“People and Wetlands: The Vital Link”

7th Meeting of the Conference of the Contracting Parties

to the Convention on Wetlands (Ramsar, Iran, 1971),
San José, Costa Rica, 10-18 May 1999

Guidelines for integrating wetland conservation and wise use into

river basin management
Adopted by Resolution VII.18 (1999) of the Ramsar Convention

Contents
Introduction
Institutional frameworks
Assessment and enhancement of the role of wetlands in water management
Minimising the impacts of land use and development projects on wetlands and
their biodiversity
Maintenance of natural water regimes to maintain wetlands
International cooperation

Introduction

1. Wetlands perform a host of ecological and hydrological functions that benefit humankind.
Arguably some of the most important functions of wetlands are their roles in water supply,
water purification and flood control. Wetlands also perform many other important socio-
economic functions, such as provision of habitat for fisheries and forestry resources, and
are critical for the conservation of biological diversity.

2. River basins or river catchments (the land area between the source and the mouth of a
river including all of the lands that drain into the river) and coastal and marine systems
influenced by catchment discharges, are important geographical units for considering the
management of wetlands and water resources. Rapid and unsustainable development of
wetlands, and the river basins in which they sit, has led to the disruption of natural
hydrological cycles. In many cases this has resulted in greater frequency and severity of
flooding, drought and pollution. The degradation and loss of wetlands and their
biodiversity imposes major economic and social losses and costs to the human populations
of these river basins. Thus, appropriate protection and allocation of water to wetlands is
essential to enable these ecosystems to survive and continue to provide important goods
and services to local communities.

3. In the coming millenium, demands on water resources will continue to increase, as will the
levels of pollutants. In order to achieve the goal of sustainable utilisation of freshwater
resources, new approaches to water and river basin management are urgently required. In
the past the water resources and wetlands have tended to be the responsibility of separate
sectoral agencies, frequently with very different objectives and modes of operation. As a
 Resolution VII.18, page 2

result there have been, and continue to be, regular conflicts over water resource use and
river basin management. Regrettably, in these considerations wetlands have not always
been given the priority they deserve based on the important functions they perform in
contributing to the maintenance of healthy and productive river systems.

4. Considering the important roles that wetlands can play in river management, the
integration of wetland conservation and wise use into river basin management, as
promoted by the Convention on Wetlands (Ramsar, Iran, 1971), is essential in order to
maximise and sustain the benefits they together provide to human populations.

Purpose of these guidelines

5. These guidelines were conceived because, though the need to integrate wetlands into river
basin management has been recognised by many governments and global institutions, no
clear guidance on how to do so has been prescribed under the Ramsar Convention on
Wetlands to this point. Therefore, these guidelines are intended to assist the Contracting
Parties with pursuing this goal.

Guidance given by the Convention text and previous decisions of the Conference of the
Contracting Parties

6. The critical linkage between wetlands, water and river basin management is emphasized in
the text of the Convention on Wetlands and in the decisions of the Contracting Parties to
the Convention at the triennial conferences. Notably the second paragraph of the
Preamble of the Convention text states: “Considering the fundamental ecological functions of
wetlands as regulators of water regimes”, and the 6th Conference of the Contracting Parties
(COP6) confirmed through Resolution VI.23 on Ramsar and Water that Contracting
Parties “RECOGNIZE the important hydrological functions of wetlands, including groundwater
recharge, water quality improvement and flood alleviation, and the inextricable link between water resources
and wetlands, and REALIZE the need for planning at the river basin scale which involves integration of
water resources management and wetland conservation.”

7. Resolution VI.23 further calls upon Contracting Parties, in promoting the integration of
water resource management and wetland conservation, to undertake a range of actions
(including the establishment of hydrological monitoring networks on wetlands, studies of
traditional water management systems and economic valuation methods), to involve
National Ramsar Committees and local stakeholders in river basin management, to
support multidisciplinary training, and to work in partnership with water-related
organizations.

8. Operational Objective 2.2 of the Strategic Plan 1997-2002 approved at COP6 urges Parties
“to integrate conservation and wise use of wetlands . . . into national, provincial and local planning and
decision making on land use, groundwater management, catchment/river basin and coastal zone planning
and all other environmental management”.

Institutional frameworks
Integrated river basin management
 Resolution VII.18, page 3

9. Integrated water resources management is based on the concept of water being an integral
part of an ecosystem, a natural resource and a social and economic good, whose quantity
and quality determine the nature of its use (Agenda 21, United Nations, 1992). A water
source that is reliable, in terms both of its quantity and its quality, is a prerequisite for the
survival of human civilization and socio-economic development. Water scarcity, gradual
deterioration, aggravated pollution and infrastructure development has increasingly created
conflicts over the different uses of this resource. The river basin management approach is
an example of an incentive-based participatory mechanism for solving conflicts and
allocating water between competing users, including natural ecosystems.

