1. RECALLING Recommendation 6.9 calling for further cooperation on wise use and conservation of global peatlands and mires;

2. CONGRATULATING many organizations for their positive response and initiative, including the Commission on Ecosystem Management of IUCN (in particular their publication of Management Guidelines for Forested Tropical Peatlands, with Special Reference to Southeast Asia), the International Peat Society, the International Mire Conservation Group, and Wetlands International for numerous new projects developed since 1996 in support of national and regional peatland wise use and management guidelines, programs and policies;

3. EXPRESSING DEEP CONCERN for the low level of global recognition of the implications of significant carbon loss due to peat fires and other human induced factors throughout the World, and for the need for inclusion of all carbon sinks and sequestration initiatives as key issues in global discussion concerning the Kyoto Protocol under the Framework Convention on Climate Change;

4. AWARE OF significant expansion of the designation of Ramsar sites in many nations that include, or are dominated by, peatland and mire ecosystems thus responding to the Ramsar 1997-2002 Strategic Plan for recognition of peatlands as an under represented wetland type; and

5. FURTHER AWARE OF significant ongoing international interest in the government, private and environmental non-government sectors for enhanced promotion of the wise use and conservation of mire and peatland ecosystems and their associated natural resources, as exemplified in joint efforts to establish a framework for a Global Action Plan for the Wise Use and Management of Peatlands (as attached here in Draft as Annex 1) and developed in the 13th Global Biodiversity Forum (San JosÈ, Costa Rica, May 7-9, 1999).

THE CONFERENCE OF THE CONTRACTING PARTIES

6. CALLS ON Contracting Parties to give further priority to the inventory and evaluation of all mires and peatlands in their borders and, where appropriate, to nominate additional mire and peatland ecosystems as Ramsar sites;

7. RECOMMENDS the cooperation of partners in further refining the Draft Global Action Plan for the Wise Use and Management of Peatlands considered at GBF13 and in establishing an Implementation Plan including funding for appropriate projects and activities in support of this Plan.

8. INVITES the Scientific and Technical Review Panel and Ramsar partners to evaluate this Action Plan, once completed, with regard to development of additional guidelines to assist Contracting Parties in applying criteria for: designation of mires and peatlands as Wetlands of International Importance; developing further regional peatland wise and management guidelines; and transfer of peatland restoration technology.

9. CALLS UPON partners in this Global Action Plan to report on progress at the Millennium Wetland Event in Quebec, Canada in August 2000 and COP8 in 2002.

Introduction

In March of 1996, in advance of COP6 of the Ramsar Convention, a series of partner agencies cooperated in organization of an International Workshop on Global Mire and Peatland Conservation (Rubec 1996). This was, however, but one in a series of international working meetings focused on drawing global attention to the urgent need for action on peatland and mire conservation and management. These meetings include the Sixth Meeting of the International Mire Conservation Group (Moen 1995) and the Peatland Convention (Parkyn, Stoneman and Ingram 1997). Peatlands were subsequently recognized as an under-represented wetland type in the global network of Ramsar Sites of Wetlands of International Importance. A variety of ongoing efforts by organizations have identified potential elements of a peatland wise use and conservation action plan, regional guidelines for the management of peatland ecosystems (such as Maltby 1995; Safford and Maltby 1998), and cooperation among potential partners.

At the Fourth Meeting of the Contracting Parties to the Framework Convention on Climate Change in Buenos Aires in November 1998, it was apparent that carbon sequestration is emerging as a critical mechanisms to foster the implementation of the Kyoto Protocol. This inherently must include the wise use of carbon resources found in peatlands and the potential implementation of a global trading mechanism for carbon credits. Peatlands have been identified as a critical component of the world's carbon sink and a valuable economic resource. International discussions in many sectors are underway to promote recognition of peatlands and peat forming wetland types as a critical component linking the economic and environmental issues inherent in the Climate Change, Wetlands and Biological Diversity Conventions and international trade issues.

Thus it was proposed that the climate change, carbon sinks, wise use and management of peatlands form the elements of the 13th Global Biodiversity Forum Workshop on Peatlands held on May 7-9, 1999 in San JosÈ, Costa Rica under the sponsorship of IUCN and numerous partner organizations. This workshop reviewed a draft Global Action Plan for the Wise Use and Management of Peatlands.

The proposed elements of a Global Action Plan for the Wise Use and Management of Peatlands are based on the recommendations for initiatives developed in previous international fora including:

1994 - The Trondheim Declaration from the IMCG Symposium, Trondheim, Norway (Moen 1995) ("TD REC").

