PROJECT BRIEF
1. Identifiers
Project Number:
[Implementing Agency Project Number not yet assigned]
Project Title:
Determination of priority actions for the further elaboration
and implementation of the Strategic Action Programme for the
Mediterranean Sea.
GEF Implementing Agency: United Nations Environment Programme (UNEP)
Executing Agencies:
Secretariat for the Barcelona Convention
Co-ordinating Unit for the Mediterranean Action Plan (MEDU-
MAP) and its associated Regional Activity Centres (RACs):
Cleaner Production (CP RAC); Specially Protected Areas (SPA
RAC); Priority Actions Programme (PAP RAC) and other
regional entities as appropriate.
Food & Agriculture Organisation of the United Nations (FAO)
General Fisheries Council of the Mediterranean (GFCM)
World
Health
Organisation
(WHO)
Requesting Countries:
Regional: Mediterranean (12 countries): Albania, Algeria,
Bosnia and Herzegovina, Croatia, Egypt, Lebanon, Libya,
Morocco, Slovenia, Syria, Tunisia, and Turkey 1.
Eligibility:
The countries are eligible under paragraph 9(b) of the GEF
Instrument. The SAP MED is consistent with the relevant
provisions of regional and global Conventions relating to
International Waters and was developed within the
Framework of the Barcelona Convention2.
GEF Focal Areas:
International Waters with relevance to Biological Diversity
GEF Programming Framework:
Waterbody-based Operational Program # 8
2. Summary:
The Strategic Action Programme to Address Pollution from Land-Based Activities in the
Mediterranean Region (SAP MED) provides a broad framework and timetable for the
implementation of mechanisms and measures that will lead to the protection of the marine
environment, including its biological resources and diversity, from the effects of harmful
land-based activities. The present project includes preparatory actions leading to the
adoption and implementation of regional guidelines and plans; investment in the
elimination of regionally prioritised pollution hot spots; development and implementation
of management plans for selected sensitive areas; development of a costed and targeted,
strategic action plan for biodiversity; enhancement of public participation and institutional
capacity in the region; development and implementation of economic instruments for the
sustainable implementation of the SAP MED; and development and implementation of
National Action Plans (NAPs) for the implementation of the SAP MED.
1 Cyprus, France, Greece, Israel, Italy, Malta, Monaco, and Spain, are all GEF non-recipient countries which together with the
European Union have endorsed the SAP MED through the 10th meeting of Contracting Parties to the Barcelona Convention
held in Tunis, November 1997. National activities undertaken by these countries in support of the SAP MED will be listed as
Associated Financing in the project document.
2
3. Costs and Financing (Million US $)
GEF:
Project
:
5.950
PDF
:
0.340
Subtotal
GEF
:
6.290
Co-financing:
MAP-MEDU
in
cash
:
0.920
MAP-MEDU/UNEP
in
kind
:
0.225
Governments in cash & kind
:
3.040
FAO
in
kind
:
t.b.d.
Total
Project
Cost:
: 10.475
4. Associated Financing (Million US $)
MAP
: 12.800
5. Operational Focal Point Endorsement(s)
The draft document was despatched to GEF Operational Focal Points and in their
absence to GEF Political Focal Points between 19 and 23 December 1997.As of 26th
January endorsements had been received from all countries (see Annex VIII)
6. IA Contact:
Mr Ahmed Djoghlaf, Executive Co-ordinator, UNEP/GEF Co-ordination Office, UNEP,
Nairobi, Tel: 254 2 624153; Fax: 254 2 520825; Email: ahmed.djoghlaf@unep.org
2 The Barcelona Convention has been ratified by 20 Mediterranean countries and the European Union.
3
PROJECT DESCRIPTION
1. Background and Context (Baseline course of action)
Background
1.1 The Mediterranean semi-enclosed sea occupies a major portion of the total basin area,
with large rivers such as the Ebro, Rhone, Po and Nile draining to it. The Mediterranean
Sea is itself divided into sub-basins and semi-enclosed areas such as the Adriatic, the
physical and geographical features of which determine the relative importance of land-
based activities in the degradation of marine and coastal waters on a sub-regional basis.
1.2 The GEF Operational Strategy lists the "degradation of the quality of transboundary water
resources, caused mainly by pollution from land-based activities; physical habitat degradation of
coastal and near-shore marine areas, lakes, and watercourses as a result of inappropriate
management; introduction of nonindigenous species; and excessive exploitation of living and
nonliving resources" as the four major global environmental concerns relating to
international waters that will be addressed by the GEF. The present proposal addresses
directly two of these concerns and in the process seeks to address biodiversity issues
relating to sensitive areas thus conforming to the Operational Strategy which recognises
that "GEF projects integrating several focal areas have the potential to multiply global benefits
from GEF interventions".
1.3 As a result of international efforts to protect the Mediterranean Sea, twenty
Mediterranean countries and the European Union are Contracting Parties to the
Convention for the Protection of the Mediterranean Sea against Pollution (Barcelona
Convention) and to the Protocol for the Protection of the Mediterranean Sea against
Pollution from Land-based Sources (LBS Protocol) and to the Mediterranean Action
Plan (MAP)3. UNEP, through the Co-ordinating Unit for the Mediterranean Action Plan
has served as the Secretariat to the Action Plan and the Convention since their adoption.
The Contracting Parties to the Barcelona Convention in partnership with UNEP have
therefore extensive experience in regional co-operation at both the operational and
policy levels in the Mediterranean region, thus providing a sound basis on which to
undertake the activities presented in this Project Brief. The present proposal aims to
build on past experience in the region including the data and information collected
during the last twenty years.
1.4 The revisions of the Barcelona Convention, its related protocols (1995) and the
associated Action Plan directed the whole system towards development and
implementation of strategic actions designed to address inter alia problems of pollution
resulting from land-based activities in the framework of overall plans for the sustainable
development of the Mediterranean Sea and its coastal region. Past experience together
with the findings of the draft Transboundary Diagnostic Analysis4 prepared with a GEF
Project Development Facility Grant suggest that a major constraint to the protection of
the marine and coastal environment results from inappropriate management of the
coastal zone. The root causes of this problem result from a lack of adequate coastal zone
planning and management; inadequate national legislation and its effective
3 The Barcelona Convention adopted in 1976, entered into force in 1978, and was amended in 1995 by the Conference of
Plenipotentiaries. The LBS Protocol adopted in 1980, entered into force in 1983, and amended in 1996 by the Conference of
Plenipotentiaries. The Mediterranean Action Plan was adopted in 1975 and revised in 1995 by the Conference of
Plenipotentiaries.
4 The Tenth Ordinary Meeting of the Contracting Parties authorised the Secretariat to revise the TDA prior to its release to a
wider public.
4
enforcement; weak institutional structures at national and regional levels; inadequate
human resources allocated for these types of activities; and lack of mobilisation of
adequate financial resources to address the identified issues and problems.
1.5 Due to financial and temporal constraints it was not possible during the PDF-B phase to
develop and adopt an holistic Strategic Action Programme (SAP) for the Mediterranean
encompassing all environmental issues as envisaged in the GEF Operational Strategy.
Given the priority accorded by governments to the issues of land-based activities and
their impacts in the Marine Environment a more restricted SAP addressing Land Based
Activities has been developed and adopted by the governments. Preparatory actions
relating to biodiversity have been undertaken and in the light of the expected entry into
force during the course of 1998, of the recently revised Protocol on Specially Protected
Areas and Biodiversity it is proposed to extend these preparatory activities and
complete a more holistic strategic approach through the development and adoption of a
SAP for Biodiversity.
1.6 Through their endorsement of the LBS Protocol and the Protocol on Specially Protected
Areas and Biodiversity, the riparian countries of the Mediterranean have demonstrated
a desire to address the environmental problems of the Mediterranean Sea through a
concerted and co-ordinated programme of action. The Strategic Action Programme to
Address Pollution from Land-Based Activities in the Mediterranean Region (SAP MED),
developed during the PDF phase, and adopted during a meeting of Contracting Parties
to the Barcelona Convention held in Tunis, November 1997, will assist countries in
meeting their obligations under Article 5 of the LBS Protocol that states:
"The Contracting Parties to the LBS Protocol undertake to eliminate pollution deriving from
land-based sources and activities and to this end, they shall elaborate and implement,
individually or jointly, as appropriate, national and regional action plans and programmes,
containing measures and timetables for their implementation."
Context (Baseline course of action)
1.7 The initial focus of action under the Mediterranean Action Plan was on assessment and
later control of marine pollution, an obvious subject of high priority requiring
harmonised regional and national policies and strategies. Experience showed however
that protection of the Mediterranean is inseparably linked with social and economic
development. The focus of the action plan has therefore gradually shifted from a
sectorial approach to pollution control towards its inclusion in the framework of
integrated coastal zone planning and management.
1.8 As a natural development resulting from this gradual shift from assessment of problems
towards their solution the need for a costed and targeted programme of actions became
apparent. The SAP MED was therefore prepared through a GEF PDF-B grant to
provide a targeted and costed framework for action at national and regional levels to
address pollution from land-based activities. This represents one component of the
holistic approach advocated by the GEF Council in the adoption of a broad based
Strategic Action Programme addressing all environmental issues and concerns relating
to a single shared waterbody.
1.9 The SAP MED is based on the preliminary findings of the regionally prepared draft
Transboundary Diagnostic Analysis (TDA MED) that represents a regional synthesis of
issues and problems surrounding the protection of the Mediterranean marine
5
environment from land-based activities. As outlined in the PDF-B document the SAP
MED will enable countries to meet agreed objectives: to protect the marine environment
and coastal zones through prevention of pollution, and by reduction and, as far as possible,
elimination of pollutant inputs, whether chronic or accidental; and to develop and implement
national programmes of action for the protection of the marine environment from land-based
activities.
1.10 A key component of the SAP MED is the identification of elements for the formulation
of national action plans, consistent and co-ordinated with regional strategies and
guidelines. The central framework of the SAP MED involves the strengthening of
regional co-operative arrangements for the development and implementation of
pragmatic and comprehensive management approaches to mitigate and remedy land-
based sources of degradation of the coastal and marine environment. The SAP MED
identifies those areas requiring national intervention and distinguishes them from those
requiring joint regional action.
1.11 In view of the unequal starting point and of the different levels of socio-economic
development, progress at the national level has not been homogeneous. However, the
Mediterranean countries have all created competent institutions charged with
protection of the environment, often at a very high political level, and have adopted
legislative measures and regulations. The present proposal seeks not only to strengthen
such national institutions in recipient countries but to provide a National Action Plan
that is consistent with both the regional agreements outlined above and individual
national sustainable development policies and programmes.
1.12 The Contracting Parties to the Mediterranean Action Plan adopted, at their Tenth
Ordinary Meeting (Tunis, November 1997) a 1998-1999 biennial work programme and
budget of 12.8 million US $ for MAP with the following main objectives:
· to secure the entry into force of the new legal provisions and MED POL Phase III (to
focus on activities aiming at pollution control);
· to develop the activities of the Mediterranean Commission on Sustainable
Development;
· strengthen international co-operation in the Mediterranean, in particular within the
framework of Euro-Mediterranean co-operation;
· to implement at national and local levels the policies of environmental protection and
sustainable development defined on a regional scale; and
· develop information on the state of the environment in the Mediterranean region and
the policies pursued for its improvement.
