AGOSTO 20, 1999
UNITED NATIONS DEVELOPMENT PROGRAMME
PROJECT OF THE REPUBLICA ARGENTINA AND THE REPUBLICA ORIENTAL DEL URUGUAY
Project Number:
Project Name:
Environmental Protection of the Rio de la Plata and its
Maritime Front: Pollution Prevention and Control and
Habitat Restoration
Starting date:
May 1999
Duration:
3.5
years
Sector-subsector:
20 - 10 Environment. Policies, planning and legislation.
Executing agency:
The project will be executed by the Consortium CARP
CTMFM formed by Binational Technical Commission for
the Maritime Front (CTMFM) and the Administrative
Commission for the Rio de la Plata (CARP)
Co-operating agencies:
ATAS, Dalhousie University (Canada), Hamburg University (Germany),
IOC, IADB, IDRC, IFREMER (France), IMO, TRAIN-SEA-COAST
(UN), UNESCO, UICN.
Financing:
GEF Contribution
US $ 5.682.290
Cost-sharing contribution of the Governments
US $ 800.000
Cost-sharing contribution of other donors
US $ 1.636.746
(IADB, Germany, Canada, France, others)
Total UNDP budget
US $ 8.119.036
Parallel cofinancing
US$ 755.000
GRAND TOTAL
US$ 8.874.036
In kind contributions of Argentina and Uruguay
US $ 1.568.000
Summary. The project aims at directly protecting the environment of the globally important waterbody Rio de la
Plata and its Maritime Front, and in turn indirectly protecting the Southeast South American Shelf Large Marine
Ecosystem. The focus will be on establishing a collaborative framework for addressing transboundary
environmental degradation in the waterbody contributing to the prevention and mitigation of current and emergent
transboundary threats, defining management priorities and strategies for the area, establishing the capacity for
implementation of these strategies and leveraging future investment for their implementation.
GEF Focal Point Endorsement:
Ambassador Eduardo Perez, Subsecretario de Cooperación Internacional. Ministerio de Relaciones Exteriores,
Comercio Internacional y Culto. Operational focal point in the Republic of Argentina. Letter of 1 December 1998.
Engineer Luis Santos, Director Nacional de Medio Ambiente. Ministerio de Vivienda, Ordenamiento Territorial y
Medio Ambiente. Operational Focal Point in the República Oriental del Uruguay. Letter of 1 December 1998.
Approved by:
CONSORTIUM CARP - CTMFM
CARP
CARP
CTMFM
CTMFM
UNDP
________________________________________________________
Acronyms
ATAS TRAINMAR
Association for South America
CARP
Rio de la Plata Management Commission
CARU
Rio Uruguay Management Commission
CTMFM
Binational Technical Commission for the Maritime Front
DINAMA
National Directorate for the Environment, Uruguay
EIA
Environmental Impact Assessment
GEF
Global Environment Facility
GIS
Geographical Information System
IADB
Inter-American Development Bank
IDRC
International Development Research Centre, Canada
IIS
Integrated Information System
IFI
International Financial Institution
IFREMER
French institute for the research on the exploitation of the sea
IMM
Municipality of Montevideo, Uruguay
IMO
International Maritime Organisation
INAPE
National Fisheries Institute, Uruguay
INIDEP
National Fisheries Research and Development Institute, Argentina
IOC
Intergovernmental Oceanographic Commission
LME
Large Marine Ecosystem
MERCOSUR
Southern Common Market
MIS
Management Information System
NGO Non-Governmental Organisation
SAP
Strategic Action Programme
SIHN
Hidrographic Service of the Navy (Argentina)
SOHMA
Oceanographic, Hidrographic and Meteorological Service of the Navy (Uruguay)
SPABA
Secretary for Environmental Policy of the Province of Buenos Aires (Argentina)
SRNyDS
Secretary for Natural Resources and Sustainable Development, (Argentina)
TDA
Transboundary Diagnostic Analysis
UNDP
United Nations Development Programme
UNEP
United Nations Environment Programme
VCI Virtual
Centre of Information
WB World
Bank
OVERVIEW
1. The Rio de la Plata and its Maritime Front constitute a well-defined, globally important international waterbody
which contains significant biodiversity, and supports a number of economic activities, including commercial
fisheries, tourism, and transportation. Situated at the terminus of the continents' second largest drainage basin,
Rio de la Plata is one of the largest fluvial-marine systems in the world. Its Maritime Front covering 215,900
km2, forms part of the South American Shelf Large Ecosystem.
2. The economic and social importance of the Rio de la Plata and its Maritime Front and the value of holistic
management of the fluvial-marine system, and the drainage basin is recognised by both riparian countries. As
part of their national sustainable development programmes, Argentina and Uruguay, the riparian countries, are
taking a number of initiatives to improve the management of this waterbody and particularly the problems of
pollution. However, these initiatives focus primarily on national priorities and put heavy emphasis on fisheries
as one of the main economic sectors of the area. There is limited knowledge about the pollution sources, local
and transboundary, and their effects on the environment, resources and population in the area. The actions
required to resolve the management and pollution problems in a waterbody of this size and complexity, exceed
the capacities of the national entities acting independently. The strong co-ordination of policies, strategies and
control programmes between both countries is essential.
3. Riparian countries have taken a vital step towards such a co-ordinated approach through the establishment of a
framework for bilateral co-operation in 1973 with the signing of the Rio de la Plata and Maritime Front Treaty.
This led to the establishment in 1976 of the Binational Technical Commission for the Maritime Front
(CTMFM) and the Administrative Commission for the Rio de la Plata (CARP), responsible for the conservation
and rational use of living aquatic and marine resources and the prevention and control of pollution in the
waterbodies. Despite the laudable efforts of these binational Commissions , there is no strategy for the
environmental management of the Rio de la Plata and its Maritime Front and binational tools for the
management of resources other than fisheries have not been developed to the necessary extent. This important
water system is increasingly being degraded by point and non-point source pollution, including from hydro-
carbons, heavy metals and other industrial wastes, agro-chemicals, and solid wastes, and is also being affected
by channelisation, sedimentation and habitat degradation. This not only degrades the integrity of the
waterbody, affecting the environmentally outstanding qualities, but also creates a risk for human health and
undermines economic sectors.
4. Without GEF investment, the ability of the countries to jointly manage the Rio de la Plata and its Maritime
Front would be limited, and problems of transboundary waterbody degradation would accelerate. The present
project has been developed to provide cost-effective and critical interventions to complement on-going action in
the riparian countries and provide the capacity and mechanisms required to effectively manage this globally
significant waterbody. The project has been developed in a participatory process and closely following
guidelines outlined under the GEF Operational Strategy and Waterbody-based Operational Programme (OP8).
It will generate global benefits by putting in place the capacity and mechanisms to prevent and mitigate the
degradation of transboundary environmental resources in a waterbody of renowned global significance. It is
country driven, building on substantial current and planned national initiatives, policies and strategies in the
riparian countries Argentina and Uruguay. It will incorporate mechanisms to enhance the sustainability beyond
its life time by strengthening institutional and human resources, establishing collaboration and co-ordinating
frameworks and determine and adopting financial mechanisms and incentives to promote pollution control and
long-term implementation of priority projects identified as part of a strategic action plan for the project area.
5. The project will address root causes of the degradation of transboundary environmental resources by removing
the barriers that currently prevent more effective joint management of these bi-national resources. GEF
resources will fund the incremental cost of activities required to secure global environmental benefits. During
its development a series of partnerships have been forged with other developmental agencies including
governmental institutions, donors and national and international academic centres to cover those activities that
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will derive tangible domestic benefits and that are not eligible for GEF funding but that are necessary to
complete the project strategy referred to as the GEF Alternative.