1995 - The Edinburgh Declaration developed at the International Peatlands Convention, Edinburgh, Scotland (Parkyn et al. 1997) ("ED REC").

1996 - A Global Action Plan on Mire and Peatland Conservation (Lindsay 1996) proposed during the International Workshop on Peatlands and Mire Conservation, Brisbane, Australia (Rubec 1996) ("BAP REC").

1996 - COP6 Recommendation 6.1 and Strategic Plan 1996-2002, Ramsar Convention ("RAM REC").

1997 - Recommendations of Joint IPS/IMCG Working Meeting, Surwold, Germany (Rubec 1997) ("SUR REC").

1998 - Publication of IUCN Commission on Ecosystem Management report entitled Management Guidelines for Forested Tropical Peatlands, with Special Reference to Southeast Asia (Safford and Maltby 1998).

The objectives of the GBF 13 Peatlands Workshop were:

(i) to review the status of initiatives promoting cooperation and development of a global peatland wise use and conservation strategy;

(ii) to foster a partnership to implement such a strategy; and

(iii) to explore mechanisms to support international cooperation on carbon sinks and Kyoto Protocol implementation under the Framework Convention on Climate Change.

The partners in a Global Peatland Action Plan would include (this is not a comprehensive list) many networks and organizations such as:

(i) IUCN Commission on Ecosystem Management;

(ii) The Ramsar Convention on Wetlands and its Contracting Parties;

(iii) International Mire Conservation Group;

(iv) Wetlands International;

(v) International Peat Society;

(vi) Society of Wetland Scientists; and

(vi) Institute for Wetland Science and Policy Research.

Key Questions and Opportunities

There have been various efforts to define peatland or mire Action Plans including Lindsay (1995) who suggested the following six questions:

(a) What do we have?

(b) What has been lost?

(c) How and why has the resource been lost?

(d) Why conserve mires?

(e) How should mires be conserved and managed?

(f) Have we succeeded?

The Global Peatland Action Plan envisaged would focus on a series of "opportunities", under each of which are now organized existing recommendations for discussion purposes below. This listing is meant only to synthesize some of the existing recommendations from many sources, presented in a series of the eight opportunity themes below. This list requires more material to be included but can assist in focusing discussions such as the May 1999 San JosÈ meeting.

The draft Action Plan thus has eight opportunities that could be addressed in this Action Plan:

1. Understanding Peatland Terminology;

2. Global Peatland and Mire Data Base;

3. Global Peatland Monitoring and Awareness Program;

4. Understanding and Standardizing Wise Use Concepts;

5. Using Policy and Legislative Instruments;

6. National and Regional Peatland Management Guidelines;

7. Research and Cooperative Networks and Centres of Excellence; and

8. Establishing Program and Research Priorities.

Developing a global understanding and standardization of peatland and mire terminology consistent through the published literature in several languages such as English, French, Spanish, Russian, Finnish and German is an essential first step. We must be able to at least speak a common terminological language.

Actions:

1.1 A series of informative publications should be produced for international distribution on the status of inventory, protection, and management of mires throughout the World. Such regional reports might include Europe, particularly for countries with economies in transition, as well as tropical regions, Asia, North America, and the Southern Hemisphere. TD REC2, 1994.

1.2 With the help of partner organizations such as IPS and IMCG, and other organizations and parties, establish a significantly more effective communication framework than currently exists by:

(a) establishment of a publication similar to that provided by the Wader Study Group on behalf of Wetlands International, but in this case for peatlands;

(b) establishment of an electronic bibliography of literature relevant to peatland conservation; and

(c) publishing of an up-to-date Peatland Glossary of Terms, ideally in several languages, providing the latest agreed upon definitions of terms which are relevant to peatland conservation. BAP REC5, 1996.

1.3 IMCG and IPS [and interested Partners] should establish a Joint Working Group to bring together peatland, mire and peat terminology and work towards a joint publication on terminology. Publication of this document could be a joint Report. SUR REC1, 1997.

1.4 The Joint Working Group should organize small international workshops or symposium on this theme at appropriate dates. SUR REC2, 1997.

1.5 The IPS Secretariat should organize printing and publication of a Glossary on Peat and Peatlands as a special issue of the International Peat Journal. SUR REC4, 1997.