10. A critical requirement for integrated river basin management is the introduction of land
use and water planning and management mechanisms which focus at the river basin scale.
There is also a need to include consideration of the ecological requirements of marine and
coastal systems that are influenced by catchment discharges. There are many steps
involved in promoting the integrated approach of water resources management. One of
the key issues identified is the division of management responsibilities for one river basin
between different administrative authorities, resulting in fragmented approaches to water
resources planning and management. It is important to realise that water resource planning
and management is a multidisciplinary process and therefore has to be promoted as a
collaborative framework among all the relevant agencies operating nationally and those
involved within the river basin itself, as well as local communities.

11. Another key issue is the lack of awareness of the cross-sectoral nature of water problems
and the need for a new development paradigm towards integrating the technical,
economic, environmental, social and legal aspects of water management. The development
of administrative units in water resource management has to coincide with river basins’
boundaries instead of political boundaries. The lack, or inadequacy, of water legislation
and policies is another stumbling block to integrated management of river basin and
optimal use of water resources.
 Resolution VII.18, page 4

12. The following guidelines should be noted:

Section A

Guidelines for Contracting Parties relating to integrated river basin

management

A1. Identify the key barriers to integrated river basin management and promotion
of land and water use planning/management within a river basin and work to
overcome them.

A2. Develop consultative processes which involve the various sectors and
institutions responsible for water management, environmental protection and
agriculture (at least) and a basin-wide plan for the conservation, utilisation and
management of the water resources.

A3. Integrate wetland conservation into river basin management to benefit

management goals, such as water supply, flood management, pollution
mitigation and the conservation of biological diversity.

A4. Promote the protection and restoration of wetland areas, and their
biodiversity, within river basins.

A5. Develop appropriate and socially acceptable cost-sharing mechanisms to

cover costs involved in the management of river basins.

A6. Promote the establishment of appropriate mechanisms to bring together all

major groups involved in river basin management such as government,
municipalities, water regulatory bodies, academic institutions, industries,
farmers, local communities, NGOs, etc., to contribute towards the
management of the basin.

A.7 Promote appropriate education and public awareness schemes as effective

tools for integrated management of river basins. (See the Convention’s Outreach
Programme, Resolution VII.9.)

Development and strengthening of policy and legislation for integrated water resources
management

13. The shift towards integrated water resources management on a river basin scale requires
the support of appropriate legislation and policy instruments, including economic
instruments such as water pricing policies (e.g. “user pays” and “polluter pays”).
Contracting Parties need to put in place appropriate national water policies and legislation
to enable and facilitate the planning and integrated management of water resources. These
policies need to be harmonised with related policies where they exist such as National
Wetlands Policies, National Environment Plans, National Biodiversity Strategies,
international agreements and legislative frameworks.
 Resolution VII.18, page 5

14. In view of the fact that adequate policies at national and sub-national levels are essential to
guide the proper development, conservation, administration and use of river basins, it is
imperative that all Contracting Parties formulate effective overall policies on the following:

14.1 Allocation of water for the maintenance of all ecosystems including marine and
coastal ecosystems;
14.2 Issuance of permits for water abstraction and use;
14.3 Domestic and industrial water use, treatment of effluent and the safe discharge of
effluent;
14.4 Agricultural water use, mitigation of effects of large water management structures,
return of water, limitations of pesticide and other agro-chemical use;
14.5 Determination of water quality standards for use for various purposes;
14.6 Rules and regulations regarding abstraction and use of groundwater;
14.7 Tariff policies for drinking water supply, agriculture, industrial and other water uses;
14.8 Land and water conservation;
14.9 Integration of water and wetland conservation within the national socio-economic
development agenda;
14.10 Invasive species which have an impact on water.

15. The following guidelines should be noted:

Section B

Guidelines for Contracting Parties on the development and strengthening of policy

and legislation for integrated water resources management

B1. Incorporate wetland management issues into existing water or river basin
management policies and also incorporate water resource management issues into
National Wetland Policies and similar instruments (see Resolution VII.6).

B2. Review existing legislation and, as appropriate, develop new legislation to facilitate
the implementation of key policy issues such as the establishment of River Boards
and Commissions; introduction of economic incentives and disincentives, regulation
of activities which may negatively affect water management (see Resolution VII.7).