The activities in this proposal have been designed to complement and build upon these
baseline activities of the MAP.
1.13 In the implementation of the Mediterranean Action Plan during the 1998-1999 biennium
high priority is accorded to actions designed to:
· implement the MAP legal instruments, and provide assistance to countries in the
implementation of those instruments, in particular the Land-Based Sources and
Specially Protected Areas Protocols; and
· fully implement the Global Programme of Action for the Protection of the Marine
Environment from Land-Based Activities, through the implementation of the SAP
MED and the development of National Programmes of Action as envisaged in the
amended LBS Protocol and the SAP MED.
6
1.14 The Mediterranean Environmental Technical Assistance Programme (METAP) launched
at the end of the 80's through an agreement between the World Bank, the United
Nations Development Programme, the European Commission and the European
Investment Bank is now in its third phase of implementation (1996-2000). Reduction of
pollution hotspots and capacity building in environmental management are the main
elements that link this programme with the Mediterranean Action Plan. In order to
create the necessary synergy a co-operation plan will be prepared with METAP
regarding collaboration in the implementation of activities relating to Hot Spots. In
particular common targets will be identified especially in relation to the pre-investment
studies foreseen in this project and the planned interventions of METAP based on the
country portfolios.
2. Project Rationale, Objectives (Alternative)
Project Rationale
2.1 The present proposal addresses the transboundary environmental concerns of the
Mediterranean Sea and as such contributes directly to the Waterbody-based Operational
Programme of the GEF Operational Strategy, and to assisting countries in meeting their
obligations under: the United Nations Convention on the Law of the Sea (Article 2075);
the Convention on Biological Diversity (Annex I of Decision 11/10 of the Contracting
Parties6); Agenda 21 (Chapter 177); the Convention for the Protection of the Marine
environment and the Coastal Region of the Mediterranean (Barcelona Convention); the
Protocol for the Protection of the Mediterranean Sea against Pollution from Land-based
Sources and Activities (LBS Protocol); the Protocol concerning Specially Protected Areas
and Biological Diversity in the Mediterranean (SPA Protocol); and the Action Plan for
the Protection of the Marine Environment and the Sustainable Development of the
Coastal Areas of the Mediterranean (MAP).
2.2 Regional and subregional co-operation is crucial for the development and
implementation of successful actions to protect the transboundary marine environment
from land-based activities. Such international co-operation allows for more accurate
identification and assessment of transboundary problems and more appropriate
determination of priorities for joint action in particular areas, than does unco-ordinated,
isolated national action. In addition, regional co-operation strengthens mechanisms and
institutions at both regional and national level and offers an important avenue for
harmonising and adjusting measures according to national, environmental, institutional
and socio-economic circumstances.
2.3 The SAP MED provides a broad framework and timetable for the implementation of
mechanisms and measures that will lead to the protection of the marine environment,
including its biodiversity, from harmful land-based activities in particular through the
development of an investment portfolio to address the most acute environmental
problems resulting from land-based activities. Of the large number of activities
contained in the SAP MED, this project will address a selection of the most urgent
priorities of GEF Recipient countries, those that are likely to ensure the adoption of long
term solutions to identified problems and those which are likely to be socially and
5 Article 207 requires states to adopt laws and regulations to prevent, reduce and control pollution of the marine environment
from land-based sources: to take measures as may be necessary to prevent, reduce and control such pollution: and to
endeavour to harmonise their policies in this connection at the appropriate regional level.
6 Annex I of Decision 11/10 of this Convention specifically relates to land-based activities.
7 Chapter 17 identifies prevention, reduction and control of degradation of the marine environment from land-based activities as
the main management related activity contributing to the goal of sustainable development of coastal and marine areas.
7
environmentally sustainable. Priorities for intervention determined during this project
will be based on the principle of maximising regional and global environmental
benefits.
Project Objectives
2.4 The overall goal of the project is to improve the quality of the marine environment in
the Mediterranean Region by better shared-management of land-based pollution
through improved international co-operation in the management of land-based
pollution of transboundary and regional significance. The objectives of the SAP MED
are to facilitate the implementation of the LBS Protocol to the Barcelona Convention by
the Contracting Parties and to contribute to the maintenance and where appropriate,
restoration of the productive capacity and biodiversity of the marine environment,
ensuring the protection of human health, as well as promoting the conservation and
sustainable use of marine living resources.
2.5 The specific objectives of this project are to implement the following components of the
SAP MED to address pollution from land-based sources, to:
· complete an analysis of the transboundary importance of the 103 hot spots identified
in the TDA MED and SAP MED and finalise the priority list for intervention and
investments ("Investment portfolio")(pre-investment studies will be conducted only
in GEF eligible countries);
· to formulate and adopt principles, approaches, measures, timetables and priorities
for action, that address each major land-based source of pollution and assist
countries in the implementation of such actions;
· conduct pre-investment analysis of expected baseline and additional actions needed
to address the selected hot spots, and secure recipient country agreement to baseline
investments;
· prepare and adopt at the regional level, detailed, operational guidelines for the
formulation of National Action Plans (NAPs) for the protection of the marine
environment from land-based activities;
· assist countries to prepare, adopt at the highest level, and implement, country
specific National Action Plans based on the regionally prepared and adopted
guidelines;
· identify roles for, and ensure effective participation of non-governmental
organisations in the implementation of components of the SAP MED, and where
appropriate incorporate these into the National Action Plans;
and to address other transboundary issues as follows:
· finalise and adopt a comprehensive and holistic Transboundary Diagnostic Analysis;
and,
· develop and adopt a strategic action plan for biodiversity in the Mediterranean in
conformity with the provisions of the protocol on Specially Protected Areas and
Biodiversity.
2.6 The SAP MED is addressed to, and has been endorsed by, all Contracting Parties. It
proposes common objectives for all countries, however, it is evident that the
implementation of the proposed activities should take into account the state of the
environment of each country. The timing for achievement of targets and for activities
may also differ between recipient countries, taking into account their present capacity to
adapt and reconvert existing installations, the economic conditions and the
development needs of individual countries.
8
2.7 GEF non-recipient countries that are party to the Convention and which have endorsed
the Strategic Action Plan will be encouraged to participate in regional activities and to
address regionally identified priorities through appropriate national action.
Participation in regional activities of representatives and experts from these countries
will be supported by the trust funds available to the Mediterranean Action Plan.
Approved national actions that are consistent with and in support of the
implementation of the SAP MED will be, subsequently listed as associated financing to
this project.
3. Project Activities/Components and Expected Results
Project Activities/Components
3.1 The proposed activities are based on the analysis of root causes (Annex IV), the contents
of the Strategic Action Programme as endorsed by the 10th Ordinary Meeting of the
Contracting Parties and technical reports on pollution "hot spots", "critical habitats"
and "sensitive areas" (areas of concern) taking into account the LBS Protocol, which in
Annex 1 states:
"In preparing action plans, programmes and measures, the Parties, in accordance with the
Global Programme of Action, will give priority to substances that are toxic, persistent and
liable to bioaccumulate, in particular persistent organic pollutants (POPs), as well as to
wastewater treatment and management".
3.2 In general, priority actions for the prevention, reduction and elimination of pollution
have been established taking into account four pollution-related factors:
· degradation of the marine environment;
· perturbation of aquatic biological diversity;
· land-based origin; and
· transboundary nature (causes or effects).
3.3 The workplan and timetable is presented in Table 1, which indicates the activities for
each quarter. There are 33 major activities proposed in this project, grouped into nine
components:
· Establishment and co-ordination of the project;
· Regional co-operative actions (preparation and adoption of 9 sets of regional
guidelines; and preparation and adoption of 8 regional plans);
· Hot spots;
· Sensitive areas;
· Preparation of a strategic action plan for biodiversity;
· Sustainability of SAP MED;
· Capacity building (7 training courses);
· Public participation; and
· National Action Plans (NAPs).
3.4 Activities under the Establishment and Co-ordination of the Project include the hiring of the
project manager and support staff to be located in the MAP-MEDU Athens, and to
function within the MAP structure; establishment of the Interagency Steering and Co-
ordination Committees; convening of three meetings of the Interagency Steering
9
Committee; two consultations with donors (one re-phased from the PDF-B phase); and
regular reporting to GEF and to the Contracting Parties of the Barcelona Convention
and the LBS Protocol. During the project appraisal phase extensive consultations will be
undertaken with UNDP, the World Bank, METAP and other appropriate regional
programmes to determine and agree upon the precise modalities for execution of this
project and co-ordination of its activities with those of other regional programmes.
Timely execution of this component should ensure smooth operation of project
activities, regular contacts with recipient countries and GEF, consultations with
potential donors, in particular regarding the pre-investment studies and Investment
portfolio, and mandatory reporting of the results to participating governments.
3.5 The Interagency Steering Committee is vital to the success of inter agency collaboration
particularly as a means of involving METAP and the World Bank in the envisaged
development of investment opportunities. The Interagency Committee will be chaired
by the lead Implementing Agency UNEP in accordance with the agreed procedures for
GEF International Waters Projects, and will include representatives from the
Implementing Agency GEF Co-ordination Offices the MEDU and other regional
programmes as determined under 3.4 above. National Co-ordinators will be nominated
by the recipient countries and will be expected to convene regular meetings of inter-
ministry committees at the national level to oversee the planning and execution of
national activities. National Co-ordinators from GEF eligible countries may be invited to
participate in the meetings of the Interagency Steering Committee. In addition a Co-
ordination Committee will be established, consisting of the nationally nominated co-
ordinators for activities undertaken in the framework of this project.
3.6 Activities under the Regional Co-operative Actions include the preparation and
adoption of nine sets of regional guidelines for:
· sewage treatment and disposal;
· disposal of urban solid waste;
· industrial wastewater treatment and disposal;
· application of BAT, BEP and clean technologies in industries;
· application of BAT and BEP in industrial installations which are sources of BOD,
nutrients and suspended solids;
· application of BEP for the rational use of fertilisers and the reduction of losses of
nutrients from agriculture;
· environmental inspection system;
· development of ecological status and stress reduction indicators; and
· river (including estuaries) pollution monitoring programme;
and the preparation and adoption of eight regional plans concerning:
· collection and disposal of all PCB waste;
· reduction of input of BOD by 50% by 2007;
· reduction by 20% by 2007 of the generation of hazardous waste from industrial
installations;
· management of hazardous waste;
· regional inventory of quantities and uses of nine pesticides and PCBs, as well of
industries which manufacture or condition them;
· establishment of regional pollution monitoring, reporting, and data quality
assurance programmes for rivers;
· establishment of regional pollution monitoring, reporting, and data quality
assurance programmes for the marine environment; and,
10
· collection of information on levels, trends and loads of pollution reaching the
Mediterranean.
3.7 Preparation and adoption of regional guidelines and plans will establish the
administrative, legal and technical basis for the implementation of the SAP MED at the
level of participating countries and will be based on data and information collected and
assembled through the MED POL programme. Preparation and adoption of these plans
and guidelines will be carried out in consultation with country representatives, relevant
international organisations and with the assistance of experts. Periodic consultations
will be convened as required to finalise the documents prior to their submission to
meetings of the Contracting Parties for adoption. These activities will be closely co-
ordinated with MAP funded activities on monitoring and reporting and data quality
assurance.
