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CONCEPT PAPER FOR A FULL PROJECT

1. Project title: Agulhas Biodiversity Initiative (ABI)

2. GEF Implementing Agency: United Nations Development Program

3. Country in which the project is being implemented: South Africa

4. GEF Focal Area(s): Biodiversity, linking with Land Degradation

5. Operational Program/Short-term measure: OP 1 – Arid and semi-arid ecosystems

6. Country Drivenness (Project linkage to national priorities, action plans and programs):

The Government of South Africa has long demonstrated a commitment to protecting biodiversity. The
Constitution of South Africa guarantees the right to a healthy environment and environmental protection
through conservation, pollution control and sustainable development. The Department of Environmental
Affairs and Tourism has published a White Paper on Conservation and Sustainable Utilization of South
Africa’s Biological Diversity in 1997 and is in the process of developing the Biodiversity Conservation
Strategy and Action Plan. The country ratified the Ramsar Convention, World Heritage Convention,
Convention on International Trade with Endangered Species of Flora and Fauna and the Convention on
Biological Diversity.

Agulhas Plain was identified as a conservation priority by SANP in 1986. However, the development of
the National Park started only in 1996, when funds were secured to undertake a substantiation study and
purchase the core parcels of land. Currently, Agulhas National Park is the highest priority on the SANP’s
agenda.

The Agulhas Biodiversity Initiative (ABI) proposed by South African National Parks (SANP) and Fauna
& Flora International (FFI) would assist South Africa towards achieving its obligations under these
international conventions and addressing the goal of Cape Biodiversity Strategy and Action Plan to
“ensure that the natural environment and biodiversity of the CFK are effectively conserved and restored
wherever appropriate, and delivering significant benefits to the people of the region, in a way that is
embraced by local communities, endorsed by government and recognized internationally”.

In 1997, the Government of South Africa requested the World Bank/GEF support for biodiversity
conservation on the Cape Peninsula. The GEF approved a grant of US$ 12.3 million to fund (i) the
establishment of Cape Peninsula National Park; (ii) creation of Table Mountain Fund; and (iii)
development of a strategic action plan for the conservation of Cape Floral Kingdom, called CAPE 1. The
CAPE process started in 1998 and it was developed in partnership with governmental and non-
governmental organizations, communities and private sector under the leadership of WWF – South Africa.
As a result of a fully participatory process, which took two years, South Africa developed in 2000 the
Biodiversity Strategy and Action Plan for the CFK and established the Cape Coordinating Committee for
its implementation. The Committee is composed of the main stakeholders and is led by Western Cape
Nature Conservation Board (WCNCB).

The CAPE Action Plan is the first strategy developed for an entire biodiversity hotspot. The broad
participatory process showed that “although 11% of the CFK is formally conserved, not all Broad Habitat
Units (BHU) are adequately protected”. Consequently, one of the major recommendations of the Plan was
to “exploit opportunities in less transformed landscapes, such as the Agulhas Plain, to establish reserve
systems that will achieve targets for BHUs as well as most targets for the conservation.” Agulhas
Biodiversity Initiative, which was identified as one of the highest priorities in the CAPE process, is a
coherent and comprehensive program designed to address a multiplicity of inter-linked conservation,
development and socio-economic aspects in the Agulhas region and represents a model for the
implementation of the Cape Action Plan.

1
CAPE – Cape Action Plan for the Environment

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The strategy was launched in September 2000 during the International Donor Conference, attended by the
main funding organizations (multilaterals, bilaterals, private foundations, international NGOs) operating
in South Africa. During the Conference, the donors together with main stakeholders in South African
agreed to prepare a Programmatic Framework, where all donors would find themselves. Moreover, a
decision was made to develop a GEF Programmatic Framework from the overall framework to be
submitted in May 2001. It has been also agreed that the Agulhas Biodiversity Initiative concept paper
would be an annex to this submission. Although SANP, FFI and their partners have put a significant
amount of work into preparation of the ABI, there is a need for PDF funding for the development of a full
project. Recognizing the high priority of the ABI, the CAPE Steering Committee decided on 12 December
2000 that SANP, FFI and their partners should continue the preparation process (using PDF grant), while
the programmatic framework is being prepared.

Through its focus on building capacity at all levels to undertake participatory conservation management,
develop and implement sustainable resource use practices, and a sustainable model for nature-based
tourism in the region, the project will contribute significantly to strengthen the institutions in the area.
The project supports the goal of the community involvement component of the CAPE Strategy, by
ensuring equitable access to benefits from conservation through building the capacity of the local
communities and provide the adequate support to start biodiversity-friendly micro-enterprises based on
fynbos resources, including new locally-owned nature-based tourism enterprises, together with
implementation of tourism awareness program. By providing a scientifically-sound model for sustainable
use of fynbos resources, and new mechanisms for its implementation, the project contributes significantly
to achieve the goal of the sustainable resource use component of the CAPE Strategy, ensuring that the
“natural resources of the CFK are utilized in such a away that maximizes benefits to society without
compromising the ecological integrity of CFK.” By encouraging participatory preparation of a strategic
framework for tourism in the area, providing an appropriate infrastructure, supporting creation of locally-
owned tourism enterprises focused on natural and cultural values of the area, marketing and promoting
the tourism attraction through the implementation of a tourism awareness program targeted at different
audience, the project also supports the goal of the nature-based tourism component of the CAPE Strategy.

7. Context

Global biodiversity significance of South Africa

South Africa is one of the 17megadiversity countries of the world, mainly due to the strength of its floral
diversity and endemism. South Africa has within its borders three of the world’s 19 threatened biodiversity
hotspots, namely the Cape Floristic Region, the Western Cape or Succulent Karoo Domain and
Maputaland-Pondoland. It also has six of the world’s Centers of Plant Diversity and Endemism as
identified by WWF/IUCN including CFK, the Western Cape or Succulent Karoo Domain and
Maputaland-Pondoland Region, Drakensberg Afromontane Region, Drakenberg Alpine Region and the
Albany Center. South Africa’s plant diversity is estimated at 23,420 species (9% of the world’s total) with
16,500 endemics, of which 5,870 are found just within the fynbos of the Cape Floristic Region
(Megadiversity, Conservation International). The Cape Floral Kingdom is the only floral kingdom found
entirely within one country. It occupies a surface of 90,000 square kilometers and 70% of its 9,600 plant
species are endemic.