B3. Develop a comprehensive National Water Policy (Resolution VII.6) or National

River Basin Management Policy to regulate activities within river basins and
integrate wetland management into the policy and local strategies/action plans.

B4. Recognising that socio-economic development is often critically dependent on the

protection of aquatic ecosystems, encourage different sectors (such as conservation,
water, economic development) to collaborate in allocating or securing sufficient
resources to implement policies and legislation for integrated water resources
management.

B5. Develop appropriate incentive measures (Resolution VII.15), such as demand

management and water pricing strategies to promote water conservation and more
efficient and socially acceptable allocation of water resources.
 Resolution VII.18, page 6

Establishment of river basin management authorities and strengthening of institutional

capacity

16. The institutional structures in place for land and water use should permit the integrated
management of river basins as single units. Fundamental changes in the administrative
structure of water resource management can be achieved through a step by step process.
The first step is to establish a process of cooperation and collaboration between the
agencies responsible for water resources management, environmental protection,
agriculture, etc. Subsequently, representatives of these agencies assist in the establishment
of a coordinating authority that assumes responsibility for managing water resources and
the wetlands of the river basin.

17. The following guidelines should be noted:

Section C

Guidelines for Contracting Parties for the establishment of river basin management
authorities and strengthening of institutional capacity

C1. Set standards and objectives to be achieved (such as water quality and quantity,
physical efficiencies in water use and healthy wetland ecosystems within a river
basin) and determine the options and costs of achieving these objectives.

C2. Make multi-stakeholder river basin management authorities responsible for

preparing river basin management plans;

C3. Where appropriate, the river basin management authorities should consider the
development of cost sharing formulas (such as beneficiaries pay, river basin resident
levies, government subsidies, environmental costs of degradation/ “impacter pays”,
etc.) to raise the funds needed for integrated river basin management, or alternatively
seek these resources from the development assistance community;

C4. Develop mechanisms to facilitate the transfer of resources from downstream

beneficiaries to the protection and management of upper catchments and other
critical areas;

C5. Provide training for water/wetland managers at all levels to understand and
implement the concepts of integrated water resource and river basin management,
including the importance of wetlands;

C6. Provide adequate financial resources to ensure effective operation of organizations

charged with planning and management of water resources, river basin management
and wetland conservation and, as appropriate, seek resources from alternative
sources, such as debt swap for nature arrangements and the establishment of
national or local trust funds;

C7. Strengthen and maintain the capabilities of local institutions (universities, research
institutions and water management agencies) to undertake comprehensive water
demand assessments which include ecological water demands;
 Resolution VII.18, page 7

C8. Strengthen the protection of the upper catchment and other critical areas elsewhere
in the river basin through their inclusion in protected area systems or development
of special management strategies;

C9. Promote the inclusion of staff within river basin management authorities which have
expertise in the ecological functions of wetlands.

Involvement of stakeholders, community participation and public awareness

18. An important element within the concept of integrated river basin management is that
planning and management institutions work with and for the entire community of water
users in the basin, including wetland wildlife and users, as well as relevant stakeholders
outside the river basin. In order to identify the needs and concerns of all water users,
public participation in the planning and management of water resources is an important
goal. (Refer also to Resolution VII.8.)

19. Until relatively recently there was little consultation on river basin and water resource
planning in many countries. A management shift has taken place with a greater role being
provided for civil society, with recent experience showing that effective collaboration
between agencies and local people increases the chance of success in achieving effective
river basin plans. Early consultations with the public can also help identify previously
unknown uses and values of resources in the basin and help determine the relative
importance of different values.

20. The local community can play an important role in managing and monitoring wetlands and
rivers. Several programmes to involve community groups in wetland and river basin
management already exist. For example, the Global Rivers Environmental Education
Network (GREEN) promotes an action-oriented approach to education based on a
successful watershed (river basin) education model. It works closely with business,
government, community and educational organizations across the United States and
Canada and with GREEN country Coordinators in 135 countries around the globe. The
network aims to promote and improve the levels of public knowledge through a global
education network that promotes sustainable management of river basins. It also supports
community-based education through regional partnership activities. Refer to the
Convention’s Outreach Programme (Resolution VII.9) for further consideration of this
approach.

21. The following guidelines should be noted:

Section D

Guidelines for Contracting Parties relating to the involvement of stakeholders,

community participation and public awareness (Refer also to Resolutions VII.8 and
VII.9)

D1. Establish mechanisms to identify and involve stakeholders in planning and

management of river basins and their wetlands, including a review of the land tenure
arrangements within the river basin.
 Resolution VII.18, page 8

D2. Facilitate the active participation of stakeholders, responding to their particular

needs, and sharing of authority and responsibility for resource management
according to arrangements that are agreed by all parties.