3.8 Activities under Hot Spots include the preparation of an analysis of the main causes
and impacts in the areas of the 103 hot spots identified during the SAP MED
preparation and their transboundary and regional importance. Of these 103 hot spots 51
are located in GEF recipient countries. Criteria and methods for determining the
regional and transboundary significance of these hot spots will be developed, priorities
determined and a selection made of the most important from a regional perspective.
Following regional and national agreement on the selection, pre-investment studies will
be executed for those occuring in GEF eligible countries, leading to investment by
countries and donors in the elimination or reduction of transboundary pollution from
these hot spots.
3.9 This component is extremely important, if not the most important package of actions in
the SAP MED that should lead directly to a reduction in pollution of the Mediterranean
Sea. Activities will be carried-out in co-operation with relevant international
organisations and international financial institutions. Regarding pre-investment studies
(point 4.4 of the budget Table 3) GEF funds will be used only in recipient countries. It is
expected that donors will assist in the financing of the pre-investment studies (which
should be carried-out by competent international institutions) and in financing of
relevant investments in the countries. Also, it is expected that countries will actively
participate in, and cofinance the preparation of the pre-investment studies.
3.10 Activities under Sensitive Areas include the preparation of a detailed analysis of the
major threats and an environmental audit of the 51 sensitive areas identified during the
SAP MED preparation in order to determine their regional and global significance and
likely risks from future development activities. Of the 51 sensitive areas 32 are located in
GEF recipient countries. Criteria and methods for determining the regional and
transboundary significance of these sensitive areas will be developed in order to
identify priority areas in GEF eligible countries for investment in environmental
protection and the preparation of comprehensive integrated management plans.
Sensitive areas, at risk of becoming future pollution hot spots, require special attention
from the international community and respective countries in order to prevent their
future degradation.
3.11 Activities under Preparation of a Strategic Action Plan for Biodiversity include an
analysis of: the relationships between pollution (including enhanced nutrient inputs),
primary production and biodiversity; problems of non-indigenous species; the causes
of human induced changes to populations and communities of organisms, in particular
11
threatened species of global significance; the regional and global significance of
sensitive areas and critical habitats; and preparation of a listing of areas of concern
encompassing pollution hot spots, critical habitats for threatened and endangered
species and sensitive areas threatened by future land-based activities including
pollution. This Strategic Action Plan will be prepared to enable countries to fully
implement the Protocol on Specially Protected Areas and Biodiversity. To ensure
appropriate co-ordination of these activities with the actions of other regional bodies
this component of the project will be executed by the Specially Protected Areas Regional
Activity Centre of MAP in close collaboration with FAO and the General Fisheries
Council of the Mediterranean (GFCM). Activities will be designed to enhance
communication amongst the various stakeholders involved with living marine
organisms and biodiversity in the Mediterranean Sea with a view to developing
regionally agreed strategies for action. As appropriate joint technical meetings of the
MAP and GFCM will be convened.
3.12 Activities under Sustainability of SAP MED include identification of economic
instruments that will assist in developing a sustainable financial platform for the
continued implementation of the SAP MED in the longer term and incorporation of
such economic instruments at the national level in the National Action Plans. These
activities will develop administrative, legal and fiscal mechanisms for the sustainable
financing of the implementation of SAP MED at country level. These activities will be
undertaken in close co-operation with country partners, relevant international
organisations and institutions and appropriate regional experts.
3.13 Activities under Capacity Building include the preparation and implementation of
seven regional training programmes. Participants in the training courses will be selected
with the intention to improve the competence of the national administrative and
technical experts in the implementation of the SAP MED. The following training
programmes will be undertaken:
· environmental auditing and management;
· environmental education;
· pollution monitoring and inspection;
· cleaner production techniques and practices;
· operation and maintenance of waste water treatment plants;
· river pollution monitoring; and
· Integrated Coastal Zone Management.
3.14 Activities to be executed under Public Participation include the development and
implementation of a regional programme of public participation in the implementation
of the SAP MED that will include provision of information to the general public on the
state of the environment and the measures taken to improve it; facilitation of public
access to activities for the protection and management of the environment; and
identification of the potential role of NGOs in the implementation of the SAP MED.
12
Table 1. Workplan, Timetable and GEF disbursement schedule (in US $ thousands) for the implementation of the components and activities.
ACTIVITIES
PDF PHASE
DURATION OF PROJECT 36 MONTHS
3 6 9 12 15 18 3 6 9 12 15 18 21 24 27 30 33 36
1. Pre-Project Preparatory Phase PDF
1.1 Steering Group meetings (2)
7
7
1.2 Expert Group meetings (2)
14
60
1.3 Contracting Parties meeting (Adoption of SAP MED)
1.4 Preparation of SAP MED
10
14
10
1.5 Preparation of draft TDA MED
28
47
38
1.6 Preparation of Hot Spots Review
10
26
20
1.7 Finalisation of Project Brief & Mtg. of GEF Co-ordinators
40
2. Establishment and Co-ordination of the Project
2.1 Hiring of Project ManagerCo-o and support staff
140
130
130
2.2 Preparation, translation, publication and distribution of
20
20
20
documents and plans
2.3 Establishment of the Interagency Steering, & Co-ordination
Committees
2.4 Meetings of Interagency Steering Committee
17
16
17
2.5 Donors Consultations
98
30
2.6 Reporting to GEF and Contracting Parties
7
6
7
3. Regional Co-operative Actions
3.1 Preparation and adoption of Regional Guidelines (MAP)
85
15
3.2 Preparation and adoption of Regional Plans (MAP)
80
25
4. Hot
Spots9
4.1 Prepare an analysis of 103 Hot Spots (51 in GEF recipient
400
countries) their main causes and impact evaluation
(WHO/MAP-MED POL)
4.2 Develop criteria and methodology for prioritising hot spots for
20
pre-investment studies (WHO/MAP-MED POL)
4.3 Selection of priority hot spots for pre-investment studies
20
(WHO/MAP-MED POL)10
4.4 Pre-investment studies (MAP-MED POL & Governments)
1300
500
4.5 Investment by countries
5. Sensitive
Areas
5.1 Prepare an analysis of the 51 sensitive areas (32 in GEF recipient
300
countries) with main threats and environmental audit
(WHO/MAP-MED POL)
5.2 Develop criteria and methodology for prioritising sensitive areas
20
for investment in environmental protection (WHO/MAP-MED
POL)
5.3 Selection of priority sensitive areas for investment in
20
environmental protection and preparation of management plans
(WHO/MAP-MED POL)
6. Development of a Strategic Action Plan for the management of
biodiversity
6.1 Determination of priority actions for biodiversity and SAP
350
120
40
preparation(MAP-SPA RAC/FAO/GFCM)
8 Rephased disbursement of PDF-B grant funds.
9 The bulk of the funds under this component will be transferred to nationally designated institutions in GEF eligible countries under a Memorandum of Understanding forming part of the final project
document.
10 The bulk of the funds under this component will be transferred to nationally designated institutions in GEF eligible countries under a Memorandum of Understanding forming part of the final project
document.
13
7. Sustainability of SAP MED
7.1 Development of economic instruments for sustainable
20
implementation of the SAP MED (MAP-PAP RAC)
7.2 Adoption and Implementation of economic instruments at the
100
100
national level (MAP-PAP RAC)
8. Capacity
Building
8.1
Regional
training
programmes
9. Public
Participation
9.1 Development & implementation of a regional programme of
20
20
public participation in the implementation of SAP MED (MAP)
9.2 Identification of the potential role of NGOs in the implementation
15
15
of SAP MED (MAP)
9.3 Facilitation of public access to activities for the protection and
10
10
management of the environment (MAP)
9.4 Provision of information to the general public on the state of the
15
15
environment & measures taken to improve it (MAP)
10 National Action Plans (NAP)11
10.1 Assistance to countries in the development and implementation
50
50
50
of NAP (MAP)
10.2 Assistance to countries in the implementation at national level of
100
50
Regional Guidelines (point 3.1) (MAP)
10.3 Assistance to countries in the implementation at national level of
100
50
Regional Plans (point 3.2) (MAP)
10.4 Assistance to countries in activities regarding Hot Spots (point 4)
50
50
50
(MAP)
10.5 Assistance to countries in activities regarding Sensitive Areas
50
50
50
(point 5) (MAP)
10.6 Assistance to countries in activities regarding living marine
80
70
resources and biodiversity (point 6) (MAP)
10.7 Assistance to countries in activities regarding Sustainability of
30
60
60
SAP MED (point 7) (MAP)
10.8 Capacity building in countries
(point
8)
(MAP)
70
80
10..9 Public participation in countries (point 9) (MAP)
50
50
50
Administrative Overheads
120
110
120
Evaluation
Costs
10
15
30
Disbursement schedule of GEF funds 331
1,953
2,557
1,449
11 The bulk of the funds under this component will be transferred to nationally designated institutions in GEF eligible countries under a Memorandum of Understanding forming part of the final project
document.
14
3.15 Activities envisaged under National Action Plans (NAPs) include assistance to the
inter-ministerial committees of the twelve recipient countries in the development and
implementation of individual NAPs. Development of NAPs should include
consideration of all the above-mentioned components of the SAP MED and SAP for
Biodiversity and should be executed in close partnership with country authorities,
international organisations, international institutions, and experts from the region..
3.16 Execution of these activities will be undertaken by the relevant national authorities in
close collaboration with the regional entities established under the Barcelona
Convention and Mediterranean Action Plan including the Mediterranean Co-ordinating
Unit, MED POL and the Regional Activity Centres for Priority Actions Plan, Specially
Protected Areas, and Cleaner Production. Specialised international organisations will be
responsible for Co-ordinating the work undertaken in relation to components on hot
spots and sensitive areas (WHO) and SAP for biodiversity (FAO) while the World Bank
is expected to assist in the design and execution of the pre-investment studies.
Expected Results
3.17 Expected results of the project are:
· improved quality of the environment in the Mediterranean region;
· 9 regional guidelines for implementation of components of the SAP MED, published
and adopted by the Contracting Parties that will be implemented at the national
level;
· 8 regional plans for implementation of components of the SAP MED, published and
adopted by the Contracting Parties that will be implemented at the national level;
· a revised Transboundary Diagnostic Analysis approved by the governments;
· Investment portfolio of selected pollution hot spots for which pre-investment studies
will be conducted;
· management plans for selected sensitive areas;
· agreed actions for joint implementation by FAO, the GFCM and MAP;
· a strategic action plan for biodiversity in the Mediterranean, linked with and
complementary to the SAP MED for land based activities;
· development and implementation of economic instruments which will assist
governments in developing a sustainable financial basis for the long-term operation
of the SAP MED;
· improved capacity of national administrators and technicians to deal with
environmental problems and to enforce adopted legal instruments and regulations;
· development and implementation of National Action Plans for the implementation of
SAP MED;
· agreed indicators for process, stress reduction and environmental status; and
· improved administrative, legal and technical basis for the implementation of the SAP
MED and LBS Protocol.