Global biodiversity significance of the project site: Agulhas Plain

The project area located in Agulhas Plain covers 47,000 ha of lowland fynbos, of which 11,000 ha are
represented by Agulhas National Park (with the aim of expanding to 20,000 ha) (see Attachment 1 for the
maps). Agulhas Plain is a very important component of Cape Floral Kingdom (CFK), as it is an area of
high irreplaceability and high vulnerability, exceptionally rich coastal lowland with remnant patches of
coastal Renosterveld and lowland fynbos, which are considered the highest priorities for conservation in
South Africa and globally.2 Agulhas Plain has 2,000 indigenous plant species, including 112 in the Red
Data Book and 100 locally endemic and unique vegetation types. The high biodiversity is attributed firstly
to change in plant species composition on different soil types and to changes in plant assemblages on the
same soil type but in different geographic locations. The region has eleven distinct vegetation units, of
which one is endemic (Elim asterceous fynbos on gravel soils) and four (limestone proteoid, Elim
asteraceous fynbos, restioid fynbos and neutral sand or proteoid fynbos) are highly threatened. The
2
Lombard et. al. , 1997. Reserve design on the Agulhas Plain, South Africa: a flexible tool for conservation in a species-rich and
fragmented landscape. Conservation Biology, 11, 1101 – 1116.

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Agulhas region is unique in terms of the wide variety of wetlands (freshwater springs, rivers, estuaries,
lakes, vleis and endorheic pans) that occur within a relatively small area. The endemic rich wetlands,
home to the endangered cape platanna and the micro frog (Picker & de Villiers 1988) 3, are internationally
recognized as important bird areas. Three Red Data Book butterfly species (Argyrocupha malagrida
maryae, Poecilimitis brooksi tearsei and Thestor rossouwi) occur in the area (Henning 1989) 4.

The coastline supports a rich marine and intertidal life, with breeding sites of endangered and rare bird
species, such as the African black oystercatcher (Hermatopus moquini) and the Damara stern (Sterna
balaenarum). Significant numbers of Southern right whales frequent the Agulhas coast for breeding. The
large breeding colony of South African fur seals (Arctocephalus pusillus) on Geyser Rock produces over
8000 pups a year or 3% of the seal pup population in southern Africa.

Description of the project area:

There are two major watersheds in the Agulhas Plain, Nuwejaars and Raetl Rivers and the project area
covers both of them. There are six major urban settlements in the area, namely: Struisbaai, Gansbaai,
Bredarsdop, De Kelders, Pearly Beach and Agulhas, four smaller villages and informal communities.
About 60% of the region’s estimated 45,000 inhabitants live in rural areas. Agulhas Plain is characterized
by a very high unemployment rate (e.g. 58 % in Gansbaai), rudimentary health services and poor
education levels in many of the rural areas.

Most of the land is in private ownership and is used mainly for profitable commercial agriculture. Barry
Heydenrych identified in his 1999 study of Agulhas Plain, four categories of farms: livestock farms, fynbos
farms, mixed farms and conservation farms. Livestock farms covered the largest surface area and there are
followed by fynbos farms. Harvesting fynbos wildflowers is the largest single agricultural sectors in
Agulhas Plain, yelding an estimated net income of US $ 1.15 million/year. There is a high potential for
wild flower harvesting compatible with biodiversity conservation, if managed correctly. Cultivated fynbos
flowers yelded a net income of approx. US$ 200,000/year from approximately 20 large- and 100 small-
scale farms. Cultivation of a few fynbos species is increasing and pristine fynbos is primarily being
targeted for conversion.

In addition to its biodiversity values, the area is very important for its cultural-historical features. The
Moravian mission station at Elim has the largest wooden waterwheel in South Africa and the clock in the
Elim church dates back to 1764. High concentrations of Late Stone Age shell middens, as well as fish
traps, apparently constructed by Khokhoi pastoralists, are found along the coast.

The summer holiday season attracts anglers, abalone divers, hikers, beachcombers, ski boaters and surfers
to the main tourist resorts in the area. The seasonal nature of the tourist trade and the fact that the local
communities are too small to support recreational activities throughout the year has discouraged
investment in the tourist industry, consequently the recreational resources have not been developed to their
full potential.

Threats to the area’s biodiversity:

It is estimated that at least 1,400 plant species 5 in the CFK are now endangered or close to extinction.
Although the area has been utilized since the Early Stone Age, the most dramatic change to the landscape
has occurred after 1850, with two major forces responsible for the transformation of indigenous veld :
cultivation and alien plant species. Cultivation of the more fertile shale-derived soils (previously
supporting coastal Renosterveld and Elim fynbos) for cereals, vineyards, pastures and cultivated flowers
covers 22.5% of the area 6. Centuries of intensive agriculture have reduced coastal Renosterveld to between

3
Picker & de Villiers. 1988 Cape Platanna In: Branch, W.R. (ed) South African Red Data Book - Reptiles and Amphibians, ,South
African National Scientific Programmes Report No. 151, CSIR, Pretoria, pp 25 - 28
4
Henning, G.A. 1989 South African Red Data Book Butterflies, South African National Scientific Programmes Report No. 158, CSIR,
Pretoria
5
Cape Action Plan for the Environment – A Biodiversity Strategy and Action Plan for CFK
6
Lombard et. al. , 1997. Reserve design on the Agulhas Plain, South Africa: a flexible tool for conservation in a species-rich and
fragmented landscape. Conservation Biology, 11, 1101 – 1116.

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5 % (in the west) and 35% (in the east) of its former extent 7 and only 1.5% of the original area is
conserved8. Although wildflower harvesting was found to be the region’s largest industry, there is a
growing trend towards the cultivation of many fynbos species, due to an increased European market
demands for product quality.