D3. Provide fora for open discussion on river basin management between water
management agencies and stakeholders, particularly local communities, to identify
the issues, needs and problems of the community.

D4. Document and promote sustainable wetland and river basin management practices
developed through traditional knowledge and skills.

D5. Support capacity building of community-based organizations and NGOs to develop

skills for monitoring or management of resources within river basins, such as
through the Global Rivers Environmental Education Network (GREEN) model
and programme.

D6. Develop and implement management plans which take into account the goals and
aspirations of the local stakeholders, including the consideration of fair and equitable
sharing of benefits, as the success of such plans depends on the effectiveness of
public participation and support.

D7. Identify, design and implement community-based demonstration projects and

provide additional economic incentives to the local communities.

D8. Design and implement communication, awareness and education programmes on

the importance of wetland conservation to support water resources management,
consistent with the guidelines set out in the Convention’s Outreach Programme
(Resolution VII.9).

D9. Develop awareness campaigns to minimise those activities leading to the degradation
of river systems, such as excessive and incorrect use of inappropriate pesticides and
fertilisers, poor sanitation, drainage of wetlands, and clearance of forests in the
catchment.

Assessment and enhancement of the role of wetlands in water management

Hydrological functions

22. As indicated previously, wetlands perform a host of ecological and hydrological functions.
These include mitigating the impacts of floods, reducing erosion, recharging groundwater
and maintaining/improving water quality. As such, wetlands can be managed to secure a
range of objectives in water resources management, such as to maintain water supply and
quality, to recharge groundwaters, to reduce erosion, and to protect the human population
from floods.

Assessment of functions
 Resolution VII.18, page 9

23. In order to maintain or enhance the role of wetlands in water resource management, it is
necessary first to identify and assess the benefits which a particular wetland provides.
Three steps are needed in this process:

23.1 inventory and description of the wetlands (refer to Resolution VII.20);

23.2 identification of the particular attributes and functions that may play a role in water
management;
23.3 quantification of such functions.

24. While it may be desirable to have long-term and detailed studies, it is often more
appropriate to use rapid assessment techniques to determine the relative importance and
functions of wetlands within a river basin. Initial functional assessment is a process
whereby the general physical and biological characteristics of wetlands are used to predict
which functions are most likely to be present at a site. This assessment should be carried
out together with an initial inventory of wetlands. The assessment is neither definitive nor
quantitative. Initial assessments put wetlands on relative scales with respect to particular
functions. Initial functional assessment is necessary to estimate the capacity and
opportunity of wetlands to meet specific needs. These evaluation assessments can be
conducted on wetlands to identify their potential roles in flood control, improving water
quality, sediment retention and input into ground water supply.

25. Examples of such functional assessment techniques include The Wetland Evaluation
Technique (WET) and Functional Capacity Index, both used by the US Army Corps of
Engineers, and the Functional Analysis of European Wetland Ecosystems (FAEWE)
method developed in Europe. These techniques incorporate a number of elements
including:

25.1 establishment of a database from desk and field studies;

25.2 functional assessment procedures including quantitative and qualitative assessment,
assessment of susceptibility to impacts and economic evaluation of functions; and
25.3 modeling and monitoring procedures.

Enhancement of functions

26. Once the functions have been determined, it is possible to assess the role that the wetlands
could play in the management of water resources within a river basin. Numerous studies
throughout the world have shown that it is almost always more cost- effective to maintain
natural wetlands than to drain or convert the wetlands to other (often marginal) uses, and
then to try to provide the same services through structural control measures such as dams,
embankments, water treatment facilities, etc. In many cases it has also been found cost-
effective to restore or even create wetlands to provide these functions rather than create
expensive engineering structures.

27. The following guidelines should be noted:

Section E

Guidelines for Contracting Parties relating to assessment and enhancement of the

role of wetlands for water management
 Resolution VII.18, page 10

E1. Information on functional and biodiversity assessment methodologies and the

means for their integration for wetland management should be compiled by the
Scientific and Technical Review Panel (STRP) of the Convention and disseminated
to Contracting Parties, for their adaptation to local situations.

E2. Undertake studies to identify the functions and benefits to water management which
are provided by the wetlands within each river basin. Based on these findings,
Contracting Parties need to urgently protect, through appropriate actions, the
remaining wetland areas which contribute to water resource management.