4. Risks and Sustainability
4.1 A logical framework matrix is appended as Annex II to this document which outlines a
number of the critical assumptions and associated risks inherent in this project. The
adoption of the SAP MED by the 10th meeting of Contracting Parties to the Barcelona
Convention would suggest that risks associated with government commitments to the
implementation of this project are small. Nevertheless the possibility exists that at
individual government level, other national priorities will result in the inability of some
15
governments to invest in the required remedial actions where these involve substantial
capital investment.
4.2 At a technical level it is assumed that regional guidelines and plans can be drafted and
agreed by technical experts from the region and that these will be approved by the
Contracting Parties. Since such plans and guidelines are envisaged both within the
framework of the LBS protocol and the SAP MED, governments have already endorsed
the principle of their development hence the risk of non-delivery is small.
4.3 The issue of sustainability is more complex, at one level the existing activities of the
Mediterranean Action Plan are fully self-sustaining relying as they do on government
and other contributions to the Mediterranean Trust Fund and the Mediterranean Co-
ordinating Unit has enjoyed continued support from the regional governments for more
than twenty years. However activities fostered through the Mediterranean Action Plan
are not financially self-sustaining at a national level where shortages of funds often
prevent successful implementation of actions agreed regionally. Component 7 of this
project seeks to explore mechanisms for making such actions self-financing at the
national level through revenue generation and demonstration of the economic benefits
of more integrated approaches to management.
5. Stakeholder Participation and Implementation Arrangements
5.1 The implementation of this project will take place through a network of executing
agencies responsible for various components, operating according to a common
timetable and workplan. The primary Executing Agency will be the Secretariat to the
Barcelona Convention and its associated Mediterranean Co-ordinating Unit that will
provide overall co-ordination. Some individual components will be operated through
joint implementation agreements with the Food and Agriculture Organisation
(component 6 Preparation of a SAP for Biodiversity) and the World Health
Organisation (component 3 preparation of three regional guidelines; component 4
hot spots; component 5 Sensitive Areas; and component 8 two training programmes)
both of whom participated in the Preparatory Phase activities. Other regional
organisations and programmes such as METAP and Euromed will be involved as
appropriate.
5.2 In addition to the MAP-MEDU a network of six Regional Activity Centres have been
established by participating governments, charged with particular responsibilities
under the Action Plan. Of these centres the Cleaner Production Regional Activity Centre
in Spain will take responsibility under the direction of MAP for the preparation of three
regional guidelines, one regional plan and one regional training programme; the
Specially Protected Areas Regional Activity Centre will in collaboration with the FAO
and GFCM take responsibility for the development of the Biodiversity SAP (component
6); and the Priority Action Programmes Regional Activity Centre will be responsible for
the implementation of the component on Sustainability of SAP MED (component 7) and
preparation of one regional training programme (component 8).
5.3 The primary stakeholders in the execution of this project are the governments, although
a role for regional and international NGOs such as IUCN is foreseen in the context of
their effective participation in specific components of the overall programme. A Public
Involvement Plan is appended as Annex V to this document. Governments will be
directly involved in the regionally co-ordinated activities via the participation of
government nominated experts in regional meetings convened under this project
16
document. Where they are engaged, consultants will be drawn from the countries of the
Mediterranean Basin and the periodic meetings of the Contracting Parties will have
oversight of activities on a regular basis throughout the period of project execution.
5.4 In a broader context the entire coastal population of the Mediterranean Basin and the
100 million tourists visiting the Mediterranean annually may be seen as stakeholders
that would benefit from an improvement in the environmental quality of the
Mediterranean Sea and the coastal zone. Whilst the resident populations in the environs
of the hot spots and sensitive areas will be directly consulted during the pre-investment
activities envisaged under this project.
6. Incremental Costs and Project Financing
6.1 Table 2 presents an incremental cost table based on the component costs presented in
Table 3 and the discussion contained in Annex I. As noted in that Annex benefits under
this project accrue at both regional (global) and national level. However given the
nature of the proposed activities benefits may also be viewed as being of two distinct
types. Those that result in direct environmental benefits within the life of the project (3
years) and those which provide longer term environmental benefits through enhancing
the capacity of participating countries to manage their environment in a regionally
harmonised manner.
6.2 The benefits of regional approaches are outlined in section two of this document, but
adopting such an approach places an added financial burden on the countries
concerned beyond those associated with achieving purely national environmental
benefits. Through their ratification of the Barcelona Convention and its associated LBS
protocol and through their adoption of the SAP MED, participating countries have
recognised their obligations at a regional level hence there is a significant component of
baseline financing via the participation of countries in the regionally co-ordinated
activities proposed in this project document and via the commitment of Mediterranean
Environment Trust Fund monies to the execution of components of the SAP MED that
complement the existing MAP work programme (Annex VIII).
17
Table 2.
Incremental Cost Analysis (US $ thousands)
Baseline Alternative Increment
Global & Regional Environmental
Benefits
1,885
8,175
6,290
Component 1 PDF B
165
496
331
Component
2
165 734 569
Component
3
230 435 205
Component
4
560 2,800 2,240
Component
5
200 540 340
Component
6
90 600 510
Component
7
50 270 220
Component 8
140
140
0
Component
9
50 170 120
Component
10
210 1,560 1,350
Administrative overheads &
25 430 405
evaluation costs
Domestic Benefits
2,300 2,300
0
Component 1 PDF B
0
0
0
Component
2
0 0 0
Component
3
0 0 0
Component 4
1,500
1,500
0
Component
5
0 0 0
Component
6
0 0 0
Component 7
100
100
0
Component 8
250
250
0
Component
9
0 0 0
Component 10
450
450
0
Administrative overheads &
0 0 0
evaluation costs
Total Cost
4,185 10,475 6,290
6.3 Through their adoption of the biennial budget (1998-1999) for the MED POL
programme and their agreement regarding financing of the SAP-MED the contracting
parties have agreed to a regional baseline contribution during the biennium 1998-1999
of 840,000 US $ in cash and 200,000 US $ in kind to the present project. It is anticipated
that this level of financing will continue to be provided during the third year of the
project.
6.4 Table 3 presents the project budget and component financing by activity. The total cost
of the project (including the PDF-B phase) is 10.475 million US $ of which 3.04 million is
the anticipated costs in cash and in-kind to participating countries and 1.12 million is
the cost to the Mediterranean Trust Fund12 established by the Contracting Parties to the
Barcelona Convention.
12 The budget of MAP is decided biennially, hence only the components for 1998 and 1999 can be guaranteed at this stage.
18
6.5 A significant proportion of the GEF funds (38%) are allocated to addressing hot spots
resulting from land-based activities in the Mediterranean. The Strategic Action
Programme, prepared under the PDF-B phase of this project identified 103 hot spots
and 51 sensitive areas in the Mediterranean basin. Although these were prioritized in a
preliminary manner a fuller analysis of the impacts and the extent to which these may
be considered national and transboundary, is required prior to decisions concerning the
appropriateness of committing GEF resources to their solution.
19
Table 3.
Project budget and component financing (in US $ thousands). Figures in Italics in the MAP column represent in-kind support from the
MAP-MEDU, WHO, and participating Regional Activity Centres.
Activities GEF
Cofinancing
TOTAL
Countries
13
MAP
1. Pre-Project preparatory phase PDF
1.1 Steering Group meetings (2)
14 14
1.2 Expert Group meetings (2)
74 90 10 174
1.3 Contracting Parties meeting (Adoption of SAP MED)
1.4 Preparation of SAP MED
34 10 44
1.5 Preparation of draft TDA MED
113 20 133
1.6 Preparation of Hot Spots Review
56 10 66
1.7 Finalisation of Project Brief & document meeting MAP-GEF Co-ordinators
40
25
65
Subtotal
33114 120 4515 496
2. Establishment and Co-ordination of the Project
40 40
2.1 Hiring of Project Manager and support staff (including travel)
400
0
30
430
2.2 Preparation, translation, publication and distribution of documents and plans
60
0
30
90
2.3 Establishment of the Interagency Steering Committee
0
0
0
0
2.4 Meetings of Interagency Steering & Co-ordination Committees (including National GEF Co-ordinators)
50
20
0
70
2.5 Donors Consultations
39 0 35 74
2.6 Reporting to GEF and Contracting Parties
20 0 10 30
Subtotal
569 20 145 734
3. Regional Co-operative Actions
30 30
3.1 Preparation and adoption of Regional Guidelines (MAP-MEDU)
100 0 100 200
3.2 Preparation and adoption of Regional Plans (MAP-MEDU)
105
0
100
205
Subtotal
205 0 230 435
4. Hot
Spots
30 30
4.1 Prepare an analysis of 103 Hot Spots (51 in GEF recipient countries) with main causes and first impact
400 100 40 540
evaluation (WHO/MAP-MED POL)
4.2 Develop criteria and methodology for prioritising hot spots for pre-investment studies (WHO/MAP-MED
20 50 20 90
POL)
4.3 Selection of priority hot spots for pre-investment studies (WHO/MAP-MED POL)
20
50
20
90
4.4 Pre-investment studies (MAP-MED POL & Governments)
1,800
200
50
2,050
4.5 Investment by countries
0 1,500 0 1500
Subtotal
2,240 1,900 160 4,300
5. Sensitive
areas
10 10
5.1 Prepare an analysis of the 51 sensitive areas (32 in GEF recipient countries) with main threats and
300 50 20 370
environmental audit (WHO/MAP-MED POL)
5.2 Develop criteria and methodology for prioritising sensitive areas for investment in environmental protection
20 50 10 80
(WHO/MAP-MED POL)
13 Estimated cash and in-kind contributions.
14 US $ 9K carried forward to the appraisal phase under item 2.5
15 US $ 35K carried forward to the appraisal phase under item 2.5
20
5.3 Selection of priority sensitive areas for investment in environmental protection and preparation of
20 50 10 80
management plans (WHO/MAP-MED POL)
Subtotal
340 150 50 540
6. Development of a Strategic Action Plan for Biodiversity
20 20
6.1 Preparation of a SAP for biodiversity (MAP-SPA RAC/FAO/GFCM)
510
50
20
58016
Subtotal
510 50 40 600*
7. Sustainability of SAP MED
10 10
7.1 Development of economic instruments for sustainable implementation of the SAP MED (MAP-PAP RAC)
20
20
40
7.2 Adoption and Implementation of economic instruments at the national level (MAP-PAP RAC)
200
100
20
320
Subtotal
220 100 50 370
8. Capacity
Building
20
20
8.1 Regional training programme
0 250 120 370
Subtotal
0 250 140 390
9. Public
Participation
10 10
9.1 Development and implementation of a regional programme of public participation in the implementation of
40 0 10 50
SAP MED (MAP)
9.2 Identification of the potential role of NGOs in the implementation of SAP MED (MAP)
30
0
10
40
9.3 Facilitation of public access to activities for the protection and management of the environment (MAP)
20
0
10
30
9.4 Provision of information to the general public on the state of the environment and the measures taken to
30 0 10 40
improve it (MAP)
Subtotal
120 0 50 170
10. National Action Plans (NAPs)
30
30
10.1 Assistance to countries in the development and implementation of NAP (MAP)
150
50
20
220
10.2 Assistance to countries in the implementation at national level of Regional Guidelines (point 3.1) (MAP)
150
50
20
220
10.3 Assistance to countries in the implementation at national level of Regional Plans (point 3.2) (MAP)
150
50
20
220
10.4 Assistance to countries in activities regarding Hot Spots (point 4) (MAP)
150
50
20
220
10.5 Assistance to countries in activities regarding Sensitive Areas (point 5) (MAP)
150
50
20
220
10.6 Assistance to countries in activities regarding national action plans for biodiversity(point 6) (MAP)
150
50
20
220
10.7 Assistance to countries in activities regarding Sustainability of SAP MED (point 7) (MAP)
150
50
20
220
10.8 Capacity building in countries (point 8) (MAP)
150
50
20
220
10.9 Public participation in countries (point 9) (MAP)
150
50
20
220
Subtotal
1350 450 210 2,010
PROJECT TOTAL (including PDF-B grant)
5885 3040 1,120 10,045
Administrative Overheads
350 0 0 350
Evaluation Costs
55 0 2517
80
TOTAL COSTS
6,290 3040 1,145 10,475
WHO World Health Organization; MAP Mediterranean Action Plan; MAP-MED POL Mediterranean Pollution Programme of MAP; MAP-CP RAC Cleaner Production Regional Activity
Centre of MAP; MAP-MEDU Co-ordinating Unit of MAP; FAO Food and Agricultural Organization of the UN; MAP-SPA RAC Specially Protected Areas Regional Activity Centre of MAP;