6. The Project will contribute to the mitigation of current and emergent transboundary threats to the waterbody by
assisting Argentina and Uruguay to prepare a Strategic Action Programme as a framework for addressing the
most imminent transboundary issues. Activities would defray the transactions costs of developing a joint
management paradigm, by i) raising awareness of priority transboundary concerns, ii) the catalysing of enabling
policy, institutional and financial reforms, iii) strengthening stakeholder communications, iv) identifying
innovative management tools that may later be applied towards SAP implementation, including economic
instruments, v) training resource managers to prepare and implement the SAP, vi) programming targeted
investments and vii) supporting `deal flows' by matching sources of capital with investment opportunities.
Preparation of the SAP would be preceded by finalisation of a Transboundary Diagnostic Analysis (TDA),
building on assessments already completed during the Block B stage, by prioritising issues, filling data gaps,
and performing an in depth systems analysis of cause/effect variables, including socio-economic and ecological
factors.
7. In the absence this project the two riparian countries would undertake environmental protection activities for the
target zone costing US $139,209,000. The alternative course of action required to protect global benefits of this
waterbody includes these activities plus additional interventions that bring the total cost to US $149,651,036.
The cost of the project is US $ 10.8 million, including the cost of Project Development Activities. The GEF will
contribute US $ 5.7 million in incremental cost financing amounting to 3.8 % of the total cost of implementing
the alternative course of action. Project co-financing will amount to US $ 4.8 million. Of this amount, the
requesting countries, through the Consortium CARP-CTMFM, will contribute US $ 0.8 million in cash, national
entities will contribute US $ 1.6 million in kind and the remainder will be covered by other agencies.
A. PROJECT CONTEXT
8. The project aims to protect the Rio de la Plata and its Maritime Front. This important body of water falls within
the GEF definition of international waters and is located at the seaward South Atlantic terminus of the second
largest drainage basin (3,170,000 km2) in South America, formed by the Parana, Paraguay, and Uruguay
Rivers. The term Maritime Front is used to refer to the ocean space extending seawards from the outer limit of
the Rio de la Plata. Both the boundaries of the Rio de la Plata and its Maritime Front were established in articles
1 and 73 respectively of the 1973 Rio de la Plata and its Maritime Front Treaty (hereafter referred to as The
Treaty)
9. The Rio de la Plata is one of the largest fluvial-marine systems in the world with a surface of 35,500 km2 and
230 km width at its mouth. Over 97% of the total Rio de la Plata freshwater input is supplied by the Parana and
Uruguay rivers. Approximately 20 small rivers and a hundred streams discharge their waters into the Rio de la
Plata. It is a shallow (mean depth of 10m), yet very dynamic, brackish and freshwater system, with
considerable flow and an average annual discharge rate of 22,000 m3/s into the Atlantic Ocean. The system is
dominated by the high freshwater runoff from the Parana River and its many tributaries. It is characterised by a
0.3-1.0 m semidiurnal tidal range, and a 0-34 fresh to marine salinity gradient. It has high suspended
sediment concentrations, typically from 50 to 300 mg l-1, a pronounced turbidity maximum zone, reversing tidal
currents, and both a two-layered gravitational circulation and a residual tidal circulation.
10. Six distinct zones can be distinguished in the system each characterised by morphological and hydrological
differences. Three of these zones fall in the upper region of the system which is characterised by the inflow of
waters from the Parana and Uruguay rivers. These three zones are the Parana delta, the tidal river and the
middle Rio de la Plata (located between the limits of saline intrusion and a gradual river-tide delta). The
extension of this latter zone mainly depends on river flow and wind variations. The remaining three zones fall
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in the external region of the system and are characterised by their hydrodynamic and sedimentary processes.
They are the marine zone, the Bay of Samborombon and the eastern channel.
11. The main geomorphologic features of the river are (i) the banks, channelling the river flow and trapping and
dispersing sediments, (ii) the erosion basins, acting as temporary receptacles and sources of sediments and (iii)
the channels, through which the river flows. Fine sediments are confined to the upper and middle parts of the
Rio de la Plata, whereas sands cover most of the outer Rio de la Plata and the adjacent continental shelf.
12.
2
The Maritime Front of the Rio de la Plata encompasses a surface area of 215,900 km extending seawards
from the outer limit of the Rio de la Plata of the Treaty. The depth of waters in the zone varies considerably,
from an average of 10 meters at the mouth of the Rio de la Plata, to over three thousand meters in its deepest
part.
13. It is characterised by complex oceanographic dynamics determined by a series of features including: (i) the
confluence of the warm Brazil current and the cold Malvinas current (rich in nitrates); (ii) the considerable
inflow from the Rio de la Plata, rich in phosphates and silica and (iii) the coastal waters of the platform. Whilst
the detailed characteristics and dynamics of the zone of confluence are still limited, it is well-known that these
features have resulted in the high biological productivity of the continental shelf and continental slope seaward
of the Rio de la Plata mouth and its particular richness in fisheries. Partially overlapping the exclusive
economic zones of the Parties, the Maritime Front is subject to a special legal regime under the Treaty and
includes the ocean space encompassed by the Common Fishing Zone and a "prohibition zone for polluting
activities". This prohibition zone was created by article 78 of The Treaty and is situated seawards of the
2
external limit of the Rio de la Plata covering an area of 52.900 km .
14. The system boundary for the Project covers the Rio de la Plata and its Maritime Front including the adjacent
exclusive jurisdiction areas and Territorial Sea. The system boundary will also include the main land-based
sources of pollution and key coastal wetlands (inasmuch as they relate to transboundary issues of pollution or
function as nursing areas of living resources) identified in the TDA and agreed with the respective countries.
A.1. ENVIRONMENTAL CONTEXT AND SIGNIFICANCE
15. Together the Rio de la Plata and its Maritime Front constitute an ecosystem of immense environmental and
socio-economic significance and with a complex range of characteristics further described below.
16. The Rio de la Plata and its Maritime Front are part of the Southeast South American Shelf Large Marine
Ecosystem (LME) which houses globally outstanding biodiversity and has been included under the WWF
Global 200 programme that identifies the richest, rarest and most endangered natural areas of the planet. Rio de
la Plata is the main contributor of fresh water to the Large Marine Ecosystem LME, and the mix of waters in the
BrazilMalvinas confluence has physical, meteorological and biological consequences that affect the entire
Southeast South American Shelf LME.
17. The Rio de la Plata and its Maritime Front comprise a transition zone where warm, cold and temperate waters
mix providing a wide diversity of habitats for aquatic and waterdependant species. This has resulted in the
presence of an extensive number of species characteristic of different physical and chemical characteristics and
a great superposition of species from warm, temperate and cold waters. From the available literature, it is clear
that the area has a high level of biodiversity and a low degree of endemic species. However, whilst this high
level of biodiversity is generally recognised, detailed knowledge of its composition and dynamics is limited.
Initial information has shown that endemic species include the mussel, (Brachidontes rodriguezzi), clams
(Macoma uruguayensis and Mesodesma mactroides), the razor-shell mussel (Taggelus gibbus) and the Plata
dolphin, also known as Franciscana (Pontoporia blainvillei). This dolphin, on the list of the Convention on
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Migratory Species, is captured by fishermen of Buenos Aires Province (Argentina) for subsistence
consumption.
18. River, coastal and high seas species develop all or part of their life cycle in the project area. Several of these
species are of outstanding global importance, from an ecological, economic and social standpoint (i.e., tuna and
marine mammals). In the upper Rio de la Plata, populations of migratory fish -- shad (Prochilodus lineatus),
boga (Leporinus obtusidens), patí (Luciopimelodus pati) and dorado (Salminus maxillosus) swim up river,
along the lower and middle Parana river at the beginning of autumn and return in the spring. Marking and
recapture studies have shown that the fish use this zone as a single space. It has been suggested that the delta of
the river is a feeding area for the offspring of these species.