E3. Consider the rehabilitation or restoration of degraded wetlands, or the creation of

additional constructed wetlands within river basins, to provide services related to
water management (refer to Resolution VII.17).

E4. Ensure adequate consideration in river management programmes of non-structural

flood control methods which take advantage of the natural functions of wetlands
(for example, restoring floodplain wetlands or creating flood corridors) to
supplement or replace existing flood control infrastructure.

Identification of current and future supply and demand for water

28. An essential component of river basin management is knowledge of both current and
future supply and demand upon water resources in a river basin, taking into consideration
the possible impacts of climate change. Current and future assessments of the resource
need to focus on the human uses of water (such as irrigation, hydro- electricity and
domestic or industrial water supply) as well as the ecological needs for water within
different parts of a river basin. In this respect, water demands should not only be defined
in terms of water quantity but also water quality. Ecological water demands are less
obvious and more difficult to quantify and consequently have often been ignored or
underestimated in terms of water demand. Ignoring such requirements may lead to major
environmental and social problems such as collapse of fisheries or downstream saline
intrusion. It is also important to recognise that the greatest damage to the environment
may occur during extreme events rather than the average situation.

29. Socio-economic systems are constantly changing and therefore it is often necessary to
develop a range of future demand scenarios and develop flexible sustainable use strategies
which can be adapted to a range of circumstances. Linked to the assessment of water
demands is the identification and resolution of the significant water-related problems
arising from the demand patterns identified in the scenarios. These problems should not
be restricted to issues related to human activities but should also include ecological
problems such as adaptation to reduced water supply or quality within certain ecosystems.

30. Water demand is mainly determined by the economic incentives for water and wetland
use. Provision of incentives for practising environmentally sustainable water use can
minimise the impacts on wetland areas. It is critically important to impose water prices that
reflect the true cost of supplying water which will encourage the optimisation of water use,
ensuring that in so doing there is recognition of the economic value of other services from
wetlands. Within a sectoral policy context, incentives for sustainable use of freshwater
resources need to be provided. Equally, environmentally unsound or inequitable incentives
 Resolution VII.18, page 11

which are encouraging practices that are unsustainable need to be identified and removed.
(Refer to Resolution VII.15.)

31. The following guidelines should be noted:

Section F

Guidelines for Contracting Parties relating to the identification of current and

future supply and demand for water

F1. Undertake assessments of current and potential future water supply and demand for
water resources within the river basin to meet both ecological and human
requirements and identify areas of potential shortage or conflict.

F2. Undertake assessments to establish the economic and social costs which are likely to
result if the ecological water demands are not met.

F3. Based on the above assessments, develop mechanisms to solve problems and
conflicts over water quantity and quality at both national and river basin levels
within the country.

F4. Develop appropriate demand management and water pricing strategies to assist in
sustaining the ecological functions and values of water resources and wetlands.

F5. Review relevant incentive/perverse incentive measures and consider removing those
measures which lead to destruction/degradation of wetlands; introduce or enhance
measures which will encourage restoration and wise use of wetlands. (Refer to
Resolutions VII.15 and VII.17.)

Minimising the impacts of land use and water development projects on

wetlands and their biodiversity
Impacts of land use projects

32. Almost all land uses projects through their use of water, or their production of pollutants,
will have some impact on water quantity and quality in the river basin, and hence have an
impact on riverine wetlands. Water development projects also have a significant impact
and these are dealt with in the following section.

33. The land uses which can impact most significantly on rivers and wetlands are forestry,
agriculture, mining, industry and urbanisation. Inappropriate forestry practices, especially
in the upper watershed, can lead to increased soil erosion and reduced water retention
capacity. Agricultural activities can also cause significant levels of pollutants from agro-
chemicals and agricultural wastes. Upland agriculture through land clearing and subsequent
operation can have a major negative impact on water quality and also lead to significant
changes in flood and dry season flows. Lowland agriculture can lead to the drainage or
conversion of floodplain wetlands leading to loss of biodiversity and natural functions and
benefits. In many developing countries, irrigation is the main justification for abstracting
water from rivers.
 Resolution VII.18, page 12

34. The impact of mining and industrial activities is mainly through the release of pollutants,
some of which may be highly toxic (for example, mercury). In addition, industrial activities
or mining can instantly jeopardise entire river basins and all the associated wetlands and
biodiversity through accidental spills. Urban areas have impacts through encroachment on
wetlands, either directly or through associated infrastructure such as roads, ports, water
supply and flood control. In addition the human populations they support lead to
increased demands on resources and direct pollution.