MAP-PAP RAC Priority Action Programme Regional Activity Centre of MAP
16 Additional funds will be provided through cofinancing from FAO.
17 UNEP headquarters in-kind contribution
21
6.6 The first phase of activities (Table 1) to address regional hot spots therefore involves the
development of regionally acceptable criteria for the selection of priority hot spots and
identification of related stress reduction and ecological status indicators. Priority hot
spots of transboundary concern, once identified will be addressed through the conduct
of full pre-investment studies concerning the costs and possible alternative actions
required to alleviate these problems. Investment by the countries in such studies will
occur only following this phase and only following a full analysis of baseline and
incremental costs in each case. It is envisaged that the incremental component of the
resultant national investment portfolios will be rather small, hence it is planned to
actively engage the wider donor community in this analysis with a view to their
subsequent support for actions designed to reduce pollution from land-based activities.
6.7 The second component that represents a significant proportion (23%) of the GEF
resources involves the development of National Action Plans to implement the regional
SAP MED in the GEF eligible countries. Such an investment is considered largely
incremental since it involves the design of national standards that meet the regionally
adopted criteria. In many instances such standards have greater regional than domestic
benefit, particularly in open coastlines where land-based discharges are rapidly
dispersed or transported beyond territorial waters.
7. Monitoring, Evaluation and Dissemination of Results
7.1 Monitoring of the progress in executing the components and activities will be
undertaken via UNEP's normal procedures that require regular quarterly reports on
substantive and financial matters. In addition the GEF Co-ordination Office in
consultation with the Mediterranean Co-ordination Unit will develop process indicators
during the initial phase of the project that will serve as evaluation benchmarks during
project execution. The MAP will also develop stress reduction and environmental status
indicators as integral components of activities within the project.The Interagency
Steering Committee will review progress and advise the Project Manager and Executing
Agencies on the overall progress and any necessary adjustments to the workplan and
timetable that may arise through unforeseen contingencies. Regular reporting by the
Project Manager and the Mediterranean Co-ordinating Unit will be undertaken to all
meetings of the Contracting Parties to the Barcelona Convention and to the Bureau that
meets between ordinary meetings of the Contracting Parties.
7.2 A terminal desk evaluation will be undertaken by UNEP as the lead Implementing
Agency in accordance with internal agency procedures. In addition an independent
evaluation will be commissioned during the final 6 months to provide a substantive
evaluation of the project management, execution and outcomes.
7.3 Dissemination of results to the public will take place through various media including
inter alia the quarterly newsletter of the Mediterranean Action Plan MedWaves, through
the public participation plan to be developed during the project and through ad hoc
press releases and conferences as required. Substantive results at the national level will
be communicated to other national experts through periodic regional expert group
meetings and through the documents presented to the meetings of the Contracting
Parties. In addition it is intended to involve the National Co-ordinators in recipient
countries in the periodic meetings of the Interagency Committee thereby enhancing
information flow and strengthening country involvement in the regional components of
22
the project.
23
List of Annexes
Annex I
Incremental costs and benefits of the Project "Determination of priority
actions for the further elaboration and implementation of the Strategic Action
Programme for the Mediterranean Sea"
Annex II
Logical Framework Matrix
Annex III
STAP Roster Expert Review
Annex IV
Root Cause Analysis for the Mediterranean Based on the Results of the
Transboundary Diagnostic Analysis
Annex V
Public Involvement Plan Summary
Annex VI
Available Reference Documents
Annex VII
List of Country Endorsements
Annex VIII
The relationship between the 1998-1999 workplan of MAP and the present
project.
24
ANNEX I
Incremental costs and benefits of the Project
"Determination of priority actions for the further elaboration and implementation of the
Strategic Action Programme for the Mediterranean Sea"
Background
The GEF Incremental Costs analysis requires a consideration of baseline and incremental
costs associated with achieving `domestic' and global environmental benefits (see Table 2).
The regional scope of the present proposal presents methodological difficulties in assessing
the baseline and incremental costs of the project which are normally calculated in a purely
national context. In the present case the benefits resulting from this project are seen as
accruing at global, regional and national scales.
National & Regional Benefits
National benefits resulting from this activity are of two distinct types: those that relate to
improvement in the condition of the environment under national jurisdiction and those that
relate to improvement in the national capacity to manage and control adverse
environmental impacts. Regional benefits resulting from this activity are also of two distinct
types: those relating to the abatement or mitigation of transboundary environmental impacts
occurring either in the `global commons' or that are of a transboundary nature and those
that result from adoption of a harmonised regional approach to action. This duality of
benefits at both levels reflects the nature of the project that includes activities designed to
harmonise national actions on a regional basis and actions designed to concretely address
hot spots of land based pollution and sensitive areas that have been identified as being of
regional concern and/or importance.
Whilst an individual country could be expected to pay as part of the baseline, for actions
designed to improve the conditions of its marine and coastal environment such actions in
many cases are inadequate when considered in a wider regional context. Although the
majority of impacts of land-based activities occur within the territorial waters of the
countries generating the contaminant or pollutant, the national incentive to reduce pollution
is conditioned by the time taken to remove or flush the contaminant or pollutant from
national to extra-national waters. The faster the flushing time the less the incentive for
national action, and the greater the transboundary component.
It is important to recognise in this context that the Mediterranean littoral countries have not
declared or agreed upon the delineation of Exclusive Economic Zones hence most of the
Mediterranean sea surface falls within the `global commons'. For some littoral states
territorial waters extend only some 6 miles from the coast.
It is important to state at the outset that no direct measurable environmental benefit will
result from actions proposed during the three years of this project. It is anticipated that as a
result of the activities proposed, pre-investment studies will be completed for around 15
`hot-spots' of regional and transboundary importance that will enable countries to seek
donor or loan support to actions directed towards remedial and mitigatory action, i.e. the
project will lead to significant national investment. More importantly, the project as a whole
will lead to a regionally agreed set of targets and management plans thus providing the
framework for national action that will be implemented outside the framework of this
project, but under the umbrella of the LBS Protocol of the Barcelona Convention.
25
National & Regional Actions
Through their ratification of the Barcelona Convention and its associated Land Based
Sources Protocol the riparian states of the Mediterranean have recognised their collective
responsibilities at a regional level for the sound management of the Marine Environment.
Over a twenty year period the governments, with the support of UNEP have financed
various regional activities designed to facilitate the acceptance of common environmental
goals, culminating in the recent adoption of the Strategic Action Programme to address
Pollution from Land-Based Activities in the Mediterranean by the Contracting Parties at
their 10th ordinary meeting in Tunis, November 1997. The recently signed Protocol on
Specially Protected Areas and Biodiversity which is anticipated to enter into force in 1998
provides an internationally agreed legal basis on which to develop a strategic action
programme for biodiversity.
This SAP MED, the development of which was funded during the PDF-B phase represents a
significant departure from previous actions in that it recognises the obligations of states to
contribute financially to the solution of common Mediterranean problems that are also of
national concern. The preliminary estimates of addressing all components of the SAP MED
between 1998 and the year 2007 are estimated at around 8 billion US $. Section 11.6 of the
SAP MED states:
"However, it is important to clearly state that most of the resources should be national and that it is
the polluters, the consumers, the users and the governments which should provide the resources
necessary for application of the Programme, knowing that the benefits obtained could be greater than
the costs involved." [UNEP(OCA)/MED IG.11/9 p.65]
Baseline Actions
Section 2 of this document outlines the present baseline actions taken by states collectively
regarding the implementation at regional level of actions designed to promote the further
development and implementation of actions contained in the SAP MED.
The Mediterranean countries have been conducting a pollution assessment programme,
MEDPOL, within the framework of the Mediterranean Action Plan (MAP) of the Barcelona
Convention since 1976. The estimated cost of this assessment to the Mediterranean Trust
Fund and the co-operating UN Agencies is US $ 35 million. This cost does not include the
contribution of the countries for implementing national monitoring programmes and
research projects. The full cost of MEDPOL, including national and individual contributions,
is estimated as US $ 180 million18. A socio-economic study, designated the Blue Plan, has
also been conducted within the framework of MAP and the Barcelona Convention. The
estimated cost to the Mediterranean Trust Fund and the Government of France is US $ 9
million for the 1978-1996 period. The corresponding costs of developing national scenarios
elevate this figure to some US $ 20 millions, which does not include the costs of socio-
economic assessments conducted in the framework of the coastal area management plans
and other activities of the Priority Areas Programme of the MAP. The entire budget for the
1998-99 biennium as approved by the 10th meeting of the Contracting Parties is US $ 12.8
million encompassing actions not directly related to pollution but to all areas of action in the
protection and sustainable management of the Mediterranean environment (see Annex VIII).
18 This figure includes equipment and training for developing country scientists; field sampling measurements and observations,
laboratory analyses and experiments not envisaged in the framework of the present proposal. Consequently this figure cannot
be considered in total as a baseline contribution.
26
At a national level all contracting parties have sought over the last twenty years to
strengthen their national capacity for sound and sustainable management of the marine and
coastal environment of the Mediterranean. Following the past emphasis on assessment of
problems and potential solutions the base of information and data required for management
decisions regarding mitigatory and remedial actions is now extensive for many countries in
the region. In some instances however GEF eligible countries have been unable to devote
sufficient resources internally to developing such mechanisms and hence the stage of
development varies widely from country to country. Assessing the national baseline for all
20 countries is therefore a task requiring more extensive analysis of current investment
patterns than has been possible in the past twelve months. The national baseline investment
in regional co-ordination of pollution related actions has been of the order of 7 million US $
annually for all riparian states, this is additional to the true national baseline associated with
national investment in management for national environmental benefit.
Incremental Actions
The present proposal adds significantly to this `regional baseline' enabling the countries to
accelerate the timeline for Implementation of the SAP MED. The question arises therefore as
to whether or not the costs of the regional activities proposed in this project (Components 2,
3, 5, 6, 8, and 9 in full; and components 4 and 7 in part) represent additional baseline or truly
incremental costs. In that these proposed regional components build on existing national
and regional level actions both past and ongoing, they may be considered complementary
and therefore from a GEF perspective entirely incremental.