1.6 The IMCG should consider leading preparation of a paper on global mire types and mire regions. SUR REC8, 1997.

1.7 The IPS and IMCG should consider hosting of an international workshop on global peatland management in association with the Ramsar Convention meetings in Costa Rica in May 1999. A workshop should be developed in consultation with international partner agencies in a manner similar to the March 1996 IPS/IMCG/IUCN Canada-Norway workshop in Australia. SUR REC11, 1997.

1.8 The IPS and IMCG should cooperate in organizing a workshop on peatland/mire evaluation models and systems with case studies for presentation at the Quebec Millennium Wetland Event in the August 2000. SUR REC12, 1997.

Establishment of a global data base on the ecological characteristics and distribution of peatlands and mires including carbon storage is an essential element.

Extensive information on global peatland distribution is outlined in several regional and global surveys. These include Lappalainen (1996) in Global Peat Resources produced by the International Peat Society and Lofrˆth and Moen (in prep.) in European Mires: Distribution and Conservation Situation by the International Mire Conservation Group and University of Trondheim, Norway. Wetlands International and the Ramsar Convention are also currently developing a global survey of wetland statistics in cooperation with groups such as the World Conservation Monitoring Centre. Global data bases on carbon storage have evolved in several climate change projects but remain rudimentary and often incomplete.

The Ramsar Sites Data Base developed by Wetlands International has descriptive information on almost 1000 Ramsar Sites globally. This is projected to increase to 2000 sites in the next decade. Many of these sites are peatlands. A gap analysis of the nature of peatlands identified in this data base and possible future directions is needed.

Actions:

2.1 Those nations, that have not yet identified biogeographic regions, should consider initiating a program designed to generate such information, involving consultation with adjoining nations where appropriate. BAP REC1, 1996. [This is essential to allow data integration and synthesis in some sort of standardized framework.]

2.2 Ramsar Contracting Parties, the Ramsar Scientific and Technical Review Panel, the Ramsar Bureau and Partners, as appropriate, should review the extent and quality of peatland survey around the World, and identify those areas which would benefit from further inventory effort. BAP REC2, 1996.

Integration of global statistics and establishment of a Global Status and Trends Survey on peatland resource use, changes in ecological character, degradation from human and natural causes, restoration and rehabilitation are needed. Such information is fundamental to reporting on and promoting awareness of peatland functions and values.

Actions:

3.1 A review of existing peatland ecosystem understanding should be carried out, with the specific objective of identifying priority areas for further research designed to assist in the maintenance of the ecological character of Ramsar peatland sites. BAP REC3, 1996.

3.2 A series of specific, peatland-related education and interpretation initiatives be established, both internationally and nationally. More particularly, it is proposed that initial feasibility studies for peatland ecosystems are carried out by each Ramsar Contracting Party, where appropriate with the support of suitable organizations and funding, to consider the possible options and information available for:

(a) links to existing education programs and curricula;

(b) educational and exhibition proposals which can bring greater understanding and appreciation of the benefits and value of local or regional peatland systems to local communities. BAP REC4, 1996.

Synthesis of current understanding and consensus on wise use concepts for peatlands consistent with the Ramsar Convention. It is noteworthy that the IPS and IMCG are in fact working on this issue. IPS has recently published an article on IPS views on wise use of peat resources in its magazine Peatlands International (January 1999).

Actions:

4.1 Ramsar Contracting Parties should ensure that international mire conservation is a focus issue for discussion at, and the resolutions prepared for Meetings of the Conference of the Contracting Parties to the Ramsar Convention as well as forthcoming meetings of the Contracting Parties to the Biodiversity Convention. TD REC4, 1994.

4.2 Other international conventions, agreements and regulations should be used effectively to support international mire conservation and management wherever opportunities arise. TD REC5, 1994.

Development of national peatland policies consistent with wise use and conservation objectives are needed, defining management goals and objectives, risk factors leading to peatland degradation, and strategies for wise use. In addition reviews at a national and international level of laws and institutions that could lead to peatland protection, where needed, of peatlands and mires should be considered. One such review is a COP7 Document of the Ramsar Convention prepared by the IUCN Environmental Law Centre.

Actions:

5.1 Ensure that the present framework of policies designed to protect raised bogs of conservation importance are operated effectively and enhance these policies where an insufficient number of such protected peatland sites are available. ED REC4, 1995.