Furthermore, alien plants, especially wattles from Australia, have invaded almost all of the Agulhas Plain,
with at least 14.7% of the natural habitat being completely converted to dense thickets of invasive alien
plants. Alien plant infestation threatens to displace the endangered fynbos types, such as neutral sand
proteoid fynbos. These thickets reduce the globally significant biodiversity of the area, increase fuel loads,
and hence wildfire hazards, and exhaust subterranean water supplies as a result of increased evapo-
transpiration. The failure to clear invasive alien plants from the catchment of Nuvejaars – Heuningnes
River, is expected to result in reduced water flows, which could cause the closing of the mouth of
Heuningnes estuary. It is estimated that this could mean a financial loss of almost R5 million in the
agricultural sector. However, due to the lack of awareness about environmental, social and financial
benefits resulted from alien clearance, the private landowners are currently not spending nearly enough to
spread the stop of invasive alien plants, and the multi-million Rand intervention by the state is operating
only in few key areas. Where dense thickets of invasive alien plant species occur, particularly Rooikrans
(Acacia cyclops) there is an incentive to harvest this wood for commercial purposes. Studies show that
some form of indigenous plant cover can be readily restored in most degraded areas that have become
densely invaded by alien plants. 9

Inappropriate fire regime is another threat to the lowland fynbos in Agulhas plain and resulted in a
reduced seed production and subsequently reduced plant diversity in the affected area. Fire has been used
for a very long time as a management tool and almost half of the farmers in the region burn their land to
improve wildflower production. Fires are exacerbated by extensive thickets of alien plants, and the
absence of suitably-trained personnel, fire-fighting equipment and firebreaks.

Unsustainable use of the natural resources, such as wildflower harvesting and over-use of marine (e.g.
abalone) and wildlife resources represent other threats to the biodiversity of Agulhas Plain. The rich
coastal, marine and freshwater resources are threatened, with 14 of the 19 species of freshwater fish facing
extinction. The root causes are a large poverty-stricken population on the Agulhas Plain, which have few
other alternatives than over-use of natural resources. However, of all these factors, by far the unsustainable
use of fynbos flowers for sale is probably the most serious threat. The PDF B will quantify the extent of
this extraction in order to develop priority actions.

Finally, indiscriminate coastal development and urbanization is destroying and degrading the integrity of
coastal habitats and ecosystem processes, as well as exacerbating pollution problems and increasing
pressure on already over-utilised natural resources.

In summary, the main threats to the biodiversity of Agulhas Plain are:

 Clearing natural vegetation for agriculture

 Alien plant infestation inside and outside the Park
 Unsustainable wild flower harvesting from the fynbos (inside and outside the park)
 Inappropriate fire regime
 Indiscriminate coastal development and urbanization

The root causes of these threats are :

 Poverty of local residents

 Lack of alternative economic strategies for both traditional and commercial sectors
 Lack of incentives for coordination among private landowners, and with the public sector.
7
Heijnis et. al. 1999 Picking up the pieces: A biosphere reserve framework for fragmented landscape – The Coastal lowlands of the
Western Cape, South Africa. Biodiversity and Conservation, 8, 471 – 496.
8
Rebelo, A.G., 1992 Preservation of biotic diversity. In The Ecology of Fynbos. Nutrients Fire and Diversity. (ed. R.M. Cowling) pp. 309
– 344, Oxford University Press, Cape Town.
9
Holmes and Cowling, 1997 The effects of invasion by Accacia saligna on the guild structure and regenration capabilities of South
African fynbos shrubland. Journal of applied ecology, 34, 317 – 332.

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 Lack of awareness of the value, importance and vulnerability of biodiversity resources

Baseline
Most of conservation initiatives in CFK have occurred in the mountainous landscape of Cape Folded Belt.
The same cannot be said of the lowlands, where agriculture (land clearing, flooding of valley bottoms for
dams, drainage of wetlands), alien invasive plants, and coastal resorts have transformed much of the
landscape, and remnant areas of natural habitat are being lost at an ever increasing-pace. This together
with the threats from inappropriate fire management and unsustainable flower harvesting is having an
increase negative impact on the fynbos biodiversity.10

Agulhas Biodiversity Initiative aims to complement significant baseline activities for the conservation of
Agulhas region already underway by SANP and FFI and their partners. The following activities have been
already undertaken by SANP and its partners for addressing the root causes of biodiversity loss in Agulhas
Plain:

Some of the core priority areas for conservation in the Agulhas Plain have already been secured through
the actions of SANP, WCNCB and FFI, via land purchase, contractual agreements with private land
owners and the establishment of Conservancies. It is estimated that approx. US$ 6.3 million were invested
over the past five years by SANP, FFI and their partners in conservation management planning (US $ 4.5
million), development and implementation of sustainable resource use models (US$ 440,000), sustainable
nature-based tourism (US$ 1.1 million) and environmental education/public awareness activities (US$
260,000). These are described below in detail. Furthermore, there is a commitment from the above
organizations for additional investment in the area totaling approx. US$ 7.2 million for the next five
years, mainly in terms of land purchase, infrastructure building and staff salaries. However, effective
conservation of the Agulhas Plain’s endemic biodiversity requires more funds to support capacity building
for the participatory development of a conservation management plan with the involvement of the key
stakeholders from public and private sector and the development and implementation of the mechanisms
to reduce the pressure on the natural resources and increase the benefits from conservation.

a. Conservation management planning for the Agulhas Plain

Official designation as National Park: The Board of SANP approved in 1996 the establishment of a
national park in the Agulhas Plain, following a through assessment of the area’s conservation potential.
The Minister of Environmental Affairs and Tourism officially announced the creation of the park on 1
March 1999 and the first portions were proclaimed in September 1999 in accordance with the terms of the
National Park Act. The park has currently 11,000 ha and plans to expand up to 20,000 ha. However, the
expanded Agulhas National Park covers only half of the area in need of conservation in the Agulhas Plain.
Consequently, SANP together with its partners identified an additional area of 27,000 ha which will be
managed in partnership with the WCNCB, private landowners, local NGOs and communities as mosaic of
different land-uses to ensure that effective conservation of much of the biodiversity of the lowland fynbos
is achieved. This is the first example in South Africa where a flexible, strategic and systematic
conservation planning approach has been used to plan a system of conservation areas. SANP has already
hired four people to work at the temporary administration of the Park in Stanford and recently purchased
the LightHouse in Agulhas, which will be developed with the assistance of the proposed project in the
main Park headquarters. While substantial amount of funds have been already invested for the
establishment of the National Park, and more have been approved by SANP for the next five years, it is
not enough to cover the establishment of inter-sectoral, efficient management systems to secure the
conservation of biodiversity in the area. There is an urgent need to shift the traditional sectoral approach
of SANP in park management planning. Consequently, additional resources will be needed to lift the
institutional and technical barriers by building the capacity of the new Park staff and other organizations
operating in the area for establishment of appropriate administrative structures and organizing more
stakeholder consultation in participatory development of management planning.