19. In the outer Rio de la Plata and its Maritime Front, several populations of pinnipeds (Arctocephalus australis
and Otaria flavescens) are found. All species of marine mammals included in Annex XII-8 are found in the
project area. Several of these are migratory species of global relevance which deserve special care and the
adoption of management measures. Among the most important are:
· Ballena boba, Balaenoptera borealis
· Blue whale, Balaenoptera musculus
· Ballena de aleta, Balaenoptera physalus
· Sperm whale, Physeter macrocephalus
· Southern right whale, Eubalaena australis
· Orca, Orcinus orca
· Delfín pintado, Stenella attenuata
· Delfín listado, Stenella coeruleoalba
· Delfín tornillón, Stenella longirostris
· Ballena de pico de Arnoux, Berardius arnouxii
A.2. SOCIO-ECONOMIC CONTEXT
20. In addition to its environmental significance, the area of important social and economic significance to both
countries. Located at the threshold of the region's most economically important river system, the Rio de la Plata
has an adjacent population of at least 16 million, including the densely populated Buenos Aires and Montevideo
metropolitan centres. It houses the main industrial concentration of each country, most of the port activities, and
the main economic activities, both of Argentina and Uruguay, are located on the coasts of the Rio de la Plata.
21. On the Argentine coast of the Rio de la Plata, the metropolitan axis extends 180 km from the localities of Zarate
and Campana, on the Paraná de las Palmas river, to the city of La Plata. This axis concentrates 45% of all the
industrial activity (basically chemical and petrochemical) and 35% of the population of Argentina. The city of
Buenos Aires and its suburban hinterland concentrate 40% of the population of the metropolitan axis, on a coast
some 20 km long.
22. On the Uruguayan coast, the major concentration of population and industry is found in the Department of
Montevideo and, increasingly along the coast of the Department of Canelones. Around 50% of the population of
the country and most of its economic, industrial and port activities is concentrated along a coastal strip about
50 km long, between the Santa Lucia and Pando rivers. During the tourist season, there is also a considerable
concentration of population along the coast of the Department of Maldonado, mainly in Punta del Este.
23. Over the past decade, growth rates of the coastal urban population have been high.
Argentina: Growth rate in 0/00 in the area for the period 1980-1991
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19 Districts in the Greater
Rest of the Province of
Province of Buenos Aires
Federal Capital
Buenos Aires
Buenos Aires
14.1 1.4 14.5 13.3
Uruguay: Growth rates in 0/00 in the Departments of the area for
the period 1985-1996
Colonia San
José
Montevideo
Canelones
Maldonado Rocha
6.1 6.9 2.3 18.5 28.5 5.1
24. Buenos Aires draws its water supply from the Rio de la Plata, and has three potable water plants for this
purpose: Bernal (1.100.000 m3 d-1), General San Martin (2.500.000 m3 d-1) and Capital.
25. The waterbody is also used as a receiving body for waste and industrial waters from urban centres of both
countries. The cities discharge untreated sewage and industrial effluents into the river. The use of submarine
emissaries, discharging off the coast, is common.
26. The Rio de la Plata and its Maritime Front are part of the main world shipping routes. The movement of cargo
coming from or going to overseas countries and transported by ship, through said area, was 47.2 million tons in
1996 (this figure includes traffic from overseas with Argentine and Uruguayan river ports). To this figure
should be added national and regional shipping movements. The Rio de la Plata and Maritime Front are one of
the routes of access to the MERCOSUR. This emerging common market covers over 13 million km2 and has a
population of about 200 million inhabitants in four countries, Argentina, Brazil, Paraguay and Uruguay. All this
indicates that the integration process of the Rio de la Plata basin and the MERCOSUR will promote regional
economic development and cause an increase in river and maritime shipping in the area.
27. The project area contains important fishing grounds for river and marine species. In the upper Rio de la Plata,
five species are the basis of important commercial and sports fisheries in both countries. These are, sábalo,
boga, pejerrey (Odontesthes bonariensis), patí and dorado. These same species are caught upriver in the Parana
and Uruguay rivers.
28. In the outer Rio de la Plata and its Maritime Front the main species of commercial relevance are hake
(Merluccius hubbsi), corvina (Micropogonias furnieri), whiting (Cynoscion striatus), squid (Illex argentinus)
and anchoíta (Engraulis anchoita). The exploitation of shared fishing resources is very significant for the
economies of both countries. In 1997, catches in the lower Rio de la Plata and its Maritime Front totalled 323
thousand tons with an estimated value of 120 million dollars. The composition of the 1997 catch was distributed
in the following way:
SPECIES CATCH
(t)
Merluza (Merluccius hubbsi) 117.432
Corvina (Micropogonias furnieri) 48.071
Pescadilla (Cynoscion striatus) 34.372
Squid (Illex argentinus y Loligo sanpaulensis)
26.618
Anchoita (Engraulis anchoita)
29.120
Others (fish, crustacean and bivalves)
67.387
TOTAL 323.000
29. A bi-national system has been established for the assessment and management of shared fishery resources in the
Rio de la Plata and its Maritime Front and is implemented through CARP and CTMFM.
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A.3. INSTITUTIONAL FRAMEWORK
30. The Treaty of the Rio de la Plata and its Maritime Front, signed in 1973 by Argentina and Uruguay, established
the legal framework for the bi-national management of the waterbody (see Annex XII.2). This framework
includes two bi-national governmental Commissions with the legal personality required for carrying out their
functions. These Commissions are responsible for the preservation, conservation and rational use of living
resources and the prevention and elimination of pollution in these areas. The Treaty has assigned both the Bi-
national Technical Commission for the Maritime Front (CTMFM) and the Administrative Commission for the
Rio de la Plata (CARP), the task of adopting and co-ordinating plans and measures aimed at protecting the
aquatic environments under their mandates and their fauna and the promotion of studies and research. Other
relevant duties of the Commissions are:
The prevention and elimination of pollution and other harmful effects deriving from the use, exploration
and exploitation of resources. The Treaty established a "prohibition zone for polluting activities" situated
seawards of the external limit of the Rio de la Plata
The assessment, conservation and preservation of living resources and their rational exploitation.
Establishment of catch volumes per species and assignment of quotas to each of the parties.
Preparation of plans for the preservation, conservation and development of living resources in the zone of
common interest.
Promotion of studies and production of plans for harmonisation of the legislation of the parties, concerning
matters falling within the responsibilities of the Commissions.
Finally, the Treaty provides that the Parties may give the Commissions other functions by means of reversal
notes or other forms of agreement.
31. The Commissions are practical and effective mechanisms for bi-national co-operation, co-ordination and
management, which have operated for more than 20 years. Delegates to the Commissions have full powers to
represent their countries. The Resolutions of the Commissions are published in the Official Papers of both
countries with no further governmental processing required for them to become binding. The resolutions are
implemented by the competent national authorities and the control of its application is exercised by the
Maritime Authorities of both countries.
32. Both countries have national and local environmental authorities with powers to legislate for the protection of
the environment and control their application. Key authorities for this project are in Argentina, the Secretary for
Natural Resources and Sustainable Development (SRNyDS, in particular the Under-secretary for environmental
planning), Secretary for Urban Planning and Environment of the City of Buenos Aires, Secretary for
Environmental Policy of the Province of Buenos Aires, Navy, Coastguard and Ministry of Economy. In
Uruguay, key authorities are the Ministry of Housing, Land Planning and Environment (National Directorate for
the Environment, DINAMA), Municipality of Montevideo, other municipalities on the Rio de la Plata and its
Maritime Front, Navy (includes the Coastguard) and the Planning and Budget Office (OPP).
A.4. HOST COUNTRY STRATEGY
33. Both Argentina and Uruguay--the riparian countries-- are committed to protecting the environmental integrity
of the Rio de la Plata and its Maritime Front, and have developed a raft of national policies, strategies, and
programmes aimed at improving management of the waterbodies. At the national level, the National
Environmental Action Plans, place a top priority on conserving and rehabilitating the coastal ecosystems of the
Rio de la Plata and the Atlantic Ocean and the strengthening of the management of common resources and
boundary areas. The Environmental Action Plan approved by Uruguay (1992) and the Environmental Report
drafted by Argentina (1992) include several targets, actions and programmes relevant for the present project.
