepared by the developed countries. Although two international experts were brought in for very short periods of time to advise the consultancy team on possible approaches that could be adopted for preparing the BCAP, the Plan itself was formulated and compiled by a dedicated team of national experts. As a result, its focus is entirely on national biodiversity conservation needs.

In simple terms biological diversity - or biodiversity - is the variety of organisms found on earth (due to variations among species and genes) and the terrestrial, marine and other systems in which life exists. "The Convention on Biological Diversity, which aims to conserve the planet's biological diversity and provide for their sustainable use by present and future generations, was placed before the heads of state for signature at the United Nations Conference on Environment and Development, or Earth Summit, on 5 June 1992." Sri Lanka ratified the Convention in March 1994.

Responding to the obligations conferred by the CBD, and to address national requirements, Sri Lanka prepared a national Biodiversity Conservation Action Plan (BCAP) titled Biodiversity Conservation in Sri Lanka prepared a national Biodiversity Conservation Action Plan (BCAP) titled Biodiversity Conservation in Sri Lanka: a framework for action. The significance of the BCAP is that it presents within a single framework the gamut of activities needed to conserve Sri Lanka's biodiversity.

Source: Sri Lanka's Biodiversity Conservation Action Plan, 1998.

What are the features of Sri Lanka's BCAP?

The BCAP gives a comprehensive overview of the country's species diversity, as well as the specific aspects of biodiversity within the forest, wetland, coastal and marine and agricultural systems; the policies relating to them; and the institutions that have administrative powers over these systems. The conservation objectives and recommended action in the document cover these four systems as well as several cross-cutting and inter sectoral thematic areas such as ex-situ conservation; biodiversity information; biodiversity related legal measures, research, education and awareness: institutional support for biodiversity conservation and valuation of biodiversity. This 'system based approach in presenting the status of national biodiveristy was adopted after much discussion. In addition to the significant ecological differentiation it made possible, it was deemed practical in terms of the division of responsibilities between different organizations that would have to implement the recommendations that related to them. Overall the BCAP recommends a course of action to 'ensure that the biological diversity within the country is conserved and used sustainably, and that development programmes pursued by the different sectors do not cause serious or irreversible damage to the indigenous biodiversity." The Plan also introduces for the first time 15 terrestrial and coastal bio-regions to address biodiversity conservation issues in the country; eight of which are prioritised for urgent attention.

A significant feature of the BCAP is that it also brings together within a single document the biodiversity related actions identified in a host of other plans, programmes and national policy instruments. The mandates and ongoing programme of the many government institutions directly responsible for biodiversity conservation have also been considered. These include plans and programs of the Forest Department, Coast Conservation Department, Department of Wildlife Conservation, Central Environmental Authority, Department of Agriculture, the Botanical Gardens, Zoological Gardens, etc. Consequently, some of the recommended activities in the BCAP were already earmarked for action, or were in progress; but are nevertheless included in the document as it constitutes the most important policy instrument for biodiversity conservation at the national level. The BCAP functions both as a policy instrument and a working document for conservation action. To meet these twin objectives, it has been modelled on the easily readable style (but note - not the content!) of the UK Biodiversity Action Plan of 1994. It can therefore be read and appreciated by a wide audience, including scientists, policy makers, administrators, field staff, interested members of the public and even school-children. The attractive layout of the document was especially designed to promote reader interest, and the document has been translated into Sinhala and Tamil.

How was the BCAP prepared?

The present BCAP is the result of an intensely participatory process for which much time, effort and funds have been spent. This included numerous discussions between members of the consultancy team and heads of institutions, members of NGOs, and other well-informed individuals. The purpose of this was to explain the task at hand and to seek diverse views on the national efforts needed to conserve the country's biodiversity. The preparation of the BCAP also involved exhaustive causal chain analysis of the problems causing depletion of national biodiversity to determine the issues, the proximate causes, the underlying causes, and the relevant actions required for conservation. Understandably the preparatory process spanned a period of nearly two years.