10
Cowling et. al. , 1998. Systematic conservation planning for the CAPE Project. Conceptual approach for the terrestrial biodiversity
component. Report no: IPC 9803 CAPE, Institute for Plant Conservation, University of Cape Town. Rondenbosch.

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Land purchase for conservation:

SANP bought some of the most vulnerable areas in the Plain as part as the Agulhas National Park using
the internal development fund for land purchases. However, the funds generated from this scheme are not
sufficient to consolidate all important conservation areas. Consequently, SANP approached Fauna & Flora
International, to help with the purchase of additional parcels of fynbos. In March 2000, the two
organizations signed a MoU covering the development of Agulhas National Park and increase the land
under conservation management in the region. Following this, FFI have provided funds for the purchase
of land on the Agulhas Plain that was imminently destined for vineyards. Currently, 11,000 ha have been
secured through purchase and contractual agreements and more land will be purchased using the internal
SANP funds and other sources of funding (such as FFI) in the course of the proposed project.

Public-private sector partnership to increase the land under conservation

There are two models of public-private sector partnership for conservation pertinent for Agulhas Plain:
contractual national parks implemented by SANP and conservancies implemented by Western Cape
Nature Conservation Board. The former is bound by a formal contract between the landowners and SANP
and provides mutual benefits for both partners, while fulfilling conservation goals over the long term.
SANP has already entered in contractual agreements with some of the landowners in the Agulhas Plain.
Preliminary discussions have indicated that the Elim community, owners of one of the richest areas in
endemic Elim fynbos, would be willing to investigate the inclusion of Geelkop area (with many endemic
Proteaceae) into the Agulhas National Park on a contractual basis. Although important steps have been
taken towards securing more land for conservation, there is an urgent need for additional assistance to
consolidate this type of partnership, provide increased awareness among the local landowners about the
long-term benefits from conservation, and develop incentives for sustainable use. Consequently, the
project would provide support to participatory development and implementation of models for sustainable
use of the fynbos resources, and lift barriers to its adoption by developing a certification system for the
fynbos products, and stakeholder workshops to increase the number of contractual agreements to cover
some of the very endemic rich areas.

The conservancies encourage conservation outside protected areas through cooperative management. In
1998, under the leadership of Western Nature Conservation Board, SANP, Grootbos Private Reserve and
Flower Valley Conservation Trust, 12 landowners in the western section of Agulhas Plain established the
Walker Bay Fynbos Conservancy. The aim of the conservancy is the protection of the highly sensitive
fynbos biodiversity in the area and one of the largest pristine milkwood forests in South Africa (at
Grootbos). During 2000, the Walker Bay Conservancy together with the financial support of its members,
undertook a baseline survey of the area as a basis for a strategic plan for the area, including zoning, alien
clearance, fire management strategy, and tourism. The proposed project will build capacity of this
conservancy to develop and implement model management guidelines for the area and replicate the
experience gained to other regions in the CFK. In addition, the planned eventual designation of the area
as a Biosphere Reserve will bring attention to the Agulhas Plain and provide incentives for establishment
of further Conservancies.

Alien vegetation clearance. The Department of Water Affairs and Forestry’s Working for Water Program
and the Department of Agriculture’s Landcare Project are major initiatives in Agulhas Plain which aim to
provide employment for the socially marginalized sectors through ecological restoration works that will
provide national economic benefits. SANP has been able to secure funds from the Working for Water
Program for alien vegetation clearance in Agulhas Plain, which created almost 300 jobs and cleared
approx. 4000 ha of invasive plant species over two years. There is an urgent need to identify and apply the
incentives for the landowners in the Agulhas Plain to clear their land of alien plant species, such as
commercial value for the obtained wood. The project would lift technical and economic barriers by
identifying priority conservation areas in the project site with dense thickets of alien plant species,
developing in a participatory manner uses for the harvested wood and increasing the awareness of the
landowners about the long-term benefits resulting from alien clearance. The project would also build upon
the SANP experience in Elim village and Flower Valley farm, where the harvested wood was sold for
firewood, or used for furniture. The areas cleared of aliens also need to be restored to fynbos or other
natural habitats, and this requires some positive intervention in the form of follow-up monitoring,
clearance of regenerating aliens, re-seeding of indigenous species, etc. Little such habitat restoration work
is currently underway, and the PDF B will determine the level and scope of existing action and the level of
increased intervention needed.

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Fire Management Strategy. Recently a National Veld and Forest Fire Act was promulgated. Under this act,
a veldfire management strategy must be prepared and landowners must create and maintain firebreaks and
ensure they have the correct equipment and trained personnel. There is a general acknowledgment that
landowners must work together to manage runaway veld fires. However, due to lack of awareness and
coordination among the landowners in Agulhas Plain, fires continue to affect large surfaces. The project
would lift the technical barriers by building the capacity of the main stakeholders in Agulhas Plain to
establish a Forest Fighting Team and participatory develop and implement a coherent fire management
strategy to assist with controlled burning of veld and when necessary to fight uncontrolled fires. Clearing
of alien invasive species will provide additional benefits in reducing the incidence and severity of fires.

b. Development of models for sustainable harvesting of wild fynbos flowers

Fauna & Flora International, the world longest established international conservation NGO, is very active
in the Agulhas Plain in enhancing fynbos conservation, through: (i) development of sustainable harvesting
practices for fynbos wildflowers in collaboration with Flower Valley Conservation Trust (FVCT); (ii)
collaborating with SANP to increase the land under conservation management in Agulhas Plain through
land purchase; and (iii) supporting the establishment of conservancies, such as Walker Bay Fynbos
Conservancy. FFI has purchased a fynbos farm in the name of a local NGO, Flower Valley Conservation
Trust and is working towards development of a certification system for the sustainably and ethically
harvested fynbos flowers. A Certification Working Group was established in mid 2000 composed of
representatives of the major stakeholders and draft guidelines for certification were produced and
distributed for comments. FFI is currently exploring “green-labeling” for fynbos products as a method of
establishing new niche markets overseas. The green-labeling could include information that the product
has been harvested sustainably and ethically from the wild and will have the stamp of approval of
conservation agencies, such as SANP and WCNCB. However, more research, consultative workshops,
awareness and market development activities will be required to achieve the expected outcome. The PDF
B will determine the exact nature of activities to be financed from GEF incremental costs.