Particularly the following:
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Specific targets:
To protect biodiversity and genetic resources - with a particular reference to the need of engaging in a strong
action aimed at the conservation and recuperation of the coastal ecosystems of the Rio de la Plata and Atlantic
Ocean.
To strengthen international environmental policies - with a particular reference to the management of common
resources and boundary areas by means of the existing binational Commissions.
Subject areas:
Recuperation and management of coastal areas.
Management of basins or critical importance from the environmental point of view.
Sewers and urban drainage.
The construction of treatment plants for industrial pollutants and effluents.
Recuperation and sustainable use of ecosystems and natural resources.
Activities
Programmes for the conservation and sustainable use of genetic reserves and biodiversity.
Programmes for management and recuperation of coastal areas.
Management Program for critical basins 1.
Environmental drainage Program2.
34. Environmental authorities (municipal, departmental, provincial and national) in both countries are working on
the protection of the aquatic environment. The Port Constructions and Waterway Directorate and the SRNyDS
of Argentina passed legislation requiring environmental impact assessments (EIA) before the development of
coastal infrastructure. In Uruguay the Municipality of Montevideo introduced regulations on discharges and
environmental quality lead values applicable to the waterbodies within its jurisdiction.
35. Furthermore, both countries have developed national policies and programmes aimed at the protection and
management of the natural environment and are in the process of strengthening the regulatory capacity of their
national environmental authorities, with funding from the Inter-American Development Bank (IADB) (see
below) .
36. Despite these strategies however, the transboundary externalities of development are largely unaddressed as
these impacts are not currently covered by national environmental management programmes. Critically, the two
countries have recognised the necessity of co-ordinating interventions in order to address these impacts. The
most important of these interventions is the Rio de la Plata and the Maritime Front Treaty signed in 1973 that
has provided a solid framework for bilateral co-operation and led to the establishment in 1976 of the Binational
Technical Commission for the Maritime Front (CTMFM) and the Administrative Commission for the Rio de la
Plata (CARP). As explained above these commissions are responsible for the conservation and rational use of
living aquatic and marine resources and the prevention and remediation of pollution in the waterbodies and
have actively worked towards the goal of improving management of resources in the area.
37. The Commissions have established bi-national working groups, formed by specialists from institutions of both
countries, who analyse and recommend actions to address the issues under their mandates. Particular emphasis
has been given to the management of living resources. For example, CTMFM sets catch quotas, maximum
1 This Program includes management projects for the basins of the Santa Lucía river, the Miguelete, Pando,
Pantanoso and Carrasco streams and the Sauce lagoon (Uruguay). All these basins flow into the project area.
2 This Program includes sanitation projects for the departments of Montevideo and Canelones (Uruguay) and the
development of appropriate technologies for the treatment of effluents.
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catch limits, mesh sizes and other regulations for the fisheries in the Maritime Front. The Commissions have
also issued joint resolutions for resources that are distributed in both areas. A recent example is the "Joint
Resolution for the determination of distribution quotas by country of the Corvina for the period 1997 to 1999",
issued on 28 May 1997
38. Binational infrastructure works have also been important. CARP managed the dredging of
the Martín García channel in the Rio de la Plata and periodically prepare studies of the area's
dynamics.
39. During the last decade both CARP and CTMFM have accorded a growing importance to
environmental issues, particularly pollution, in their agendas. One example is the "Co-
operation agreement for the prevention of pollution incidents in the aquatic environment
produced by oil and other noxious substances". This agreement entered into force in 1993.
To strengthen joint co-ordination and co-operation, the Commissions established, on 19 June
1998, the CARP - CTMFM Consortium establishing the institutional framework for the
execution of this project.
40. Finally, in addition to the above polices directed particularly at the Rio Plata and its Maritime Front the
countries are parties to a number of international protocols pertaining to international waters in general
including the United Nations Convention on the Law of the Sea, and the Ocean Charter. They have also
subscribed to the Rio Declaration on Environment and Development, ratified the Convention on Biological
Diversity and are Parties to the Convention on Migratory Species, the Convention on International Trade in
Endangered Species of Wild Fauna and Flora and the Ramsar Convention on Wetlands of International
Importance.
A.5. PRIOR AND ON-GOING ASSISTANCE
41. Argentina and Uruguay have instituted a number programmes to address national
environmental concerns particularly in the coastal areas of the Rio de la Plata and the
Maritime Front. These are an important step towards improving the management of this
important waterbody, however, alone they are not sufficient to face management challenges
related to transboundary resources. Most of these existing programmes are independent
national-level activities that, while significant, are deficient in addressing transboundary
concerns. These initiatives, funded through a variety of multi-and bi-lateral donors and
national sources would occur without the present project. In GEF parlance these constitute
the baseline on which GEF activities will build. They are described below and have been
presented in categories that correspond to the major lines of action of the present project in
order to highlight complementarily and facilitate co-ordination during project
implementation. The resources available for each of these initiatives over the duration of the
present project, have been estimated as part of the Incremental Cost Analysis (see Annex IX).
Transboundary Diagnostic Analysis
42. Baseline efforts with regard to information on and monitoring of water quality and pollutant
levels are restricted to specific coastal sectors (limited to a few hundred meters offshore) and
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are not monitoring or addressing pollution trapped in sediments, nor the biological uptake of
contaminants.
43. They include the following:
Argentina
Regular monitoring of water quality on the Argentinean shore of the Rio de la Plata
(between San Isidro and Magdalena) is carried out by SIHN in cooperation with the
Limnology Institute of the La Plata University, the Sanitary Works Administration of the
Buenos Aires Province and Aguas Argentinas S.A.;
Assessment of pollution levels in the Matanzas-Riachuelo watershed in Argentina, steps
to rehabilitate the area and control/manage industrial pollution and solid waste disposal,
being funded by the IADB;
A pollution management project, focusing on pollution control in two Buenos Aires
municipalities, being funded by the World Bank (SRNyDS-BM).
Uruguay
Monitoring water quality along the coastline of the Department of Montevideo,
rehabilitation of urban streams, and information dissemination by IMM with support from
the IADB;
Studies on red tides carried out by INAPE and research on this phenomenon in the coast
of Colonia (Uruguay) undertaken by the Municipality and the Universidad de la Republica
de Uruguay;
Efforts to monitor environmental quality indicators (including pollution) in Uruguay's
coastal zone and studies of the saline front (ECOPLATA project).
44. At a regional level, CARU -- in association with SHN of Argentina and SOHMA and
DINAMA of Uruguay -- monitors water quality and sediments in the Uruguay River.
45. The Commissions (CARP and CTMFM) allocate some resources to specific studies on
fisheries, hydrography, cholera outbreaks, and red tides among other issues.
46. In terms of biodiversity monitoring, baseline assessments of habitats and species are limited.
Priority has been given to studies of commercially important species rather than the effects of
pollution on fauna, and the location of sensitive habitats. Biodiversity assessments that will
take place in the baseline include the following:
A project sponsored by the Environment Secretary of the Province of Buenos Aires
(SPABA), which will allocate one million dollars over a three-year period to survey
biodiversity and prepare management plans for two coastal protected areas in the
Province.
Biodiversity research conducted by local universities, (focusing on taxonomy, ecology,
population dynamics etc).
The BIOPLATA project funded by UNESCO, which will expend moneys on collating
existing information on biodiversity. However, the scale of this exercise is inadequate and
needs to be expanded, to facilitate ground-truthing and fill critical data gaps.