Components 4 and 10 include actions at the national level and it is for these components that
the largest national contributions in terms of co-financing are expected since these actions
are anticipated to bring significant national benefits. However in the case of the pre-
investment studies (Activity 4.4) the selection will be based on a combination of national and
regional priorities and only those hot spots considered of regional significance will be
funded for full pre-investment analysis from the GEF funds. Developing countries will be
encouraged and assisted via donor consultations to seek alternative sources of funding for
similar studies of hot spots considered of high national but low regional priority, and non-
GEF eligible countries in the region will be encouraged to invest in remedial and mitigatory
actions in the case of regionally significant hot spots occurring within their territorial waters.
The development of National Action Plans for the implementation of the SAP MED will
involve significant co-financing from participating countries in terms of the commitment of
inter-ministry teams to their development, and the required detailed analysis of current
government investment and spending patterns. The financing of the development of such
Action Plans for the twelve GEF eligible countries in the region is seen as a legitimate
incremental cost in that they must be developed in such a manner as to conform to the
regional requirements of the SAP MED.
27
ANNEX II
LOGICAL FRAMEWORK MATRIX
PROJECT PLANNING MATRIX
SUMMARY
OBJECTIVELY VERIFIABLE INDICATORS
MEANS OF VERIFICATION
CRITICAL ASSUMPTIONS AND RISKS
Overall Objectives
Improved
marine
Reduced pollution load19
Measurable reduction in land-based
That governments will agree to invest the required baseline costs. This
environmental quality of the
Reduced inputs from land-based activities
discharges, observed through
assumption presents a low risk given that the SAP MED as already
Mediterranean
national and regional monitoring
endorsed by Contracting Parties outlines the anticipated costs
Outcomes
Regional:
Revised TDA MED will be accepted by the Contracting Parties. This
Adoption by the Contracting Parties to the
Meeting report of the Contracting
assumption seems likely to be met since agreement was reached on
Barcelona Convention of the finalised Regional
Parties
the value of the TDA MED, and the need to revise certain sections
Transboundary Diagnostic Analysis (TDA MED)
Endorsement by the Contracting Parties to the
Barcelona Convention of the finalised Strategic
This critical assumption of the PDF-B phase was met through adoption
Action Programme (SAP MED)
Meeting report of the 10th ordinary
and endorsement of the SAP MED at the 10th meeting of Contracting
Improved management of the
meeting of the Contracting Parties to
Parties to the Barcelona Convention held in Tunis, November 1997
Mediterranean marine and
the Barcelona Convention
coastal environment at
regional and national levels
through the implementation of
the SAP MED
National:
That governments will develop and adopt NAPs that include regional
Adoption by National Governments of NAPs that
11 Nationally published NAPs
considerations in their assessment of national priorities for action. This
Include transboundary and regional
assumption seems likely to be met given existing national
considerations
commitments to regional action under MAP, the Barcelona
Convention and its LBS Protocol . The SAP MED includes an
obligation on states to produce such plans
Improved integration of
Agreement on joint priorities for action between
Meeting Reports
That governments support more integrated approaches at national
fisheries and pollution
the GFCM and MAP and adoption by Contracting
level to management of fisheries and environmental issues. This
management in the
Parties to the Barcelona Convention and
assumption presents a higher risk than those outlined above due to
Mediterranean
participant states in the GFCM of joint goals and
inherent sectorial approaches at the national level, the GFCM has
objectives relating to fisheries and environment
directed FAO to co-operate with MAP thus reducing this risk
Improved regional capacity for
Numbers of individuals trained
Periodic reports to the GEF and
It is assumed that governments will release appropriately qualified
EIA, environmental auditing
Contracting Parties by the Project Co-
staff for purposes of training an assumption which is likely to be met
and management; operation
ordinator on the execution of training since such training is envisaged under the endorsed SAP MED
and maintenance of
activities
wastewater treatment plants
etc.
Improved NGO and public
Endorsement of the NGO and Public participation Meeting Reports and publications by
Already major NGO's play a defined role in executing components of
participation
plans by appropriate regional meetings
the MEDU
the Mediterranean Action Plan, hence it seems likely that the
assumption of government agreement to such involvement will be met
19 The extent and nature of this reduction can only be determined following completion of the pre-investment studies.
28
LOGICAL FRAMEWORK MATRIX (Cont.)
Results
That the TDA MED can be finalised in a manner acceptable to the
Finalised
Transboundary
Adoption of the TDA MED by the Contracting
Publication of the TDA MED by
Governments. This assumption seems likely to be met since the
Diagnostic Analysis
Parties to the Barcelona Convention
MEDU
concerns of governments have been registered and revision is
Meeting Reports
envisaged in the next quarter
Criteria for selection and
Endorsement of the criteria by regional expert
Governments will agree and adopt the priority listing at national and
adoption of priority listing of
meetings and adoption of the priority listing at
Meeting Reports and publication of
regional level. This assumptions will likely be met since the TDA MED
Hot Spots of regional
national and regional level
the criteria by MEDU
and SAP MED identify 103 hot spots of regional importance
significance
Endorsement of the criteria by regional expert
Governments will agree and adopt the priority listing at national and
Criteria for selection and
meetings and adoption of the priority listing at
Meeting Reports and publication of
regional level. This assumptions will likely be met since the TDA MED
adoption of priority sensitive
national and regional level
the criteria by MEDU
and SAP MED identify 51 sensitive areas of regional importance
areas of regional and global
significance that are at risk
from land-based activities
8 sets of regional guidelines
That guidelines can be drafted that are acceptable to national
for: sewage treatment; disposal
Adoption of the guidelines by appropriate expert
Meeting Reports and publication of
governments. This assumption is likely to be met since the
of urban solid waste; industrial
group and Contracting Parties meetings
the 8 sets of guidelines by the MEDU
development of such guidelines was agreed as a component of the
wastewater; application of
SAP MED
BAT BEP and clean
technologies etc.
8 regional plans for: collection
That regional plans can be drafted that are acceptable to national
and disposal of PCB wastes;
Adoption of the regional plans by appropriate
Meeting Reports and publication of
governments. This assumption is likely to be met since the
reduction of BOD loading by
expert group and Contracting Parties meetings
the 8 regional plans by the MEDU
development of such regional plans was agreed as a component of the
50% by 2007; reduction by 20%
SAP MED
of hazardous waste by 2007
etc.
That joint discussion of priorities and agreement can be reached. As
Jointly agreed actions relating
Adoption of priorities by the GFCM and
Meeting Reports of MEDU and
noted above this assumption presents a higher risk than the others
to fisheries and environment
Contracting Parties
GFCM
given the sectorial approach to fisheries and environment at national
government level, however the last meeting of the GFCM directed
FAO to collaborate with the MEDU on these issues
That countries will develop and adopt NAPs in support of the SAP
Up to 11 National Action Plans
Adoption and approval of NAPs at country level
Publication of the plans in National
MED. This seems likely to occur since the SAP MED includes
for recipient countries
Gazette & other official media
agreement on their development and framework elements for
inclusion and the LBS protocol requires development of NAPs
29
LOGICAL FRAMEWORK MATRIX (Cont.)
Components/Activities
Establishment of the Management
Framework
Issuance of contracts
Meeting reports
That staff can be hired within three months of completion of the
Hiring of staff
Disbursement records
Donor investment
internal project document
Meetings of the Interagency
Committee
2 Donor Consultations
Regional Co-operative Actions
That regional guidelines and plans will be prepared and adopted at
Preparation of 8 sets of
Availability of drafts & convening of expert
Publication of regional guidelines &
regional level is an assumption likely to be met, since these activities
regional guidelines
meetings according to agreed workplan
regional plans
were agreed as a component of the SAP MED
Preparation of 8 regional plans
Hot
spots
Development of criteria &
Preparation of drafts and convening of regional
Publication of criteria and listing of
That countries will agree to select priority hot spots is an assumption
impact analysis
expert and subsequent Contracting Parties
selected priorities
likely to be met, since list of 103 hot spots was identified in the SAP
Selection of priority hot spots
meetings according to agreed workplan
Meeting Reports
MED
Completion by countries of
Adoption at national level of pre-investment
That countries will agree to undertake pre-investment studies of
pre-investment studies of
studies
selected hot spots. This seems likely to be met since countries were
selected hot spots
Signed agreements
directly involved in identification of the initial 103 identified hot spots
Sensitive areas
Development of criteria and
Preparation of drafts and convening of regional
Publication of criteria and listing of
That countries will agree to select priority sensitive areas is an
analysis
expert and subsequent Contracting Parties
selected areas having regional
assumption likely to be met, since list of 51 sensitive areas was
Selection of priority sensitive
meetings according to agreed workplan
priority
identified in the SAP MED
areas for investment and action
Fisheries and Environment
Preparation of draft analysis and convening of
Detailed analysis of issues and
joint expert group meetings according to agreed
Publication of Analysis and priority
It is assumed that GFCM and MAP will work jointly on the
joint resolution of priority
workplan
areas for joint action
implementation of this component
areas for action
Sustainability of SAP MED
Preparation of draft proposals and national level
An assumption is that national governments will take action at a
Development of economic
discussions according to agreed workplan
Appropriate action at National level
national level to implement the recommendations. The risk associated
instruments to assist in
to implement the proposed actions
with this assumption cannot be evaluated since this will depend on
sustainability of the SAP MED
Adoption of the economic instruments at regional
other national development and investment priorities. However
and national level
through careful integration of the regional priorities into national
action plans it is hoped that this assumption will be met
Capacity Building
Disbursement records according to agreed
Reports of training courses &
It is assumed that governments will release individuals for training an
Conduct 8 regional training
workplan
numbers of individuals trained in
assumption that has a high probability of being met
courses
implementation of SAP MED
activities
Public Participation
Identified role for NGO's in the execution of the
Prepare and implement
SAP MED
Adoption of the regional programme
It is assumed that countries will agree to the development and
regional programme of action
by the Contracting Parties
implementation of the regional plan of public participation, since this
for the public participation in
Preparation & dissemination of information and
component was identified in the SAP MED
the implementation of the SAP
public awareness materials
MED
National Action Plans
It is assumed that countries will actively co-operate in the
Drafting of up to 11 National
Preparation of drafts according to agreed
Publication and adoption of National
development of NAPs, since NAPs were identified as important
Action Plans
workplan and timetable
Action Plans
activities in SAP MED and LBS Protocol
30
ANNEX III
STAP ROSTER EXPERT REVIEW
Ray C. Griffiths
Marine Scientific and Environmental Consultant
IMPLEMENTATION OF THE STRATEGIC ACTION PROGRAMME TO ADDRESS
POLLUTION FROM LAND-BASED ACTIVITIES IN THE MEDITERRANEAN REGION
Mr Griffiths states
Since the appraisal's main purpose is to draw attention to weaknesses in the proposal (to facilitate
remedy) rather than to its strengths, the following observations are inevitably in a negative tone;
however, overall, the project is worthwhile, and builds on the good long-term work of the Mediterranean
Action Plan. Its financing through GEF is fully justified.
He identifies a series of Key issues which have been addressed in revising the project brief.
1.