c. Development of models for nature-based tourism

SANP and FFI are working together with the Grootbos Private Nature Reserve, an ecotourism operation
on the western Agulhas Plain. With the support of NORAD, SANP supported the development of bed-and-
breakfast businesses in the local communities of Elim. However, more funds are needed to improve the
infrastructure in the region, promote the eco-tourism and build the capacity of the local communities to
establish their own micro-enterprises. Many of these opportunities are coordinated in the region by the
Fynbos Ecotourism Forum, which aims to promote sustainable, fynbos-based tourism on private and
community-owned land. SANP have already committed funds for the next five years to build the
infrastructure for tourism in Agulhas National Park. However, the first priority will be the participatory
development of a coherent framework for nature-based tourism in and around the Park and an increased
involvement of the local communities. Therefore, the project would lift the technical and economic
barriers, by building the capacity of the main stakeholders, including local communities to work in
partnership to develop a framework for ecotourism in the region where all actors will benefit. The PDF B
will determine the type of models to be developed in the region and funded by GEF.

The indiscriminate coastal development is largely connected with tourism. Several government authorities
have an interest in this issue, but the lead roles are played by the Chief Directorate of Planning in the
Western Cape Department of Planning and the Overberg District Council. Currently, these authorities
have neither the resources, nor the information needed to undertake bioregional planning as envisaged by
the CAPE Strategy, hence the nature and scale of the threat. The project will address this by providing an
overall tourism strategy for the Agulhas Plain and by raising awareness of planning authorities of the need
for bioregional planning.

8. Project Rationale and Objectives:

Project Objective: Biodiversity conservation of the Agulhas Plain, through establishment and
implementation of effective, inter-sectoral, participatory planning and sustainable management of natural
ecosystems and associated landscapes inside and outside National Park, and mechanisms to support
replication of these activities at other priority conservation sites.

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Project rationale:
ABI is a coherent and comprehensive program designed to address a multiplicity of inter-linked
conservation, development and socio-economic aspects in the Agulhas Plain. The baseline scenario is that
the existing institutions concerned with conservation would continue to work in isolation and based on a
sectoral approach, with inadequate capacity to establish an integrated management system for the entire
area, or to implement sustainable harvesting practices for the wild fynbos flowers. The private landowners
and local communities will fail to understand the long-term benefits of fynbos conservation, without the
development of incentives and mechanisms to ensure their direct participation and benefit from the
sustainable use of the resources and control of fires and alien species. Consequently, they will sell or
transform pristine lowland fynbos to vineyards or cultivated flowers, which are very profitable on a short-
term. In the absence of an integrated management plan for the Agulhas Plain, expected impacts (resulting
from cultivation, spread of invasive species and unsustainable resource use) would result in loss of
globally significant lowland fynbos biodiversity.

Agulhas Biodiversity Initiative aims to complement significant baseline activities already underway by
SANP, FFI and their partners, for the conservation of the globally significant biodiversity of Agulhas
Plain. The GEF Alternative is necessary for assisting the executing agencies to provide an innovative
approach to integrated, inter-sectoral conservation management, through enhancing the public/private
partnership to collaboratively address the main threats to biodiversity. The GEF Alternative will, therefore,
assist the proponents to conserve biodiversity inside and outside protected areas, while ensuring the
equitable share of benefits among the stakeholders, including local communities.

The GEF increment will contribute directly to addressing the threats to the globally significant
biodiversity in Agulhas Plain. In addition, it will lift the institutional and technical barriers by building
the capacity of the conservation agencies, NGOs, private landowners, and local communities in Agulhas
Plain to work in partnership to develop and implement new models for participatory management
planning, for sustainable use of fynbos resources, and for nature-based tourism inside and outside the
National Park. In addition, the GEF increment will remove the barriers associated with the lack of
awareness of the benefits resulted from fynbos conservation and management by supporting the
development and implementation of a fynbos awareness strategy targeted at the main stakeholders.

9. Expected outcomes and activities of Full Project:

The GEF Alternative - to be developed with the PDF-B resources and co-financing - is expected to result
in the (1) development and implementation of a participatory conservation management plan for the
Agulhas National Park and Agulhas Plain as a whole; (2) development and implementation, in
demonstration sites, of a model for sustainable harvesting of wildflowers in lowland fynbos in Agulhas
Plain, including in the “category 2” areas of Agulhas National Park; (3) establishment of a strategic
planning framework for nature-based tourism in Agulhas Plain, inside and outside the Park; and (4)
building the local and national support for biodiversity conservation through a public awareness program.
In addition, the GEF Alternative will support replication of the models developed and experience gained
in other regions of South Africa.

The following is a description of the types of activities that the GEF Alternative may be expected to
undertake during the Full project. The exact nature of the GEF increment will be determined during the
PDF B, but is expected to cover activities that directly address threats to globally significant biodiversity
in the Agulhas Plain, and lift barriers to the sustainable use, management and replication of successful
models in the Agulhas National Park as well as in the conservancies and productive landscapes outside the
Park. This project will be carried out by SANP and FFI together with other key partners over a period of
five years and will promote the following outcomes (these will probably be subject to revision or
supplementation based on the findings and results of PDF B activities):

COMPONENTS AND ACTIVITIES:

Component 1: Development and implementation of conservation planning and management system

This project component will be coordinated by SANP and will cover conservation management activities
for the entire project site (inside and outside National Park). The outcome will be achieved through : (a)
establishing of park administrative structures; (b) capacity building of the park staff; (c) establishment of

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participatory collaborative park planning and management systems; (d) integrate cultural heritage
concerns into management planning; (e) develop and initiate a fire management strategy; (f) Alien
vegetation clearance programme; (g) rehabilitation and restoration of degraded lands; (h) assessment of
biosphere reserve status for the entire Agulhas plain; and (i) development and implementation of a
strategy for increasing the land under conservation management.