- 9 -
47. The two countries will also be investing in projects for assessment and management of
fishery resources, wherein the focus is clearly on commercially important species. These
projects include the following:
INAPE in Uruguay--studies of fisheries biology, focusing on selected species (mostly
Hake, Corvina, and Squid);
ECOPLATA, in Uruguay, which is sponsoring a study of Corvina, an important
commercial fishery;
INIDEP in Argentina conducts studies of fisheries biology, focusing on selected species
(mostly Hake, Corvina, and Squid) and two research cruises annually to collect samples
for biodiversity assessments, focusing on fisheries surveys and organic pollution.
Strategic Action Program
48. In the baseline the Commissions have programmed resources for organising and convening
monthly technical and policy meetings of the different Commission members and organising
working groups around specific topics. The Commissions' emphasis has largely been on
fisheries management and dredging of waterways. Budgetary allocations are inadequate to
support effective binational management of an international waterbody. In terms of strategies
for the protection and conservation of biodiversity.
49. Argentina completed its National Biodiversity Strategy in 1998. Uruguay completed its
National Strategy at the beginning of 1999. These cover the entire national territory of each
country and whilst these include the project area it is not addressed from a regional and bi-
national management stance.
Strengthening and sustaining the SAP implementation framework
50. The two countries are in the process of strengthening the regulatory capacities of their
national environmental authorities, with funding from the IADB. Both have developed
legislation relating to environmental management, with regulations governing water quality
and other standards. Environmental impact assessments (EIA) are mandatory for all
industrial and infrastructure projects. But the regulations and management instruments
adopted by the countries are not compatible, and do not relate to transboundary impacts.
Binational instruments for these waters are limited to contingency plans for oil spills.
51. The different management institutions operate limited training schemes for personnel as part
of their recurrent work programmes. These include the ECOPLATA project and IADB
investments in national institution building as they relate to project area (IADB-SRNyDS and
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IADB DINAMA). Binational Commissions do not currently invest in training and there is
very limited inter-phase with management approaches in other regions.
52. A number of programmes are imparting general environmental awareness to civil society in Uruguay and
Argentina. These include modest investments by the ECOPLATA project and PROBIDES. At present,
awareness activities focus on local and national issues and do not highlight the transboundary causes and effects
of pollution problems. The coastal population for example, have limited awareness of the state of the
environment and understanding of the causal factors of degradation in the Rio de la Plata and the Maritime
Front. Although the binational Commissions do disseminate some scientific and technical information by
hosting technical symposiums, there is no co-ordination of awareness raising activities between
53. Finally, a range of on-going or planned initiatives contribute directly or indirectly to the overall goal of the
present project rather than specific components. Amongst these GEF is currently collaborating with a number of
initiatives that will provide complementary information to the present project and facilitate project results
throughout a wider region. These include the following:
i)
The UNDP/GEF project Consolidation of the Bañados del Este Biosphere Reserve
(PROBIDES);
ii)
The UNDP/GEF Project Consolidation and Implementation of the Patagonia
Coastal Zone Management Programme for Biodiversity Conservation;
iii) The World Bank/GEF project for Coastal Contamination Prevention and
Sustainable Fisheries Management in Patagonia;
iv)
The UNEP/GEF Project integrated watershed management project for the
Pantanal and Upper Paraguay River Basin;
v)
The UNEP/GEF Project Strategic Action Program for the bi-national basin of the
Bermejo River.
vi)
The UNDP/GEF Distance Training and Learning Project which includes a
component implemented by the UN TRAIN-SEA-COAST Programme. This
programme will develop in the area training courses on management of sensitive
marine and coastal areas.
B. PROJECT JUSTIFICATION
B.1. PRESENT SITUATION : PROBLEMS TO BE ADDRESSED
54. The Rio de la Plata and its Maritime Front are threatened by a multitude of factors stemming from
anthropogenic activities within the La Plata River Basin, coastal areas, and the Southwest Atlantic. These
include land use practices in the drainage basin; upstream water resource projects; domestic, industrial, urban
and agricultural point and non-point source sediment and pollution runoff including bio-accumulative toxins;
sediment dredging; and shipping related threats such as hydrocarbon spillage and port activities.
55. Pesticides, hydrocarbons and heavy metals have been identified in water, sediments and organisms in the outer
river with pollution distributions reflecting proximity to urban and industrialised areas. Productivity
measurements in the river indicate that the system is of medium to high productivity, with attendant risk of
moving into eutrophic conditions in coastal zones. The area is also affected by the alteration of hydrological
processes caused by construction of numerous dams in the basin. In the near future, transboundary
environmental threats are expected to grow owing to the integration process resulting from the La Plata Basin
2
Treaty and MERCOSUR a common market covering more than 13 million km and serving a population of
about 200 million inhabitants in four countries.
- 11 -
56. The development and operation of the Parana-Paraguay Hidrovia (Puerto Caceres - Nueva Palmira) will
increase the transport of goods (mostly soybeans, grains, iron and manganese, oil and other hydrocarbons, and
timber) within the region and would have significant environmental impacts on the basin. In 1996 shipping
through the Project area cuased 47.2 million tons of different kinds of cargo including oil. There are no traffic
segregation systems nor obligatory shipping routes in the outer Rio de la Plata and Maritime Front. In the
middle and upper Rio de la Plata, ships use a system of channels passing near or through important habitats or
spawning, feeding and nursery grounds of fisheries resources. In 1997 the oil tanker San Jorge collided with an
unreported rock, with the resulting oil slick contaminating the coast of Punta del Este (Uruguay) and affecting
an important colony of sea lions. Argentina and Uruguay are in the process of improving their port operations
with funding from the IADB. Demand for port services is likely to increase substantially over the coming years
leading to an expansion of the use of existing terminals and the development of new facilities.
57. The coastal areas of the Rio de la Plata and its Maritime Front concentrate the largest urban, tourist and
industrial centres and ports of both countries and face accelerating development pressures. The coastal urban
centres discharge effluents and industrial wastes into the Rio de la Plata, Maritime Front and small tributaries.
Some of these tributaries suffer chronic pollution, for instance, the mouth of the Santa Lucia river, Montevideo
Bay and the Pantanoso and Miguelete streams in Uruguay and the Matanzas - Riachuelo and Reconquista
streams in Argentina. Chronic oil pollution is also a problem in the vicinity of ports and oil terminals. The use
of pipes to discharge urban wastes off the coast is common. Exotic bivalves may have been introduced through
the discharge of ballast waters. These species have colonised structures in the upper Rio de la Plata and are
moving into the Parana River. Toxic red tides are more and more frequent and longer lasting in the outer Rio de
la Plata and Maritime Front.
58. Both countries are making important investments in the construction of sanitation systems, restoration of
polluted areas, eradication of pollution in coastal waters, development of coastal management initiatives and
establishment of environmental management systems. However, the regional dimensions of waterbody
degradation both causes and effects - have not been incorporated into local and national planning and
management efforts.
59. The scant depth of the Rio de la Plata makes it necessary to continuously dredge the access channels to the
ports. Some 15 million tons of sediments are removed annually. Major works are currently being undertaken to
enable deep draught ships to navigate the Parana and Uruguay rivers. Dredging alters river and marine and
benthic communities and re-suspend sediments and pollutants. The impact of continuous dredging on the
environment of the area is unknown.
60. Freshwater fisheries in the upper Rio de Plata have declined probably due to a combination of pollution,
construction of dams along the Parana and Uruguay rivers and fishing activities. Despite management
interventions by both countries, fisheries yields in the outer Rio de la Plata and Maritime Front have also
declined. The fisheries institutes of both countries maintain programmes for the study and assessment of
fisheries resources, and the bi-national Commissions, in co-operation with the Prefecturas Navales (Coast
Guards) and fisheries authorities of the Parties, take management measures. Nevertheless the effects of other
factors such as pollution and habitat alteration have not been adequately considered in the management of the
fisheries.