Assessing and minimising impacts

35. The impact of existing land uses on river systems and associated wetlands needs to be
monitored and controlled through the integration of regulations and guidelines on forestry,
agricultural, mining or urban waste management. In many cases the implementation of
such guidelines may lead to advantages for the land users themselves – for example,
reforestation and good forest practices enhance the long-term timber yields; better
agricultural practices reduce soil erosion and retain water for the dry season; better waste
management improves quality of life and health for urban residents. However, there is
normally a need to have a proper monitoring and enforcement mechanism to ensure
effective use of the regulations.

36. In terms of control of new development activities, various mechanisms can be used to
minimise environmental impacts. The first is environmental assessment and zoning
whereby the land use and natural resources of the river basin are surveyed and the basin is
zoned according to the different types of land use that may be permitted in each zone
without having a significant impact on other zones or the river or wetland systems. There
may also be restrictions on particular activities within a zone in order to ensure
sustainability.

37. The second measure that is more applicable to proposed new development projects is
Environmental Impact Assessment (EIA). EIA provides a framework for assessing the
implications of development options on the environment (including wetlands). (Refer to
Resolution VII.16.)

38. Thirdly, Cost-Benefit Analysis (CBA) is a tool to calculate the net impact of a project on
the economic welfare of society by measuring all the costs and benefits of the project.
Although most CBA results can be expressed in monetary terms, some costs such as those
arising from the displacement of people and loss of wetland species may be difficult to
express in that way. Appropriate decision-making requires an analysis of the economic,
social and environmental costs and benefits of water management plans through EIA and
CBA.

39. It is important that multidisciplinary teams conduct the processes mentioned above and
seek to engage the stakeholders at an early stage.

40. The following guidelines should be noted:

Section G
 Resolution VII.18, page 13

Guidelines to assist Contracting Parties minimise the impacts of land use projects
on wetlands and their biodiversity

G1. Develop integrated land use plans for each river basin as a means to minimise the
impact of different activities and land uses on the river and wetland systems as well
as local residents.

G2. Develop and enforce appropriate regulations to control land uses, especially forestry,
agriculture, mining or urban waste management, so as to minimise their impact on
river and wetland ecosystems.

G3. Carry out Environmental Impact Assessment (EIA) and Cost Benefit Analysis
(CBA) studies for development projects which may have significant impacts on
rivers and wetlands using independent multidisciplinary teams, and in consultation
with all stakeholders, and consider alternative proposals including the no-
development option.

G4. Disseminate the findings of any EIA and CBA in a form which can be readily
understood by all stakeholders.

G5. Ensure that there are adequate control and mitigation measures to minimise, or
compensate for impacts if development projects are allowed to proceed.

Minimizing the impacts of water development projects

41. Water resource development projects are generally aimed at modifying the natural water
flows in a river basin for purposes such as storing water through drought periods,
preventing floods, transferring water to irrigated agricultural areas, industrial and domestic
water supply, improving navigation and generating electricity. Such projects have
frequently been developed through the construction of engineered structures such as
dams, diversion canals, channelisation of rivers, flood levees, etc. Many such projects, by
modifying the natural conditions which have allowed wetlands to develop, have had a
significant negative impact on wetlands and associated biodiversity.

42. Some of the most significant impacts of such projects include: reduction in river flows,
blocking of pathways for migratory fish and other aquatic species, increased water
pollution levels, disruption of timing of natural floods which maintain wetlands; reduction
of sediment and other nutrient input into floodplain wetlands, drainage or permanent
inundation of riverine wetlands and salinisation of surface and groundwater.

Assessment and mitigation

43. In a number of cases it has been found that the social and economic losses as a result of
the degradation of the downstream wetlands have been significantly greater than the
benefits gained from the water development project itself. Various methodologies have
been developed to help identify potential social and environmental costs consequential of
development activities. These include EIA, CBA, Social Impact Assessment (SIA) and
Participatory Rural Appraisal (PRA). (Refer to Resolution VII.16.)
 Resolution VII.18, page 14

44. However, several of these standard assessment procedures are not so easily applied to
water development projects, or to predicting the impacts of complex river-wetland
ecosystems. In recent years some specific procedures have been developed for
wetland/water resource projects such as Howe et al, EIA Scoping Manual for Tropical
Wetlands and the Inter-American Development Bank Manual on Integrating Freshwater
Ecosystem Function and Services with Water Development Projects (in press). Since the wetlands
and associated biodiversity to be impacted are often of significance to a broad range of
local users, it is important that a mechanism for stakeholder consultation is established
early in the project cycle.