5.2 Partner agencies and organizations should proceed with development of global and national Mire Conservation Action Plans. A particular focus area should be European countries with economies in transition. Implementation of the components of these Action Plans should be funded by nations and economic sectors that have historically benefited from mire resource use. The overall objectives of such Action Plans should include:

(i) promoting the conservation and sustainability of mire functions and values through the implementation of global biodiversity objectives; and

(ii) facilitating mire conservation commitments made by the nations of the World through their implementation of international and multilateral conventions, treaties and regulations. TD REC3, 1994.

Development of peatland management systems, guidelines and models for implementation of a national or regional Action Plans is needed. The Commission on Ecosystem Management of IUCN has recently published a booklet on Guidelines for Management of Tropical Forested Peatlands (Safford and Maltby 1998). These Guidelines could serve as a model for other regions and peatland types.

Actions:

6.1 Partners should develop proposals to aid agencies to develop and implement national and regional Peatland Action Plans including Guidelines for Peatland Management. This should apply to all nations in which peatlands form a significant component of the landscape including boreal bogs, coastal mangrove systems and tropical peat swamp forests. The IUCN Guidelines for Tropical Forested Peatlands can be a working model in this regard.

Creation of peatlands networks for research and program cooperation and Centres of Excellence will foster joint project ventures and integration of effort among agencies, thus fostering a common sense of purpose.

Actions:

7.1 An international coordination office and function should be established to facilitate global mire conservation, to be housed with a major international wetland agency. This should be funded and undertaken in cooperation with partner agencies and organizations and Contracting Parties to the Ramsar and Biodiversity Conventions that have significant mire systems. TD REC1, 1994.

7.2 Further strengthening of effective international cooperation and information exchange between those involved in mire conservation and resource use issues should be actively supported. TD REC6, 1994.

7.3 A key aspect of the conservation of the biodiversity of the World's mires is proper and thorough understanding of their ecology. Universities and governments world-wide should establish Centres of Excellence and ensure significant expansion of training experience for development of future generations of experts in all aspects of mire ecology and science. TD REC7, 1994.

7.4 Support for increased peatland conservation action through the Ramsar Convention should be considered. ED REC1, 1995.

7.5 With the help of partner organizations such as IPS and IMCG, and other organizations and Ramsar Contracting parties, a significantly more effective peatland communication network should be established, by:

(a) set up of an e-mail "Peatland Home-Page" on the Internet; and

(b) identify a network of peatland specialists who can provide guidance and advice about best practice to client agencies and governments on a project basis. BAP REC5, 1996.

7.6 Both IPS and IMCG should use their participation in the Millennium Wetlands Event, August 6-12, 2000 in cooperation with INTECOL and the Society of Wetland Scientists to promote peatland wise use. IMCG and IPS should work closely together in the design and implementation of their respective programs during this Millennium Wetlands Event at Quebec City, Canada. SUR REC5, 1997.

7.7 The IPS and IMCG should establish a Joint Working Group to prepare a Discussion Paper on Wise Use Guidelines for Global Peatlands and Mires. Specialists in the IPS and IMCG organizations should draft a proposed Table of Contents for this paper. Each organization should then take the lead on this mutually agreed set of topics and write sections of the paper. These contributions should be edited into a joint paper to be published and distributed. SUR REC6 and REC7. 1997.

7.8 The IMCG and IPS [and other peatland organizations] should have at least one joint meeting of invited participants and board members each year to focus on key issues of mutual interest. [This would use the positive experience of the November 1997 Surwold, Germany Joint IPS/IMCG Workshop between these organizations]. SUR REC9, 1997.

7.9 The IPS and IMCG should develop stronger information linkages with the Ramsar Convention, Wetlands International, IUCN Wetlands Program, Society of Wetland Scientists, INTECOL and other appropriate agencies or groups. This should be done through such things as exchange of newsletters on a regular basis. SUR REC10, 1997.

Establishment of priorities for protection and wise use plans of specific peatlands at risk through cooperative scientific and management studies is needed. This will assist in future and advance planning to identify such sites on a global basis. In addition, partner agencies must promote and support research and technologies for topics such as peatland restoration, avoiding duplication of effort and maximization of available resources.

Of 59 topics felt worthy of consideration, a dozen key research topics were identified in the 1997 IPS/IMCG Joint Meeting:.