Scientific and technical soundness of the project: In which he notes that nothing is
stated about data quality assurance and the scientific difficulties of assessing pathways and
sinks. UNEP accepts these points and has amended the brief to accommodate the first issue
raised. Regarding the difficulties of assessing pollutant sources, pathways and sinks UNEP
acknowledges the difficulty of determining absolute values but comparative importance is a
necessary pre-requisite for establishing the transboundary priority of hot spots and must be
attempted.
2.
Overall objective: Mr Griffiths proposals regarding the rewording o the objectives have
been addressed in the revision and UNEP notes that his comments in this regard were
extremely helpful in improving the clarity of the draft. A number of the reviewers comments
parallel those of the GEF Secretariat regarding the preparatory nature of the proposed actions
and these have been fully addressed in this revision.
Mr Griffiths further notes that:
· the project has value but also notes the difficulties associated with alternate modes of
disposal of pollutants such as heavy metals;
· the project responds to the GEF objectives of sustainable development of land-based
activities combined with protection of international waters by reduction of marine
pollution and conservation of biodiversity;
· the collaboration achieved by UNEP since 1975 is remarkable, given that the region is one
of considerable north-south, east-west, temperate-desertic, developed-developing, rich-
poor, cultural and religious polarities and this project must exploit that advantage, he
concludes that the regional institutional context is sound.
· a very important, indirect, benefit of the proposed project, in global environmental terms,
if it is reasonably successful in achieving its objectives, would be the example it would set
for other regions (e.g., Caribbean, south-east Asian seas, etc.) of the feasibility of regional
co-ordination and co-action of the riparian states in managing regional, land-based sources
of pollution and thus in protecting the regional marine environment.
· if the project enjoys full success, GEF's strategies and policies will have been justified, at
least with respect to the Mediterranean region. Mr Griffiths notes the need for objective
careful monitoring and evaluation a point that UNEP has noted and will accommodate in
the elaboration of the full project document.
31
Mr Griffiths lists a number of secondary issues which have been addressed in the revised
project brief or which will be addressed during the finalisation of the full project document.
These include: linkages to other focal areas; linkages to other programmes and action plans at
regional and sub-regional levels: other beneficial or damaging environmental effects: degree of
involvement of stakeholders in the project: capacity-building aspects: and innovativeness of
the project.
35
ANNEX IV
ROOT CAUSE ANALYSIS FOR THE MEDITERRANEAN BASED ON THE RESULTS OF THE TRANSBOUNDARY DIAGNOSTIC ANALYSIS
[The analysis in this table does not apply equally to all Contracting Parties to the Barcelona Convention. Main root causes and action areas are listed in descending order of priority.]
Main root
MAJOR PROBLEMS
TRANSBOUNDARY ELEMENTS
causes*
MAIN ROOT CAUSES
Degradation of coastal and
·
Damage to transboundary ecosystems, including
M
P
LEGAL (L)
·
Inadequate cooperation at the regional level
marine ecosystems
loss in productivity, biodiversity and stability
F
R
Inadequate legal and
·
Inadequate legislation at the national level relevant to regional
·
Reduction of regional values
L
institutional framework
problems
·
Decreased quality of life
H
·
Inadequate institutional framework and capacity necessary for
·
Degradation due to pollution & eutrophication
S
the implementation of legislation, ICZM and EIA
·
Region-wide loss of revenue
·
Inadequate pollution compliance and trend monitoring
Unsustainable exploitation of
·
Impacts on habitats and biodiversity
M
R
·
Ineffective coordination between various governmental sectors
coastal and marine resources
·
Impacts of physical changes on coastal and beach
F
P
and local and national level
dynamics
S
MANAGEMENT (M)
·
Poorly coordinated intersectorial planning and management
·
Loss of existing and potential income from fishing
H
Inadequate planning and
·
Lack of integrated watershed/coastal zone management plans
and tourism
L
management at all levels
·
Lack of application of ICZM and its tools
·
Conflicts between user groups
·
Inappropriate harvesting practices in fisheries
Loss of habitats supporting
·
Damage to migratory species and their habitat
M
P
·
Inadequate pollution control strategies with monitoring
living resources
changing patterns of migration
F
R
HUMAN (H)
·
Inadequate human and institutional capacity (at national and
·
Endangered biotic resources
S
Insufficient human and
local level) for the implementation of the legislature and ICZM
·
Loss of values for development
H
institutional capacity
with its tools
·
Habitat and food web changes
L
·
Inadequate human and institutional capacity (at national and
Decline in biodiversity, loss of
·
Loss of regional values
M
P
local level) for compliance and trend monitoring of pollution
endangered species and
·
Damage to endangered and endemic species of
F
R
STAKEHOLDERS (S)
·
Lack of general environmental awareness
introduction of non-indigenous
regional and global significance
L
Insufficient involvement of
·
Poor identification of stakeholders
H
species
·
Loss of genetic biodiversity
stakeholders
·
Lack of adequate participation of stakeholders in the planning
S
and management of environmental problems
Inadequate protection of coastal
·
Reduction of regional values
M
P
FINANCIAL (F)
·
Lack of effective economic instruments
zone & marine environment &
·
Loss of revenues
F
R
Inadequate financial
·
Lack of internalization of environmental costs
increased hazards and risks
·
High costs of curative interventions
L
mechanisms and support
·
Low monetary value assigned to environment within national
H
(health, seismic, climate change,
·
Decreased quality of life
S
economic policies
pollution, fires, accidents,
extreme events)
TYPES OF ACTION
Worsened human related
·
Human health impacts
M
P
PLANNING (P)
·
Improvement of legal and institutional framework at regional
Integrated planning
conditions (lower quality of life,
·
Costs of dealing with human migration
F
R
and national level for ICZM and associated tools
and management and
·
Development of integrated management for river basin/coastal
increased unemployment &
·
Reduced human and institutional capacity
L
H
reduction of pollution
areas and for urban agglomerations
poverty, socio-economic
·
Reduction of development potential
S
·
Improved involvement of stakeholders in environmental
decline, increased quality gap in
·
Increased poverty with transboundary impacts
decision-making
development level)
·
Identification and elimination of pollution hot-spots
Inadequate implementation of
·
Ineffective protection of the marine and coastal
L
P
·
Adequate compliance and trend monitoring
existing regional and national
environment
M
R
·
Full implementation of relevant regional and national
legislation
·
Inadequate monitoring of pollution and
F
legislation
consequently inadequate data interpretation for
H
RESOURCES (R)
·
Full implementation of relevant regional and national
managerial purposes
S
Resource
legislation
·
Poor public education & awareness regarding
management
·
Sustainable management of resources
scientific & economic values & technical options
·
Protection of biodiversity, endangered , endemic and
Action
migratory species, habitats and sensitive areas
types
·
Development of sustainable fisheries, aquaculture and tourism
36
ANNEX V
PUBLIC INVOLVEMENT PLAN SUMMARY
There are no systematic studies or assessments describing the evolution of public
participation in the Mediterranean area. Existing rare, scattered articles are general, without
references to institutional provisions, "costs and benefits" or "results" of experiences gained
from previous public participation in the fields of the protection of the environment and
sustainable development in the region.
Often the starting point of a public participation initiative is a local or national issue but in
many cases the debate quickly expands to transboundary and global issues of an economic,
social or political nature that are recognised as the "root causes" of the problems or the
obstacles inhibiting their efficient and timely solution.
The State administrations of most Mediterranean countries often lack staff, means and tools
to meet the ever-increasing internal demands and external pressures. The existing social and
political systems have not provided rapid and efficient solution to the problems and
solutions tried in other parts of the world were not easily and safely transferable to the
Mediterranean without prior testing.
Despite the socio-economic, political and cultural diversity of the region and the differences
in the philosophical background and starting points of participating processes in the various
countries and subregions, one can recognise a genuine transformation of the prevailing
conditions in the Mediterranean. A general tendency is apparent that is slowly but gradually
favouring popular participation in reaching more creative and innovative solutions, in an
administratively less rigid and more flexible scheme. Most of these changes have taken place
in the period since 1985 and with greater pace in the last five years.
It seems that in most Mediterranean countries one may observe a rapid evolution in the
nature of public participation, but the process is still slow, inhibited by several obstacles
among which the most important are:
· lack of, or inadequate legal framework without adequate provision for public
participation (including access to information and justice);
· inadequate administrative infrastructures with limited resources to cope technically with
requests by the public;
· lack of co-ordination among the various administrative sectors, reducing their ability to
be efficient and participatory even with other services or agencies;
· fragmentation of NGOs initiatives and structures, particularly at the national level; and
· reluctance by the authorities to provide information to the public even when this is
technically and legally feasible due to lack of acceptance by many authorities and the
majority of civil servants of the NGOs as legitimate "partners".
However, the real "root" problem that reduces drastically the efficiency of participatory
procedures is the lack of concrete support, institutional and/or financial, to independent
citizens' groups, which act outside political parties, or religious groups.
The main problems related to public participation in Mediterranean countries that are
associated in one way or another with land-based activities are the following:
37
· the still prevalent lack of recognition of the actual role of civil society (organised NGO
groups, social partners etc.) by national authorities;
· a failure to transform declarations or good intentions into a practical commitments on
the part of Governments;
· to great a reliance on the majority or ruling political party in many Mediterranean
countries such that groups of people which tend to criticise the government, because of
lack of measures or its developmental choices, are quite frequently considered as
"opposition" or siding with opposition parties; and
· a lack of prior consultation in the majority of the Mediterranean countries where there
are no "prior consultation" procedures and no "consensus" culture.
Funding for NGOs is a problem in the Mediterranean since NGOs have no adequate
financial means and their financial basis is not sustainable. Membership alone cannot
support them and they are dependent on volunteers. Because of the lack of paid, in house
expertise the majority of Mediterranean NGOs cannot provide the continuity of input
expected in developing policies and strategies, and often lack the required "professional"
approach.
Proposed targets for the improvement of the public participation are:
· to provide to the general public access to the information available on the state of the
environment of the Mediterranean and its evolution, and the measures taken to improve
it;
· to enhance the environmental awareness of pollution, and create a common approach to
the environmental problems of the Mediterranean;
· to facilitate public access to activities for the protection and management of the
environment and to scientific knowledge; and
· to mobilise and ensure the participation and involvement of the major actors concerned
including local and provincial committees, economic and social groups, consumers, etc.
Proposed activities at the regional level are:
· to identify potential roles for nongovenmental organisations in the implementation of
the SAP MED and to ensure that all relevant IGOs and NGOs have appropriate access to
information concerning the SAP MED and its application;
· to implement co-ordinated information campaigns and special activities on
environmental protection;
· to continue and expand publication and distribution of brochures, leaflets, posters,
reports, newsletters and other information materials, as well as the use of the media in
all its forms; and
· to enhance and strengthen the exchange of information and experience on the
environmental problems of the region, and to develop co-operation in this field.
38
ANNEX VI
AVAILABLE REFERENCE DOCUMENTS
A.
Documents prepared under the Mediterranean Action Plan
1. Mediterranean Action Plan and Convention for the Protection of the Marine
Environment and the Coastal Region of the Mediterranean and its Protocols, Informal
Document (Revised), UNEP, Athens, 1997.
2. Formulation of a Strategic Action Programme for the Mediterranean Sea, to Address
Pollution from Land-Based Activities, Project Development and Preparation Facility
(PDF) Block B Grant, GEF/UNEP, October 1996.