45. As discussed in the preceding section, natural wetlands often play an important role in
river management and can often be rehabilitated or restored to provide an alternative to
generally more costly, engineering solutions to flood control, groundwater recharge and
water quality improvements. Alternatives to irrigation and industrial/domestic water
supply schemes include water conservation, treatment or recycling and development of
alternate crops or industries to suit natural water availability.

46. The following guidelines should be noted:

Section H

Guidelines for Contracting Parties relating to reducing the impact of water

development projects on wetlands

H1. Ensure that proposals for water development projects are carefully reviewed at their
initial stages to determine whether non-structural alternatives may be feasible,
possible and desirable alternatives.

H2. Take all necessary actions in order to minimise the impact of water development
projects on biodiversity and socio-economic benefits during the construction phase
and longer term operation.

H3. Ensure that the project design/planning process includes a step by step process to
integrate environmental issues, especially initial biodiversity/resource surveys, and
post-project evaluation and monitoring.

H4. Incorporate long-term social benefit and cost considerations into the process from
the very initial stages of project preparation.

Maintenance of natural water regimes to maintain wetlands

47. Wetland ecosystems depend on the maintenance of the natural water regimes such as
flows, quantity and quality, temperature and timing to maintain their biodiversity,
functions and values. The natural flow regime can be considered THE most important
variable that regulates the ecological integrity of riverine wetland ecosystems. The
construction of structures that prevent the flow of water, and of channels that carry water
out of the floodplain faster than would occur naturally, result in the degradation of natural
wetlands and eventual loss of the services they provide. In response to these concerns, a
 Resolution VII.18, page 15

number of countries have introduced legislation and guidelines to ensure adequate

allocation of water to maintain natural wetland ecosystems.

48. In cases where structural changes are necessary, water development projects involving the
alteration of natural flow regimes should adhere to the following guidelines in order to
protect or restore wetland ecosystems.

49. The following guidelines should be noted:

Section I

Guidelines for Contracting Parties relating to the maintenance of natural water

regimes to maintain wetlands

I1. Undertake studies to determine the minimum and ideal flows and flow regimes
(including seasonal modulation) required to maintain natural riverine wetland
ecosystems.

I2. With this information (I1. above), establish the optimum flow allocations and
regimes to maintain key wetlands and other key ecological functions of river basins.

I3. In situations where available information on biological parameters and physical

habitat is inadequate for a definitive decision on the required optimum flow, use the
precautionary principle to maintain the natural situation as closely as possible.

I4. Develop sustainable water allocation plans for the various resource users within the
river basin, including allocating water to maintain wetlands.

I5. Regulate and monitor the impacts of major infrastructure developments (levees,
embankments, roadways, weirs, small dams and cuttings) undertaken within river
and flood corridors.

Protection and restoration of wetlands, and their biodiversity, in the context of river basin
management

50. The protection and restoration of wetlands is an important strategy within each river basin
, not only because the wetlands provide services which can assist with water management,
but also because wetlands are critical ecosystems that deserve protection and restoration in
their own right. (Refer also to Resolution VII.17.)

51. Many wetland-dependent species, especially fish and amphibians, require management in
the river basin context to ensure their survival. In most countries, the protection of
habitats and wildlife is conducted according to administrative boundaries and not river
basin boundaries. This can lead to protection measures for one site or species being
nullified by activities elsewhere in the river basin which, for example, block migration of
the fish species or water flow to the wetland site. The restoration of degraded wetlands is
one of the most important possibilities for reversing the trend of declining biological
diversity within river basins.
 Resolution VII.18, page 16

52. The following guidelines should be noted:

Section J

Guidelines for Contracting Parties for the protection and restoration of wetlands
and their biodiversity

J1. Assess the status of wetlands and their biodiversity in each river basin and, where
indicated, undertake the actions needed to provide better protection measures.

J2. In assessing the status of wetlands in each river basin, consider the inclusion of key
sites in the List of Wetlands of International Importance (Ramsar List).

J3. Ensure that management plans for Ramsar sites are prepared taking into
consideration potential off-site impacts from within the river basin, as well as the
site-specific issues. (Refer to Resolution 5.7: Guidelines on management planning for
Ramsar sites and other wetlands.)

J4. Review and, where necessary, adjust regulations and procedures for conservation of
wetland-related biodiversity, especially for fish and other aquatic species, to protect
rare species and prevent over-exploitation of more common species.

International cooperation
Special issues related to shared river basin and wetland systems

53. In cases where a river basin is shared between two or more Contracting Parties, the
Ramsar Convention’s Article 5 makes it clear that these Parties are expected to cooperate
in the management of such resources. (Refer to Resolution VII.19.)