61. National initiatives to address these threats are being undertaken as part of the national sustainable development
plans (see previous section) but the complex nature of these threats and transboundary issues goes beyond the
scope of national activities. However the ability of Argentina and Uruguay to address these threats is
constrained by a number of barriers that need to be overcome if transboundary issues are to be addressed in an
effective and co-ordinated manner. These barriers may be summarised as follows:
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1. Knowledge of the functioning of the waterbodies and understanding of how cross- sectoral activities impact
the aquatic and marine environments is not sufficient. The Rio de la Plata and its Maritime Front is particularly
sensitive to external hydro-meteorological forces. Due to thermo-saline gradients and to the convergence of
waters from different sources, the area is considered a vast river-marine ecosystem. It is a transitional
environment for which - in contrast to other regions of similar size and importance - there is limited
understanding critical processes. This is due to the highly dynamic nature and great expanse of the system,
which cause hydro-meteorological processes of different scales and magnitudes, making it technically and
financially difficult to resolve the spatio-temporal variability of its processes. This is exacerbated by scant and
fragmented data on specific biophysical issues and in depth knowledge of the causes and effects of
transboundary degradation. The Environmental Assessment conducted during PDF implementation found that
information is scattered among several institutions, is limited in scope (focused mostly on fisheries biology)
and has a poor spatial and temporal coverage. An ecosystem analysis of the issues affecting the area is also
lacking, including the effects of pollution on ecosystems, and understanding of the import of pollutants from
the La Plata basin and export to international waters is perfunctory. A further problem is that there is
inadequate co-ordination among the institutions that generate and store information about pollution and other
imminent international waters concerns at the national and regional levels.
2. Lack of transboundary perspective. The transboundary nature of these processes precludes unilateral
management of the waterbody by either one of the Parties. Although there is valuable, though limited, set of
information on water quality, hydrography, sediment contamination, handling and pollution by hazardous
residues, commercial fisheries, and exotic species, it focuses on national viewpoints and issues and needs to
be analysed from a regional perspective. Little investment is planned to support binational information
collection and assessment. Whilst there are some initiatives for monitoring of water quality, as cited in the
previous section, these focus on coastal waters (limited to a few hundred meters offshore) rather than on
binational or international waters. Joint oceanographic programs to study the biophysical dynamics of the area
are lacking. Integrated analysis of the issues affecting the area is also lacking, including the effects of pollution
on ecosystems, and understanding of the import of pollutants from the La Plata basin and export to
international waters is perfunctory. If transboundary issues are to be effectively addressed these efforts will
need to be scaled up over the longer term.
3. Absence of targeted interventions due to lack of information and poor integrating into decision making.
Decision-makers, in both the private and public sectors and agents of civil society are not adequately informed
of the causal factors responsible for degradation, nor the solutions and technologies available to mitigate
problems, nor are they sensitised to innovative and cost-effective solutions. The causes and effects of
transboundary problems are not internalised into national and binational policies and decision-making
processes. Furthermore, the National Sustainable Development baselines, although sizeable, are poorly
integrated, leaving critical programmatic gaps. Current efforts are focused mostly on the management of
fisheries resources.
4. Lack of bi-national management tools and strategies other than fisheries. Despite the existing bi-national
framework, common tools and strategies for transboundary pollution control and mitigation or biodiversity
protection and management have not been developed to sufficient extent. For example, environmental
management standards and norms differ in the countries and binational management instruments for pollution
prevention and control are lacking. Although the two countries have developed legislation relating to
environmental management, with regulations governing water quality and other standards, the norms and
management instruments adopted by the countries are not compatible, and do not relate to common waters and
transboundary impacts. Instruments for these waters are limited to contingency plans for oil spills. Moreover,
despite existing protocols and binational institutional arrangements, the mechanisms for collaborative pollution
and resources management, other than fisheries, are weak. There is limited co-ordination of pollution
prevention and control programmes between the countries. National authorities and the binational
Commissions lack the financial resources to initiate and sustain a joint strategic effort for pollution control and
management
- 13 -
5. Institutional capacities to address threats on a holistic basis are weak. There are different
institutional frameworks for environmental management in the two countries. Argentina has
a complex framework with overlapping and sometimes conflicting jurisdictions between
national, provincial and municipal levels. Uruguay has a single national environmental
authority and municipalities have only recently become more involved and active in the
management arena. Institutional capacities to address the root causes of transboundary
degradation are weak. A further problem is that there is inadequate co-ordination among the
institutions that generate and store information about pollution and other imminent
international waters concerns at the national and regional levels.
6. Awareness of the transboundary environmental problems afflicting the area is
inadequate. Studies during the PDF found that while organised social actors in both
countries have some knowledge of priority environmental issues and civil society at large
perceives there is a pollution problem in the river and coastal waters (interviewees made no
mention of pollution in offshore waters), there is little understanding of its genesis. This in
turn serves to handicap grassroots actions to address imminent concerns. Several institutions
and projects carry out communication and dissemination activities, though these tend to be
diffuse, thereby reducing their efficacy. There are no co-ordinated national or bi-national
activities for awareness on transboundary river and marine pollution. This is compounded
by the fact that the coastal population and other important stakeholding groups have limited
awareness of the state of the environment and understanding of the causal factors of
degradation in the Rio de la Plata and the Maritime Front. This in turn handicaps community
action. At present, awareness activities focus on local and national issues and do not
highlight the transboundary causes and effects of pollution problems. Although the
binational Commissions do disseminate some scientific and technical information by
hosting technical symposiums, there is no co-ordination of awareness raising activities
between the two countries
62. Thus, despite the goals articulated in the various bilateral agreements, imminent international
waters concerns have yet to be holistically addressed. In the meantime, the waterbodies face
accelerating pressures--undermining their productivity. Without GEF investment, the ability
of the countries to jointly manage the Rio de la Plata and its Maritime Front would be
limited, and problems of transboundary waterbody degradation would accelerate. The effect
of cross-sectoral activities in upstream and adjacent coastal areas of the system will remain
imperfectly understood and, as a result, an integrated analysis of pollution problems and
impact on the waterbodies will not be effected.
B.2. EXPECTED END SITUATION
63. This project will contribute to a long-term process aimed at addressing the transboundary externalities imposed
by sectoral activities. By the end of the project, the groundwork required to enable both countries to continue
this long term process will have been completed. Riparian countries will be able to engage in initiatives aimed
at reaching a range of agreements to mitigate priority transboundary degradation issues; internalise the external
costs of transboundary pollution into domestic and binational policy; facilitate regional co-operation; direct
- 14 -
national efforts towards filling the gaps that may exist; promote harmonisation of the respective national
legislation; promote necessary investments.
64. By being able to undertake these initiatives in the long-term the environmental quality of this waterbody will
have improved with lower levels of water and sediment pollution and better conserved river and marine
biodiversity.
65. More specifically at the end of the project a Transboundary Diagnostic Analysis (TDA) will be available to fill
critical information gaps on key biophysical and cross-cutting issues related to water and sediment pollution and
river and marine biodiversity and provide key data and tools for planning and implementing actions required for
mitigation of transboundary environmental problems in the Rio de la Plata and Maritime Front. These tools will
include an Integrated Information System (IIS) with Geographical Information System (GIS) facilitating the
provision of updated ecological charts and zoning schemes, a Management Information System (MIS) and a
Virtual Centre of Information (VCI).
66. A Strategic Action Programme of policy, legal and institutional proposals and priority investments will also be
available for the Rio de la Plata and its Maritime Front. This will have specific national and jurisdiction
pollution control strategies, targets for water and sediment quality, and implementation mechanisms for
pollution reduction, control and monitoring and the protection and conservation of biodiversity actions. It will
also contain a portfolio of priority projects to operationalise the SAP and advanced negotiations in progress
between governments and bilateral and multilateral sources for financing.
67. Finally the framework for implementation of the SAP will be more sound and the capacity of key actors
strengthened for delivering long-term action outlined in this programme. A collaborative framework for co-
operation and co-ordination for the control of transboundary problems will be in place and the Commissions
and relevant national and local entities will have enhanced capacity for regional management of transboundary
issues. Furthermore, a wide range of national and local stakeholders with have a raised awareness of
transboundary environmental issues and will be in the position to play a more active and supportive role in the
management challenges of the region.
