Final Report - Asian Development Bank

TA 4721-PRC: Preparing the Shaanxi-Qinling Mountains Integrated Ecosystem Management Project
Final Report Appendix 4
Using EFCAs, SEPA plans to reduce the pressure of human activities on ecosystems and prevent
degradation of ecological functions caused by inappropriate development and construction projects.
The Shaanxi Environmental Protection Department (SEPD) prepared and approved its provincial plan
for the Shaanxi Qinling National EFCA in 2005 (TA team has obtained this plan). The EFCA covers
57,900 km² or around 28% of the province area and 105% of the Qinling area in Shaanxi (55,000
km 2 ). The EFCA includes all or part of 23 nature reserves whose total area is 4,300 km², or 7.4% of
the EFCA area. The EFCA includes parts of six municipalities, 38 counties (all of 13 and parts of 25),
and 483 townships. The plan was submitted to SEPA in November 2005 for review and approval as
a national EFCA.
12. The Qinling EFCA covers all of the Qinling range in Shaanxi and some of the Daba range,
which is located south of the Qinling. The proposed Project Area lies within the Qinling EFCA, as
does all of Zhouzhi County south of provincial highway 107. Qinling EFCA is divided into two main
function zones: Zone II is for forest and biodiversity conservation, and Zone III is for forest plantation
and water conservation. The two main function zones are sub-divided into three sub-zones: Sub-
Zone 1 is for high importance; Sub-zone 2 is for medium importance; and Sub-zone 3 is for areas
only parts of which are of conservation importance. Zhouzhi County and the proposed Project Area
are zoned as II-1, the highest priority for forest and biodiversity conservation.
13. The same zoning applies to all of the national nature reserves in the central Qinling. EFCAs
are not administered under State Council regulation as are nature reserves. The Qinling EFCA is not
yet approved by SEPA, thus it is a provincial designation at present. The greatest opportunity for
EFCA contribution to nature conservation will lie outside but near nature reserves in situations similar
to that at the proposed Project Area. EFCAs in such locations could provide meaningful buffer zones
for nature reserves. Such buffer zones could be particularly important if nature reserve law were to
be strictly enforced in future, which would mean that there would be substantial relocation of villagers
from reserves and onto lands within EFCA boundaries.
14. In addition, the national importance of EFCAs is recognized in the national 11 th Five-Year
Plan. For example, the document “The Outline of the Eleventh Five-Year Plan For National
Economic and Social Development of the People Republic of China” lists, on page 22, twenty-two
selected development-restricted zones, including 15 ecological, forest and/or biodiversity function
zones, 5 desertification combating zones, and 2 soil erosion combating zones. This listing is provided
in the section on: "Promoting Balanced Development among Regions”, and thus is consistent with the
emphasis placed on environmental protection, eco-system restoration and biodiversity conservation
in the PRC’s western development strategy.
15. Further, in June 2003, the SP Government issued notification of special measures for the
northern foot-slopes of the QM, which aimed to prosecute violators of the laws and regulations for
eco-environmental protection. Many illegal mining sites have been closed, some existing tourist sites
have been rejuvenated, cultivation on slopes exceeding 25° has been banned, the environmental
impact assessment of proposed projects has been re-examined, polluters and illegal loggers have
been fined, and some vegetation belts have been established.
16. The PRC has implemented a number of related initiatives over the past decade with ADB and
other international partners. Related programs and projects that will offer valuable links and potential
collaboration with this Project include the ongoing PRC-GEF Partnership on Land Degradation in
Dryland Ecosystems, and the GEF/ADB-financed Capacity Building to Combat Land Degradation
Project, that is ongoing in six western region provinces/autonomous regions including Shaanxi.
17. The Capacity Building project, which is supported by supported by GEF and ADB under the
OP12 Partnership, is currently ongoing in Shaanxi Province and Ningxia Hui Autonomous Region as
well as in Gansu Province, Xinjiang Uygur Autonomous Region, Inner Mongolia Autonomous Region
and Qinghai Province. 6 Implementation commenced in late 2004, and reportedly is making progress
6 TA 4358(G), Capacity Building to Combat Land Degradation Project, approved on 29 June 2004 for $13.8
million, of which $7.7 million was provided by GEF as a grant. It is supported by and ADB-financed TA4358 to
Support Implementation of the Capacity Building To Combat Land Degradation Project, for $1.2 million. This is
ADB’s first “hybrid” project, fully grant financed, but processed and administered as a loan to provide the
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