a. Establish park administrative structures: This sub-component implemented in Agulhas National Park
would (i) provide staff; (ii) establish the Park Committee; (iii) provide buildings, including visitor
center, entrance gates and information points; (iv) provide facilities and equipment for visitor center;
(v) provide vehicles; and (vi) field equipment.
b. Capacity building will be implemented in Agulhas National Park. Based on the a participatory
institutional and staff needs assessment undertaken in the early stage, the project would (i) develop
and implementation of training modules for park staff, including training in park ranger skills and
GIS/Information management and (ii) organize study tours and exchange programs with other parks.

c. Establishment of participatory collaborative park planning and management system for the Agulhas
National Park through (i) baseline ecological surveys for both terrestrial and marine ecosystems to
form the basis of the conservation area management plans; (ii) stakeholder analysis and consultation;
(iii) develop and conduct biodiversity monitoring systems; and (iv) develop collaborative park
management plan, which would include: boundary analysis, zoning and management plan
development.

d. Integrate cultural heritage concerns into management planning . The project would support (i)
gathering of information about the cultural heritage sites in the Agulhas Plain and (ii) development of
recommendations on the requirements for their protection which have to be integrated in park
planning.

e. Develop and initiate a fire management strategy for the entire project site, will built upon SANP
experience and will be achieved through (i) stakeholder identification; (ii) development of
participatory mechanisms to involve the identified stakeholders, through creation of Fire
Management Committee; (iii) establish rapid-response units for fire management and control; (iv)
assessment and mapping of the area; and (v) develop the GIS-based fire management plan.

f. Alien vegetation clearance program will be implemented in selected demonstration sites within the
entire project site and will build upon the SANP experience in the region. This sub-component will be
achieved by (i) participatory identification of priority areas in the project site for further alien
clearance; (ii) development and testing of alien clearance techniques that provide incentives to land
owners; (iii) adapting the existing alien monitoring system; and (iv) identifying the priorities for
follow-up.

g. Rehabilitation and restoration of degraded areas will be achieved by (i) participatory identification of
priority areas to be restored and (ii) development and implementation of restoration plan.

h. Assessment of Biosphere Reserve status, through stakeholder consultation, based on the bio-regional
planning process undertaken in the area.

i. Development and Implementation of a strategy for increasing the area of land under conservation
management will be achieved through (i) land acquisition through purchase; (ii) contractual
agreements with SANP; (iii) support and development of conservation management guidelines for
Walker Bay Fynbos Conservancy as a model for public/private partnership in conservation, to be
replicated throughout CFK; and (iv) innovative mechanisms to enhance the biodiversity conservation
on private land.

Component 2: Development and implementation of a model for sustainable harvesting of

wildflowers in lowland fynbos

This component will be implemented by Fauna & Flora International and Flower Valley Conservation
Trust (FVCT). The component will entail: (i) research on current harvesting practices; (b) identification

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and implementation of harvesting levels sustainable at the ecosystem level; (c) designing and
establishment a biodiversity monitoring program; (d) support the establishment of certification system; (e)
identification and implementation of biodiversity –friendly micro-enterprises using fynbos products for the
local communities in the project area; (f) market survey; and (g) development of a replication strategy to
extrapolate the best practices to other communities, private landowners and commercial farms in other
areas in the region.

a. Targeted Research on current harvesting situation will provide financial assistance to a masters level
student to: (i) Conduct a baseline study on the resource base and the level and type of harvest; (ii)
gather information on the different patterns of fynbos exploitation; and (iii) undertake harvesting
impact studies on fynbos habitat.

b. Determine and implement levels of harvesting that are sustainable at the ecosystem level will (i)
determine sustainable biodiversity friendly harvesting methods; and (ii) implement sustainable
harvesting methods at Flower Valley farm and other demonstration sites, with the Flower Valley
Conservation Trust.

c. Design and establish a biological monitoring program will (i) provide the equipment to Flower Valley
Conservation Trust; (ii) design a biological monitoring system for harvested fynbos flowers; and (iii)
support the continuous data collecting and processing for long term monitoring and evaluation.

d. Support the establishment of an appropriate certification system will be achieved through working
together with West Cape Nature Conservation Board, Botanical Society, and farm owners to
undertake an (i) institutional needs assessment for a coherent certification system; (ii) capacity
building, based on the needs assessment recommendations, including training for the certification
agency staff and the flower pickers; (iii) develop the guidelines for an internationally recognized
certification system; and (iv) determine the species to be certified and the protocols for each species.

e. Identification and implementation of biodiversity –friendly micro-enterprises using fynbos products

for the local communities in the project area will entail (i) economic valuation of resource use options
in close collaboration with communities, including, but not limited to: essential oils, handmade paper,
Christmas decorations, medicinal plants, handicrafts etc.; (ii) establishment of participatory
mechanisms to encourage local communities participation in micro-enterprise development, including
stakeholder analysis, establishment of resource-use committees and facilitated workshop with the
resource-use committees for participatory design and implementation of alternative livelihoods; (iii)
establishment of mechanisms to support economic development activities that are compatible with
conservation objectives, through development of decision making mechanisms and criteria for
selection of appropriate business opportunities, and provision of funds to support acceptable
development activities; and (iv) provision of funds to support biodiversity-friendly community-based
micro-enterprises

f. Market survey , will entail a survey of interests of local and international importers primarily USA,
UK and other EU countries, Japan, etc., in parallel with identification of production potential of
community processing systems and the development of a marketing strategy.

g. Development of a replication strategy to extrapolate the best practices to other areas in the region .
Based on a participatory identification of the areas interested in replicating the model the project will
provide financial assistance to organize exchange programs between the agencies/farms/community
associations.