Why is the BCAP termed a framework for action?

This is because the BCAP brings together, within a single framework, a description of the status of national biodiversity, along with perceived issues and threats, and the remedial actions required. It also shows how different state institutions and NGOs can fit into the framework for biodivesity conservation and how the business sector and other social groups can contribute to this process. It identifies broad actions for biodiversity conservation, but deliberately does not provide operational details or financial budgets and time frames for implementing each of the recommended actions.

The latter approach was, however, explored during the preparatory phase, and several prioritised recommendations were developed as proposals with indicative budgets. This was abandoned as it was felt to be both impractical and counter-productive due to many reasons:

(a) The BCAP is the product of many consultative and analytical processes and it is important that the large number of recommendations that evolved through this process are given voice in this document.

(b) Preparing detailed proposals for recommended actions that were ongoing, or those that could be accommodated in the future under institutional programmes (with existing institutional budgets), is a futile exercise.

(c) Detailed proposals may well become obsolete by the time the Plan was finalised and implemented, given the time and processes needed to obtain government and stakeholder approval and to set up implementation mechanisms.

(d) Institutions responsible for implementation of recommended actions are the most suited to prepare detailed implementation proposals for them with operational details and budgets.

(e)The framework nature of the BCAP ensures that it is a flexible rolling plan so that new issues, new policy decisions, and new actions can be accommodated during implementation.

Can the BCAP be implemented in its present form?

Yes. Although it is called a "framework for action", Chapter 8 deals with implementation. It sets out the proposed institutional arrangements for implementing the BCAP and a broad time frame to achieve various outputs. Chapter 7 deals with the overall inter-sectoral and inter-institutional integration needed for implementing the Plan. This includes the different roles of the government, community based organisations, NGOs and the private sector. A two-year inception phase is proposed, followed by a ten-year implementation phase, the latter broken down into two phases of five years each.

The recommendations for implementing the BCAP as given in Chapter 8 call for:

* The establishment of a Biodiversity Secretariat in the Ministry assigned with the subject of Environment. This has already been done. The mandate and main functions of the Secretariat as well as several activities to be carried out on a priority basis are provided in the Plan.

* The setting up of a high level National Steering Committee as the apex body for policy formulation and decisions on overall BCAP implementation. The Terms of Reference for the NSC and its composition (including the membership of Secretaries from several Ministries) are suggested.

* the establishment of Task Forces to provide the Biodiversity Secretariat with expert guidance to translate recommendations in the BCAP into implementation programmes where necessary.

To ensure the coordination required for implementation, it is recommended that the Task Forces will consist of representatives of the main implementing agencies, other experts in the respective fields, and representatives of Provincial Councils. The basic functions of Task Forces are listed.

Is the preparation of a "fleshed out BCAP" a prerequisite for implementation?

* NO, What is necessary is to "flesh out" relevant BCAP recommendations into detailed proposals with operational details. This has been built into the implementation process, to be carried out by the implementing agencies with technical support provided through the Biodiversity Secretariat.

* Sri Lanka has periodically prepared and implemented many National Environmental Action Plans, which do not provide detailed implementation proposals (with operational details and budgets) for recommended actions. They have, however, been implemented.

* Other countries with Biodiversity Action Plans, which provide a broad "framework" for action, are being implemented. For example, the UK Biodiversity Action Plan of 1994 is being implemented at local, regional and national levels by setting up a Biodiversity Steering Group and national and regional biodiversity secretariats. Some of the actions taken include the preparation of 391 individual Species Action Plans and 41 Habitat Action Plans. A five-year review has been carried out in 2000 to evaluate BAP implementation.

The review report contains recommendations to increase the efficacy of the implementation process in view of specific conservation objectives.

While we may not wish to emulate the conservation action taken by UK due to different national requirements, we could draw on the organisational process they have adopted and benefit from the lessons learnt by them during BAP implementation.

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