68. This package of capacity building actions will ultimately provide clear regional and global benefits in an area
renowned for its environmental significance. The effectiveness of these actions on the quality of this
international water body will be evaluated by a set of indicators and monitoring system that will be put in place
by the project. These indicators will not only provide a tracking system of the short and long-term impacts of
this project and others related to the Río de la Plata and its Maritime Front, but also of the SAP implementation
over a period of time that exceeds the present project. Whilst the specific end situation will be determined using
these indicators, it is expected that by the end of the Project, and upon implementation of priority SAP projects,
the water and sediment pollution discharge levels to the waterbody will have been reduced thus decreasing
pollution export to international waters, increasing the protection of commercially important straddling fish
stocks, improving water quality for a wide range of riparian inhabitants and in turn improving health conditions
and livelihood options. Furthermore the conservation of globally significant biological diversity of the
waterbody will have been strengthened, protecting vital breeding and nursery areas of key species and
improving the long-term integrity of the system as a whole.
B.3. TARGET BENEFICIARIES
69. At the general level, the long-term target beneficiaries of the project will be a range of stakeholders that live
within this area and that derive their livelihoods from its resources. This includes the adjacent population of 16
million, including the densely populated Buenos Aires and Montevideo metropolitan centres that derive water
from this system and base a wide range of economic activities on it, for example fishing, tourism, recreation and
port activities. Upon successful completion of the project and subsequent implementation of priority projects of
the SAP, these inhabitants will benefit from the improved water and sediment quality in the waterbody and from
- 15 -
the protection and conservation of its biodiversity including vital breeding and nursery areas. Ultimately they
will have better guarantees for safeguarded health and productivity, widened menus of potential livelihood
options, and sustaining recreational opportunities and amenity values.
70. Furthermore at a different level, as the project focuses on global benefits, a further group of general
beneficiaries will be the global community. This will include indirect benefits to the broad community including
in conservation of biodiversity and areas of outstanding environmental wealth as well as direct benefits to those
with economic interest in the areas.
71. At a more specific level, target beneficiaries will be those directly involved in project actions that have been
designed to solve the problem of degradation of transboundary environmental resources in the area. These
groups or actors will be beneficiaries to varying degrees as they will be actively involved as deliverers or
recipients of the capacity-building actions and awareness campaigns in the project. They include those related to
or affected by the situation either by having the competence or responsibility to act in order to solve the
problem (direct actor) or by having an influence on it even though they do not have the competence or
responsibility to solve it (indirect actors). During the PDF these actors, many of which are indirect or direct
beneficiaries, were identified according to key issues and are fully listed in Annex XII-1. These include the bi-
national entities CARP, CTMFM, the Governments of the riparian countries through specific national
authorities such as the DINAMA, SRNyDS, INIDEP, INAPE, SOHMA and municipal authorities of Colonia,
San José, Canelones, Montevideo, Maldonado y Rocha and Buenos Aires province. It also includes non-
governmental organisations such as port authorities, universities, environmental NGOs, fishing and boating
clubs and tourism operators
B.4. PROJECT STRATEGY THE GEF ALTERNATIVE
72. The present project has been developed in consistency with the guidelines outlined under the GEF Operational
Strategy and Waterbody-based Operational Programme (OP8). The project strategy has been defined through a
fully participatory process, building on national sustainable development baselines and other projects in the
region outside of the direct project area, including other GEF initiatives, to achieve global benefits through a
well defined set of cost-effective interventions. This composite set of actions, known as the GEF alternative,
will focus on the identification and resolution of transboundary environmental problems affecting an area of
regional and global significance. It will address root causes of the degradation of transboundary environmental
resources by removing the barriers that currently prevent more effective joint management of these bi-national
resources and will incorporate mechanisms to enhance the sustainability beyond the specific life time of the
project.
73. The design of the present project was developed between October 1997 and June 1998, with the support of GEF
Project Development Facility (PDF), and additional funding from the International Development Research
Centre (IDRC) and counterpart contributions by both Commissions. Key issues affecting the environmental
quality of the Rio de la Plata and its Maritime Front were identified and prioritised during a bi-national
workshop held in Piriapolis (Uruguay) from 24 to 27 November 1997. Fifty-four people participated in the
workshop as representatives of institutions and organisations from both countries.
74. Following the Piriapolis workshop, four studies were prepared by ad hoc groups of specialists from both
countries:
(i)
Institutional analysis and proposals for institutional strengthening,
(ii)
Review of legislation and proposals for harmonisation,
(iii)
Environmental Assessment
(iv) Stakeholder
Identification.
- 16 -
75. These documents were used to provide technical background for the formulation binational workshop in Mar
del Plata, from 18 to 20 March 1998. During this workshop, forty-nine people participated in the identification
of objectives, outputs and activities. The results of both workshops were compiled in documents that were
distributed to the participants, key institutions of both countries and GEF Implementing Agencies.
76. From these analyses it was clear that a quick fix approach to management was inappropriate to the complex
determinants of degradation in the area and that a long-term process would be required to address transboundary
problems. It was also clear that, to be effective within the socio-economic and environmental conditions of the
project area, a two-phase approach to this long-term process would be required. The first phase of this process
should focus on overcoming the barriers that presently impede joint management of the waterbody including the
development of a Strategic Action Programme for the waterbody. It shall strengthen collaborative efforts
through improving understanding of the ecosystem and the biophysical functioning of the waterbody,
identifying and prioritising cost-effective solutions, harmonising institutional arrangements for river and coastal
zone management, raising stakeholder awareness of underlying problems, leveraging financial resources, and
integrating transboundary considerations into domestic environmental impact abatement programmes.
77. The second phase would be related to the implementation of the actions identified in the SAP
and involve investing in pollution control and holistic measures to effect the conservation and
sustainable use of living resources. Funding for these two stages should follow the GEF
criteria. The first stage is expected to generate largely intangible domestic benefits such as
enhanced scientific knowledge, awareness of systems dynamics, management capacity, and
joint programming. Because the benefits are intangible, proposed interventions are unlikely
to occur but for the participation of GEF. Over the longer term, the removal of barriers to
joint waterbody management and the implementation of the SAP in the second phase would
provide tangible national benefit. For this reason, the present project, supported with GEF
resources, will focus on the first of these two phases and SAP implementation, or phase two
would for the most part be effected by drawing on non-GEF resources succeeding the
implementation of this project
78. In compliance with the characteristics determined for the first phase in the long-term process,
this present project will create a framework to enable the two countries to address issues that
presently lie beyond the mandate and scope of activity of national management bodies,
overcoming barriers to joint action. By diagnosing the root causes of degradation, and
identifying appropriate management interventions, strengthening the capacity of key decision
makers to implement these through jointly programmed interventions, and leveraging
financing to implement them, the GEF alternative will provide a springboard for a follow on
investment phase.
79. The GEF alternative will be implemented through this present project. A three-pronged strategy has been
defined for this first phase of the long-term objective of preventing and mitigating transboundary threats to the
Rio de la Plata and its Maritime Front.
(a) Transboundary Diagnostic Analysis: The project will complement the national focus of
baseline programmes by addressing transboundary issues through joint binational
programming. Current activities do not target the causes of transboundary pollution because
understanding of the functioning of the system and the transboundary determinants of the
- 17 -
problem is inadequate. Whilst information has been collected and assessed as part of Block
B activities, further work is required in order to finalise a Transboundary Diagnostic
Analysis. This requires that data be collated, critical data gaps filled, and information
assessed. The project will provide technical assistance to undertake these tasks. These
include the complete identification and analysis of the sources, impacts and root causes of
the priority transboundary environmental problems with special reference to river and
marine pollution, as well as the identification of barriers to effective waterbody management
including economic factors. It will generate a quality product that will underpin preparation
of the SAP and its later operationalisation.