Component 3: Establishment of a strategic planning framework for nature-based tourism in Agulhas

National Park

This component will be implemented by South African National Parks and will entail (a) participatory
assessment of potential nature-based tourism opportunities that support conservation objectives; (b)
development the local community capacity to participate in nature-based tourism; (c) development and
implementation of an integrated tourism monitoring system; (d) establishment of a nature-based tourism

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strategy for Agulhas National Park; (e) development and maintenance of an appropriate tourism
infrastructure in the Agulhas National Park; and (f) development of a replication strategy.
a. Participatory assessment of potential nature-based tourism opportunities that support conservation
objectives will cover the costs associated with the (i) compilation of the most recent statistics and
potential market growth for nature/cultural tourism for the Cape region in the context of tourism
trends for South Africa; (ii) assessment of a sample of other similar nature-based tourism initiatives in
South Africa in order to assess the tourism potential of the Agulhas plain; (iii) assessments of likely
natural and cultural tourism attractions in the area; (iv) determine the carrying capacity for different
zones and different tourism activities; (v) review and adapt the regulations to control the nature and
level of activities; and (vi) organize and conduct stakeholder workshops to disseminate results and
identify capacity and interest in participation in nature-based tourism activities.
b. Develop local community capacity to participate in nature-based tourism will entail (i) identification
of potential profitable nature-based tourism activities for local community involvement, especially the
historically disadvantaged; (ii) establishment of community tourism associations; (iii) participatory
training needs assessment and implementation of training modules: local guides, running a B&B,
business plan development etc; and (iv) development and implementation of micro-credit schemes to
support local communities initiatives in nature-based tourism.

c. Develop and implement an integrated tourism monitoring system will include: (i) the design of a
Tourism Information System; (ii) monitoring tourism patterns, scale and trends; (iii) m onitoring the
tourism impact on biodiversity; and (iv) monitoring the tourism impact on the regional economy.

d. Develop a nature-based tourism strategy for Agulhas National Park will entail (i) development of a
detailed implementation plan for the establishment of a nature-based ecotourism infrastructure and
services for the Agulhas plain; (ii) review of target market and activities for both nature and cultural-
based tourism to be offered; (iii) identification of investment requirements, potential private sector
investors and partners; (iv) identification of links with other tourism services and products (to offer a
broader range of activities to potential visitors); (v) identification and contact potential local and
international marketing partners; (vi) development of mechanism to ensure accessibility for local
community to the resource; and (vii) support the adoption of bioregional planning for development by
local authorities.

e. Development and maintenance of an appropriate tourism infrastructure in the Agulhas National Park
will cover the funds associated with the (i) design and lay-out for infrastructure; (ii) building day
walking trails; (iii) building over night trail and facilities; (iv) camping facilities; (v) local village-
style rest camps; and (vi) provision of small interpretation centers, signage, information boards, bird
hides, whale and seal watching structures.

f. Development of a replication strategy. The project will support the (i) identification and prioritization
of areas for replication; and the (ii) development of mechanisms to replicate the sustainable nature-
based tourism throughout the region, such as exchange programs, training, providing expert
assistance to other sites in the region.

Component 4: Build local support for biodiversity conservation through public awareness and
environmental education programs

SANP and FVCT together with their partners will implement this component through the development
and implementation of targeted action plans for raising the awareness of specific stakeholder groups and
the general public about the importance of, and opportunities for, biodiversity conservation in the Agulhas
Plain. This component will also address the issue of indiscriminate coastal development through the
mechanism of bioregional planning, by raising awareness within planning authorities of the need to
integrate biodiversity considerations into development plans.

Develop and implement of a Fynbos Awareness Strategy promoting the benefits derived from conservation
and sustainable harvesting of fynbos will entail (i) review the status, trends and historical context of
fynbos ecosystems and their management, together with their ecological, economic and cultural
significance in Agulhas Plain; (ii) review the current production and assess production potential; (iii)

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review existing and potential impacts and influence of key stakeholder groups on fynbos management and
biodiversity in Agulhas plain; (iv) identification and prioritization of key constraints to conservation and
sustainable management of fynbos caused by lack of awareness on the part of identified stakeholder
groups; (v) identification of the information needs for each identified group; (vi) identification of cost
effective delivery mechanisms to address these information needs; and (vii) deliver the awareness program
targeted at different audiences.

10. Sustainability and replicability of the full project

Project design has addressed institutional sustainability through strengthening the capacity of SANP and
its key partners to develop and implement participatory conservation management plans and models for
sustainable use of natural resources for most of the Agulhas Plain. South Africa National Parks, which has
strong institutional capacity and a proven track record for parks’ management at the country level will
have lead responsibility for project implementation and will continue to manage the Agulhas National
Park after the end of the project. Initiatives to engage local communities and other local stakeholders,
including private landowners, in project preparation and implementation and in sharing the benefits from
lowland fynbos conservation and sustainable use should contribute to social sustainability. With regards to
financial sustainability, SANP has demonstrated consistent financial commitment to purchase land in
Agulhas Plain, promote contractual agreements, provide the staff for the Agulhas National Park, since
1996 and for the implementation of the ongoing GEF – financed projects in Cape Peninsula National
Park, Addo National Park and Namaqualand. SANP have committed to contribute to the recurrent costs of
the project, and to financially support National Park management after completion of the project. The
biodiversity-friendly micro-enterprises based on fynbos resources, which will developed as a result of the
project, will increase the livelihoods of the local communities and will provide the financial mechanisms
to support conservation outside the National Park. In addition, the project will review and support
establishment of a certification system to provide for higher priced markets for the wild fynbos flowers
derived from sustainable harvested fynbos. Both SANP and FFI will provide contributions to support
sustainable conservation and public awareness from revenue generation more directly related to park.

The experience gained and participatory models developed in the project preparation and implementation
have a high potential to be replicated elsewhere in the Cape Floral Kingdom and in South Africa. The
project would support the development of a replication strategy, as a part of the development and
implementation of sustainable resource use component.

11. Country Eligibility:

South Africa ratified the Convention on Biological Diversity on 2 November 1995.

The project is consistent with GEF Operational Strategy and with Operational Program 1 on Arid and
Semi-arid ecosystems. ABI’s focus, specifically on in-situ conservation, supports implementation of Article
8 of the Convention on Biological Diversity by strengthening support for protected areas. The project also
addresses the GEF 1999 Action Plan on Land Degradation, as well as CBD COP 5 guidance on focusing
on Drylands. The project is consistent with Agenda 21, and guidance from the Conference of the Parties,
since it will promote conservation, management and sustainable use of natural resources, which include
endangered and vulnerable species; involve local communities and build partnerships at local, national
and international levels and promote cost effective measures to conserve biodiversity.