1. Peatland Terminology;

2. Actions to Protect Peatlands and Mires;

3. Climate Impacts of Greenhouses Gases from Utilized Peatlands;

4. Wise Use Concept;

5. Why Use Mires?;

6. Tropical Peatlands;

7. Recognizing Variation in Use/Conservation and Protection with Respect to Differences in Biogeographical Regions;

8. Information Exchange, Data Acquisition and Networking;

9. Peatland Inventory and Statistics;

10. Defining Choices and Values for Peatland Use;

11. Ecological Processes and Scientific Information; and

12. Socio-Economic Effects and Benefits of Peat Harvesting in Rural Areas.

Al 59 Peatland Topics identified in this 1997 IPS/IMCG Joint Meeting (votes identify relative priority for each are listed below in Table 1).

Actions:

8.1 Take the necessary action to secure the long-term conservation of globally important peatlands that are threatened by direct preventable damage. ED REC2, 1995.

8.2 Recognize the extent of damage to lowland raised bogs throughout the World. ED REC3, 1995.

8.3 Take effective steps to accelerate the research, development and marketing of peat-free growing media through the provision of significant levels of funding for research. ED REC5, 1995.

Table 1: All Topics Proposed at the 1997 Joint IPS/IMCG Workshop.

Topic

No.Possible Discussion Topics

Suggested by ParticipantsNumber of Weighted VotesThis Topic Links to Other Topics Listed HereRank

(Top 12 only)1.Man-Made Versus Natural Landscapes0----2.After Use of Peat Cutting Areas1----3.Objective Description of the Facts5----4.Recognizing Variation in Use/Conservation and Protection with Respect to Differences in Biogeographical Regions35--7th5.Climate Impacts of Greenhouses Gases from Utilized Peatlands1721, 373rd6.Why Use Mires?1418, 415th7.Terminology193, 211st8.What IPS and IMCG Should Do Together to Protect Peatlands and Mires1839, 512nd9.Understanding Rates of Carbon Sequestration0----10.Socio-Economic Effects and Benefits of Peat Harvesting in Rural Areas81612th11.Concepts of Peat0----12.Role of Peatland Regeneration in Sustainable Development Concepts0----13.Rules/Formulas fr Development and Protection of Peatlands4----14.Tropical Peatlands12--6th15.Role of Peatlands for Global Survival in the 21st Century0----16.Security of Energy Supply2----17.Defining Choices and Values for Peatland Use928, 34, 3810th18.Protection of Peatland Vegetation0----19.Peat Farming (Regrowing of Peat) for Harvesting - How Much do we Need?6----20.Carbon Harvesting on Forested Peatlands0----21.Classification of Mires and Peatlands (Global to Local)6----22.Peatland Education2----23.Establishment of a Joint IMCG/IPS Working Group on Identification of Sensitive Sites of Scientific Interest0----24.Identifying Key Mire Sites of Regional/Local/Other Basis2----25.Understanding Regional/National Variation in Peatland Distribution and Management Strategies04--26.Mire Versus Peatland Concept3----27.Carbon Compensation Through International Trade-Offs0----28.Establishing the Values of Different Uses of Peatlands117--29.Ecological Processes and Scientific Information83511th30.Wants and Needs for Peat and Peatlands0----31.Making Informed Choices017--32.Agricultural Uses of Peatlands1----33.Benefits of Using Peat for Horticulture0----34.Evaluation Systems for Different Peatlands and Uses553--35.Peatland Inventory and Statistics103, 429th36.Organization of Joint IPS/IMCG Symposia on Peatland Conservation Issues0----37.Sustainable Management of Peatlands and Mires with Respect to Factors of Scale (e.g. Space, Time, Function)4----38.Socio-Economic Values of Peatlands053--39.Joint Action for Mire Protection and Use28--40.Peatlands as Wildlife Habitat0----41.Why Protect Mires?6----42.Information Exchange, Data Acquisition and Networking11358th43.IPS/IMCG Cooperation for Second Edition of Global Peat Resources Book78--44.Peat Harvesting's Role in Increasing Biodiversity Benefits4----45.Natural Resource Functions of Peatlands7----46.Products From Low Value Peatlands0----47.Food from Peatlands for Global Needs015--48.Renewability of Peat - Choice or Fact?0----49.National Versus Global Peat/Peatland Issues0----50.Use of Peat in Protection of Bogs0----51.Quebec 2000 Congress18--52.Medical Uses of Peat0----53.Wise Use Concept1715, 37, 484th54.Substitutes for Peat4----55.Peat as a Biofuel4----56.Constructed Wetlands/Peatlands2----57.Financing Peatland Conservation0----58.Peatland Degradation - Natural Versus

Man-Made5----59.Peatland Formation Processes3----

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