54. The declaration of the Second World Water Forum in Paris, in March 1998, emphasized
that riverine countries need to have a common vision for the efficient management and
effective protection of shared water resources. One option to consider in achieving such
outcomes is the establishment of international river commissions, created by several
riverine countries to facilitate consultation and broad coordination.

55. Countries sharing a drainage basin are encouraged to establish frequent specific contacts in
order to exchange information on the water resource and its management. Options for this
include:

55.1 establishing networks for monitoring and exchanging data on the water quality and
quantity in the basin,
55.2 a joint analysis of information on the quantity and type of water used for various
purposes in each country;
55.3 exchange of information on protection measures for groundwater, upper catchments
and wetlands;
55.4 sharing of information on structural and non-structural mechanisms for regulating
flow for navigation and flood prevention.
 Resolution VII.18, page 17

56. The aim should be the preparation of technical reports on the river basin, including
information on the needs of the local inhabitants in each part of the basin, as well as
existing or potential problems in parts of the river basin that require separate or
collaborative efforts to deal with them.

57. The following guidelines should be noted:

Section K

Guidelines for Contracting Parties for the management of shared river basins and
wetland systems

K1. Identify and describe shared river basins, document the key issues of common
concern in the basin (diagnostic study), and develop formal joint management
arrangements or collaboration for development and implementation of action plans
to deal with such issues.

K2. Where appropriate, establish or strengthen bi- or multi-state river basin management
commissions to promote international cooperation for shared water resources and
wetland management.

K3. With regard to shared river basins, Contracting Parties should inform the Ramsar
Bureau of the establishment of any joint management arrangements and also of
actions by other party or non-party states which may lead to changes in the
ecological character of sites included in the List of Wetlands of International
Importance (Ramsar List) in their own portion of the basin.

Partnership with relevant conventions, organizations and initiatives

58. In order to undertake an effective approach to promoting the integration of wetland

conservation and wise use into river basin management, it is important that the
Contracting Parties to the Ramsar Convention are aware of, and take into consideration,
the related activities of other international conventions, organizations and initiatives.

59. The sustainable use of freshwater has been identified as a critical component of Agenda 21
and as such has been the focus of a series of meetings under the auspices of the United
Nation’s Commission on Sustainable Development and other UN agencies. Three other
international initiatives should be mentioned:

59.1 creation of the Global Water Partnership to act as a framework to coordinate efforts
to promote integrated water resource management, especially in developing
countries;
59.2 the development of the Vision for Water, Life and the Environment through the
Global Water Commission under the auspices of the World Water Council; and
59.3 the establishment by the World Bank and IUCN-The World Conservation Union of
the World Commission on Dams.
 Resolution VII.18, page 18

60. It is important that these and other appropriate guidelines and activities under the
framework of the Ramsar Convention serve as a linkage and input to these other initiatives
at the international level.

61. In terms of other conventions and agreements, the most relevant in terms of these
Guidelines at the global level are as follows:

61.3 the Convention on Biological Diversity (CBD) which has identified the conservation
of the biodiversity of inland waters as a particular priority. COP4 of the CBD
adopted a Joint Work Programme with the Ramsar Convention to address this
matter;
61.2 the Convention on the Law of the Non-Navigational Uses of International
Watercourses (New York, 21 May 1997: not yet in force) which requires states to
avoid, eliminate or mitigate significant harm to other watercourse states and
establishes detailed rules with regard to the changes in use of any international
watercourse. Issues covered include EIA, consultation, joint protection of
watercourse ecosystems, pollution control, introduction of alien species, prevention
of erosion, siltation, and salt-water intrusion; and
61.3 the Global Programme of Action for the Protection of the Marine Environment
from Land-based Activities (GPA).

62. At the regional and river basin level there are over 200 agreements which provide a basis
for cooperation in the management of shared water resources.

63. The following guidelines should be noted:

Section L

Guidance for Contracting Parties on partnership with relevant conventions,

organizations and initiatives

L1. Ensure that these guidelines, and other related guidelines under the Ramsar
Convention, are brought to the attention of the relevant international conventions,
organizations and programmes, with a view to ensuring that the aspirations of the
Ramsar Convention are reflected in the activities of these other initiatives.

L2. Ensure close coordination at the national level between the Ramsar Administrative
Authorities and the focal points for other international conventions and agreements
related to these subjects.

L3. Ensure, as appropriate, adequate consideration of wetland related issues in the

operation of any regional agreements related to shared river basins and water
resources.