12. Stakeholders involved in project:

The key stakeholders relevant to project objectives are:

Governmental organizations: Department of Environmental Affairs and Tourism, Department of
Agriculture, Department of Water Affairs and Forestry
Parastatal agencies: South African National Parks, West Cape Nature Conservation Board,
Western Cape Tourism Board, National Botanical Institute
Local authorities: Overberg District Council, Bredasdorp municipality, Hermannus
municipality, Planning Department of Western Cape, Overberg
Tourism, Local Tourism Bureaus

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Local communities: Struisbaai, Gansbaai, De Kelders, Pearly Beach, Bredarsdorp and

Agulhas towns; Baardskeerdersbos, Viljoenshof and Elim mission
villages; and communities living near the farms
Academic community: Universities of Cape Town, of Western Cape, Stellenbosch,
Grahamstown and Port Elizabeth, Cape Technicon
Private sector: Walker Bay Fynbos Conservancy, Grootbos Private Reserve, Tourism
related businesses, tour operators, fynbos farmers
Local and national NGOs: Flower Valley Conservation Trust and Botanical Society of South
Africa
International NGOs: Fauna & Flora International and EarthVoice

During the course of the preparation and implementation process, SANP and FFI will organize
consultative workshops with these stakeholders to ensure that: (a) community input is fully considered and
integrated for data collection purposes; (b) communities are aware of project objectives and activities; (c)
communities participate in project design and implementation; and (d) project development is integrated
with ongoing and planned initiatives in the country and particularly the project area.

13. Information on project proposer:

South African National Parks is the statutory agency responsible for the national network of protected
areas. Its mission is to acquire and manage a system of national parks that represents the indigenous
wildlife, vegetation, landscapes and significant cultural assets of South Africa, for the joy and benefit and
spiritual well being of the nation and the people of the world.

Fauna & Flora International is the world’s longest established international conservation organization. Its
mission is conservation of threatened species and ecosystems worldwide, choosing solutions that are
sustainable, are based on sound science and take account of human needs.

14. Financing Plan of Full project

Agulhas Biodiversity Initiative is a five year project with a total estimated cost of about US $ 10,470,000,
of which US$ 7,200,000 is expected to be contributed by the SANP, FFI and others and about US$
3,270,000 is requested from GEF. This is a ratio of about 32% GEF to 68% other co-financing. The exact
budget and contributions will be finalized during the PDF B. The total value of the preparation activities
under the PDF B is US$ 116,050, of which SANP requests PDF B grant of US$ 73,550. The project
preparation phase will take five months (see attached TOR).

15. IA coordination and Linkages to GEF and IA programs and activities

GEF activities with potential influence on the proposed project

The project will build upon SANP experience in implementing part of the GEF-financed Cape Peninsula
Biodiversity Project, which started in 1997 and is administered by the World Bank. In fact, the project
identification phase of ABI was a result of the broad consultation process facilitated by the CAPE
component of the above project. More, ABI will build upon the experience gained in the GEF/World bank
– financed Addo Elephant project in Eastern Cape which is implemented by SANP and is currently in the
preparation phase.

Linkages to UNDP projects in the area

UNDP is currently implementing a L.I.F.E. (Local Initiative Facility for Urban Environment) project in
the Cape area, which was launched in 1999. LIFE uses urban environmental-small scale projects to
promote dialogue at local level amongst and between stakeholders, the community at large and local
authorities in an effort to promote public-public partnerships. The main objectives are: (i) to demonstrate
local solutions to urban environment problems; (ii) to strengthen institutional capacities and collaboration
through small-scale projects involving NGOs, CBOs and local authorities; (iii) to facilitate policy dialogue
at grassroots level and scaling up based on local initiatives through national and local consultations
involving NGOs, CBOs and local authorities; and (iv) to promote the exchange and replication of
successful approaches and innovations. ABI will build upon the experience gained in the LIFE project in
the development of partnerships and broad-scale stakeholder consultation and participation in decision

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making process. In addition, the LIFE Project manager will be invited to be a part of the ABI Project
Oversight Committee.

The NBSAP will be implemented through the National DEAT, with UNDP-GEF assistance. The projects
will liaise with each other in order to transfer lessons learnt. Finally, the project will remain in contact
with the pipeline project in the Wild Coast, particularly with its component on promoting models for eco-
tourism being co-financed through the EU.

Consultation, Coordination and Collaboration between IAs, and IAs and EAs
The Project would establish a Project Oversight Committee composed of representatives of the Cape
Coordinating Committee, SANP, WCNCB, Botanical Society, FVCT, Walker Bay Fynbos Conservancy,
Project Manager of UNDP LIFE Project, UNDP-GEF, WWF-SA, FFI, private landowners and others to be
determined during the PDF B. The Project Oversight Committee will be chaired by SANP and will be
responsible for providing project oversight advice and assistance in resolving issues associated with
project implementation. The composition of the Project Oversight Committee will be decided during the
project preparation phase.

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Attachments:

1. Maps of project area

A g u lh a s N a tio n a l P a r k
(J u n e 2 0 0 0 )

Q u o in P o in t

K ey
F a r m la n d N
S A N P a n d o th e r S ta te L a n d C a p e A g u lh a s
F u tu r e C o n tr a c tu a l N a tio n a l P a r k
O t h e r im p o r t a n t w e t la n d s t o b e a c q u ir e d W E
R h e n o s t e r v e ld ( m o s t ly t r a n s f o r m e d )
M u r ie l v a n B r e d a
P r io r it y f y n b o s t o b e a c q u ir e d b y S A N P
S
R iv e r

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10.
V h e m b e / D o n g o la N P Z im .
M oz.

K ru g e r
M a r a k e le N P
B o tsw a n a N P
N o rth e rn P ro v in c e

N a m ib ia
S u n C ity
K g a la g a d i M p u m a la n g a M a p u to
T r a n s fr o n tie r M m a b a th o P r e to r ia
P a rk G a u te n g
N o rth W e s t P ro v in c e M babane
S w a z ila n d

R ic h t e r s v e ld G o ld e n G a te N P
F re e S ta te
N P
V a a lb o s N P
N a ta l
A u g r a b ie s N P B lo e m fo n te in M aseru
N am akw a L e s o th o
D u rb a n
N P
N o rth e rn C a p e P ro v in c e

Ta n kw a
K a ro o N P K a ro o N P
E a s te rn C a p e P ro v in c e

M o u n ta in Z e b r a N P
e an
Oc
n
A d d o E le p h a n t N P ia
C a p e P e n in s u la N P
W e s te r n C a p e P r o v in c e In d
B o n te b o k
C ape Tow n N P T s its ik a m m a N P
C ape of G ood Hope W ild e r n e s s
K n y s n a N a tio n a l L a k e s A r e a
NP

A g u lh a s N P

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