3. Report of the Tenth Ordinary Meeting of the Contracting Parties to the Convention for
the Protection of the Mediterranean Sea against Pollution and its Protocols.
UNEP(OCA)/MED IG.11/10. December 1997.
B.
Documents prepared under the GEF Project development Facility grant and
presented at various regional meetings
1. Strategic Action Programme to Address Pollution from Land-Based Activities, (draft),
Tenth Ordinary Meeting of the Contracting Parties to the Convention for the Protection
of the Mediterranean Sea against Pollution and its Protocols (UNEP(OCA)/MED IG.
11/9), Tunis, 18-21 November 1997.
2. Transboundary Diagnostic Analysis for the Mediterranean Sea (TDA MED) (draft),
Tenth Ordinary Meeting of the Contracting Parties to the Convention for the Protection
of the Mediterranean Sea against Pollution and its Protocols (UNEP(OCA)/MED IG.
11/Inf.7), Tunis, 18-21 November 1997.
3. Identification of Priority Hot Spots and Sensitive Areas in the Mediterranean, (draft),
Second Meeting of Government-Designated Experts to examine a Strategic Action
Programme to Address Pollution from Land-based Activities (UNEP(OCA)MED WG.
136/Inf. 4), Athens, 13-16 October 1997.
4. Report of the Second Meeting of Government-Designated Experts to examine a Strategic
Action Programme to Address Pollution from Land-based Activities (UNEP(OCA)MED
WG. 136/4), Athens, 13-16 October 1997.
5. Report of the Second Meeting of the Steering Group for the Preparation of a Strategic
Action Programme to Address Pollution of the Mediterranean Sea from Land-Based
Activities (UNEP(OCA)MED WG. 135/2), Athens, 8-10 September 1997.
6. Draft Investment Portfolio framework (UNEP(OCA)/MED WG. 130/7), Meeting of
Government-designated Experts to Examine a Strategic Action Programme to Address
Pollution from Land-based Activities, Ischia, 15-18 June 1997.
7. Guidelines for the Preparation of National Action Plans, Meeting of Government-
designated Experts to examine a Strategic Action Programme to Address Pollution from
Land-based Activities (UNEP(OCA)/MED WG. 130/6), Meeting of Government-
designated Experts to Examine a Strategic Action Programme to Address Pollution from
Land-based Activities, Ischia, 15-18 June 1997.
8. Report of the Meeting of Government-designated Experts to Examine a Strategic Action
Programme to Address Pollution from Land-based Activities (UNEP(OCA)/MED WG.
130/8), Ischia, 15-18 June 1997.
39
9. Report of the Ad Hoc Consultation Meeting of Regional Experts on the Mediterranean
GEF Project (UNEP(OCA)/MED WG. 123/2), Athens, 14-16 January 1997.
10. Report of the First Meeting of the Steering Group for the Preparation of a Strategic
Action Programme to Address Pollution of the Mediterranean Sea from Land-Based
Activities, Athens, 13 January 1997.
C.
Preparatory documents prepared as basis for development of the draft
Transboundary Diagnostic Analysis
1. River Inputs to the Mediterranean Sea, M. Meybeck, April 1997.
2. Transboundary Diagnostic Analysis of Pollution in the Mediterranean Sea: Maritime
Transport and Ports, J.-P. Dobler, MAP/GEF, June 1997.
3. Evaluation of the Port reception Facilities in the Mediterranean, HELMEPA, June 1997.
4. Agricultural run-off in the Mediterranean, P. Sequi, MAP/GEF, May 1997.
5. Mediterranean Sea Transboundary Diagnostic Analysis: Airborne Pollution, R.
Guardans, MAP/GEF, April 1997.
6. Mediterranean Action Plan Transboundary Diagnostic Analysis - Exploitation of Seabed
and Subsoils, J. Blanchard, MAP/GEF, April 1997.
7. Transboundary Diagnostic Analysis for the Mediterranean Sea: Tourism and
Environment in the Mediterranean Basin, R. Lanquar, MAP/GEF, September 1997.
8. Fishery Transboundary Diagnostic Analysis, Mediterranean Fishery Component FIRM
(FAO), MAP/GEF, April 1997.
9. An Assessment of the problem of Mediterranean Aquaculture and its relation to Land-
based sources, I. Katavic, MAP/GEF, June 1997.
10. Critical Habitats and Ecosystems, and Endangered Species in the Mediterranean Sea,
SPA RAC, MAP/GEF, April 1997.
11. Transboundary Diagnostic Analysis for the Mediterranean Sea: Coastal Zone
Management and Planning, A. Pavasovic, MAP/GEF, April 1997.
12. Transboundary Diagnostic Analysis for the Mediterranean Sea: Institutional
Arrangements for Transboundary Related Issues in Mediterranean Countries, A.
Pavasovic, MAP/GEF, April 1997.
13. Transboundary Diagnostic Analysis for the Mediterranean Sea: Public Participation in
the Mediterranean, M. Scoulos, MAP/GEF, April 1997.
14. Resource Mobilization and Investment Portfolio Framework, C. Alvarez, MAP/GEF,
Sept. 1997.
D. STAP Roster Expert Review
Mr. R.C. Griffiths, January 1998. Appraisal of the Project: Implementation of the Strategic Action
programme to Address Pollution from Land-Based Activities in the Mediterranean Region.
40
ANNEX VII
LIST OF COUNTRY ENDORSEMENTS
Country
Name
Title
Date of Letter
Endorsement
Albania
Dr. Narin Panariti ,GEF
Director of Env. Eco. & Inf.
27.01.1998
OFP
Committee of Environmental
Protection
Algeria
Mr. Taous Ferroushi,
Deputy Director
14.01.1998
GEF OFP
Specialised Institutions and
Programmes
Ministry of Foreign Affairs
Bosnia and
Mr. Tarik Kupusovic20
Hydro Engineering Institute
14.01.1998
Herzegovina
Mediterranean Action Plan
(MAP) Focal Point
Croatia
Mr. Nenad Mikulic, GEF
Deputy Director,
13.01 1998
OFP
State Directorate of Environment
Egypt
Dr. Ibrahim Abdel-Gelil,
CEO, Egyptian Environmental Affairs
15.01.1998
GEF OFP
Agency
Lebanon
Mr. Akram Shehayeb,
Minister of Environment
20.01.1998
GEF PFP
Libya
Dr. Bashir Mohamed Fares, Director General,
23.01.1998
GEF PFP
Technical Centre for Environmental
Protection
Morocco
Ms. Bani Layachi, GEF OFP Director,
28.01.1998
Ministry of Environment
Slovenia
Mr. Emil Ferjancic, GEF
Head, International Co-operation
13.01.1998
OFP & PFP
Department
Ministry of Environment and Physical
Planning
Syria
Mr. A.H. El-Muirajed21
Minister of State for Environmental
22.01.1998
Affairs
Tunisia
Ms. Amel Benzarti, GEF
Director of International Co-operation,
8.01.1998
OFP
Ministry of Environment and Land
Use
Turkey
Dr. Ilker Basaydin,22
Acting Undersecretary,
23.01.1998
Ministry of Environment
GEF OFP = GEF Operational Focal Point;
In cases where a GEF OFP has not been designated the endorsement of the GEF Political Focal Point (GEF
20 Bosnia & Herzegovina has not designated a GEF Operational or Political Focal Point.
21 Mr Yahia Awaidah of the General Commission for Environmental Affairs is listed as the GEF Operational Focal Point. The
Commission falls under the Ministry for Environmental Affairs.
22 Mr Murat Sungur Bursa Deputy Undersecretary of the Ministry of Environment is listed as the GEF Operational Focal Point and
reports to the Undersecretary of the Ministry of Environment.
41
PFP) has been sought.
42
ANNEX VIII
The relationship between the 1998-1999 workplan of MAP and the present project.
The adoption in 1995 of a new Protocol to the Barcelona Convention on Specially Protected Areas and
Biodiversity, and of a revised Protocol on Pollution from Land-based Activities in 1996, provided the
basis for the Contracting Parties to the Convention to formulate a 1998-1999 workplan that reflects their
desire to undertake concrete actions to address priority environmental issues on a regional basis. This
workplan was approved at the 10th Ordinary Meeting of the Contracting Parties held in Tunis, 18-21
November 1997. The total anticipated regular income for the 1998-1999 biennium is 11.7 million US $
together with 1.1 million in the form of a voluntary contribution from the European Union. Of this
budget 7.9 million is used to support the coordinating unit and regional activity centres, 1.3 million is
used for programme co-ordination including the convening of regional meetings, and 4.2 million US $ is
for activities.
The MED POL Programme, for the 1998-1999 biennium focuses on activities in support of the SAP-MED
including: the implementation of pollution trend monitoring, compliance monitoring and biological
effects monitoring; capacity building at the national level; formulation of National Action Plans; the
application of BAT and BEP as appropriate in cooperation with the Cleaner Production RAC; further
work on the regional prioritisation of the Hot Spots; and actions designed to ensure that the revised LBS
Protocol enters into force during the biennium. Planned activities that complement those foreseen in this
project document include a number of regional meetings to co-ordinate action at various levels and
assistance to countries in implementation of the Dumping, Hazardous wastes and Offshore Protocols.
In addition to the MED POL programme described above, activities funded through:
· the Environment Remote Sensing RAC are designed to assist in surveillance of oil pollution and
trend monitoring; land assessment; and water management.
· the Regional Marine Pollution Emergency Response Centre are in support of preparation of national
response plans, port emergency systems, port reception facilities, activities in support of coastal zone
management plans; and the further development of regional information and data systems;
· the Specially Protected Areas RAC will elaborate an action plan for the conservation of marine
vegetation; provide assistance in implementing the action plans for threatened species; assist
countries in coastal area management and the management of specially protected areas; and continue
its activities in the field of regional data and public information.
· the Priority Actions Programme RAC will focus on coastal area management and in collaboration
with the Blue Plan develop prospective approaches to sustainable management; with other activities
in the fields of water demand management, soil protection and ecologically sound aquaculture.
· the Blue Plan Office will focus on prospective approaches to environmental management in the fields
of freshwater demand management; the development of a Mediterranean environment observatory;
and the development of performance indicators in association with METAP.
It is hoped that the new Protocol on Specially Protected Areas and Biodiversity will enter into force
during the biennium, and this forms the basis for activities to be implemented by the Specially Protected
Areas RAC. Complementary activities of this centre will concentrate on assisting the countries to
establish and implement national strategies for the conservation of biodiversity and in enforcing their
national legislation related to sites and species conservation. The activities planned in the framework of
this project are designed to strengthen these activities and to produce a coherent prioritised action plan
for biodiversity that will be adopted by the contracting parties at the time the revised Protocol enters into
force.
In the framework of the integration of environment and development, during the biennium work will
continue in individual countries in collaboration with METAP on the preparation and implementation of
coastal zone management programmes. In selected areas, the main elements and constraints linked to the
need to integrate the appropriate management and enhancement of the natural resources in a wider
context of development of the coastal zones will be examined with the local authorities and the local
actors with a view of achieving ICZM as appropriate.
43
As an integral component of its activities the Mediterranean Action Plan includes actions designed to
ensure programme wide co-ordination, capacity building at the national level, and enhance public
awareness and information dissemination.
Document Outline