(b) Development of a Strategic Action Program (SAP) of policy, legal, and institutional
reforms and priority investments to prevent and mitigate the priority transboundary
environmental concerns identified in step 1. While the Commissions are well placed to
undertake binational management given their mandates, they lack the resources to
effectively carry out this task. Modest existing national (baseline) resources to convene
periodic meetings and working groups need to be complemented for preparation of the SAP.
This project will support the preparation of the SAP for the area and catalyse political and
financial support for implementation. This project would finance further technical work to
identify barriers to harmonising environmental quality standards and EIA protocols,
institutional arrangements, and policies between the two countries. It would develop
jurisdictional, national and bi-national mechanisms and financial commitments for
implementation of expected baseline and additional SAP actions. Strengthen the capacity of
CARP, CTMFM and key national and local authorities of both countries to prepare and
operationalise joint management endeavours and action plans for transboundary pollution
reduction and control. Raise public recognition of key local and transboundary causes of
pollution in the Rio de la Plata and Maritime Front. This will then form the basis of efforts
to leverage policy, institutional, financial and regulatory reforms at the binational and
national levels. A major focus of activities will be on developing an investment portfolio
that could be used to leverage finances from capital markets.
(c) Strengthening and sustaining the SAP implementation framework by development of
regional co-operation and co-ordination mechanisms to deal with complex transboundary
problems, e.g. pollution loads from sources internal and external to the Rio de la Plata and
its Maritime Front. In order to secure effective implementation of the SAP framework
training and communications strategies that target specific stakeholding groups need to be
developed. Baseline programs on general environmental training and communications,
while important, are unlikely to build institutional capacities or public action to address the
transboundary threats to the Rio de la Plata and the Maritime Front. This project will,
therefore, assist in the development of information tools to integrate information and
elucidate transboundary externalities. This, in turn, will allow the incorporation of
transboundary concerns into decision making. More specifically, the project will (i) identify
policy and institutional barriers and develop mechanisms that engender collaborative efforts
to control and manage pollution and other causes of degradation, (ii) provide specific
training to enhance local capacity to prepare and implement the SAP, (iii) mobilise national
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and international support for joint management, (iv) inform stakeholders about issues and
solutions, and (v) extensively disseminate technical and scientific information and (vi)
develop a set of international waters indicators to monitor the health of the Rio de la Plata
and Maritime Front to evaluate project impact and later SAP implementation.
B.5. INSTITUTIONAL ARRANGEMENTS
B.5.1. Execution and Implementation Arrangements
80. The project will be implemented taking advantage of the existing bi-national structure and mechanisms for co-
ordination, co-operation and management provided by the TREATY OF THE RIO DE LA PLATA AND ITS MARITIME
FRONT and the two bi-national Commissions.
81. As mentioned before CARP and CTMFM are international governmental organisations with the legal standing
required for the implementation and fulfilment of their objectives. The Commissions established the
Consortium CARP-CTMFM on 19 June 1998 by means of a Joint Resolution. The Resolution established the
co-operation, co-ordination and institutional framework for the preparation and implementation of the SAP. The
Consortium will serve as the Project's Executing Agency.
82. The Commissions are fully empowered to address any issue relating to the joint management of the binational
water bodies. The Commissions are not fully empowered to address land-based sources of pollution beyond the
areas under their exclusive jurisdiction since this would imply an extension of bi-national authority to sovereign
territory. However, as bodies under the respective countries' Ministries of Foreign Affairs, the two
Commissions have government representation at the highest level. In order to overcome the possibility of
insufficient attention being paid to land-based sources of pollution affecting the Rio de la Plata and its Maritime
Front system, the Project is structured such that the appropriate pollution control bodies having jurisdiction on
significant pollution services shall be represented at the Project Coordination Committee, the Technical
Advisory Group and at the interinstitutional working groups (see below). The express commitment of these
agencies to SAP implementation will be obtained as part of the project.
83. The institutional structure for project implementation comprises five elements:
1. Consortium Executive Board
Its members are the Chairmen of the four Delegations to CARP and CTMFM3. The functions of the Consortium
Executive Board include:
General supervision of the project.
Approve progress and financial reports.
Select and contract the International Co-ordinator of the Project according to standard UNDP procedures.
Ensure the participation of relevant authorities and stakeholders of the two countries in the process of drafting
the TDA and SAP and its later implementation.
Adopt the SAP on behalf of Argentina and Uruguay.
2. Project Co-ordination Committee
It will be chaired by the Executive Board of the CARP-CTMFM Consortium and include (i) representatives of the
agencies of Argentina and Uruguay, responsible for establishing environmental protection regulations, either in the
Project Area or in adjacent areas linked to same, and whose participation is necessary to accomplish the Project
objectives, (ii) representatives of the planning offices of the Parties, (iii) representatives of the GEF implementing
3 Each national delegation to CARP and CTMFM has a President.
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agencies and (iv) representative of the Inter-American Development Bank. The Co-ordination Committee will have
the following members:
The CARP-CTMFM Consortium (project executing agency), which will chair the Committee
and call the meetings.
The following national and local authorities:
Argentina
Uruguay
Secretary for Natural Resources and Sustainable Ministry of Housing, Land Planning and
Development (Under-secretary for
Environment (National Directorate for
environmental planning)
the Environment, DINAMA)
Secretary for Urban Planning and Environment
Municipality of Montevideo
of the City of Buenos Aires
Secretary for Environmental Policy of the
A representative designated by the other
Province of Buenos Aires
municipalities on the Rio de la Plata and
its Maritime Front.
Navy and Coastguard
Navy (Coastguard)
Ministry of Economy
Planning and Budget Office
Under-Secretary for Fisheries
INAPE (National Fisheries Institute)
The three GEF implementing agencies (UNDP, WB and UNEP).
The Inter-American Development Bank (IADB).
The international co-ordinator of the project will be the Secretary of the Co-ordination
Committee with the support of the Project Implementation Unit.
The Co-ordination Committee will:
i)
Provide policy advice for the implementation of the project.
ii)
Co-ordinate project activities among bi-national, national and local levels for the
formulation, adoption and later implementation of the SAP.
iii)
Agree with the respective Authorities of the Parties the adoption of the SAP and action
plans, within the geographical context corresponding to each one of them and according
to their respective responsibilities.
iv)
Ensure that commitments to implement the SAP, the national and jurisdictional action
plans and management instruments generated by the project are made by the Authorities
involved at each level within their geographical scope and their responsibilities.
3. Technical Advisory Group
This group shall be established to provide advice and promote broader involvement of civil
society in the drafting of the TDA and SAP process. The members will include, among others,
representatives of the following entities:
i)
Scientific and technical organisations which will participate in the activities of the
project, including the Naval Hydrographic Service (SHN, Argentina), the Oceanographic,
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Hydrographic and Meteorological Service of the Navy (SOHMA, Uruguay), the coastal
pollution control units of the cities of Buenos Aires and Montevideo, the National
Institute for Fisheries Research and Development (INIDEP, Argentina), the National
Fisheries Institute (INAPE, Uruguay), the University of Buenos Aires (Argentina) and the
University of the Republic (Uruguay).
ii)
Associations and chambers of private sector representatives directly linked to activities in
the project area.
iii)
The most relevant non-governmental environmental organisations of Argentina and
Uruguay and the International Union for the Conservation of Nature (IUCN).
iv)
The scientific cooperation institutions of third countries.
4. Project Implementation Unit
This will consist of an International Co-ordinator, a team of sectoral experts and intersectoral Working Groups. This
team will be in charge of executing project activities.
5. Inter-sectoral Working Groups
Entities including national and local authorities, private sector and NGOs, will participate in Working Groups to
analyse and develop specific elements of the TDA and SAP.
84. The Consortium Executive Board is integrated by national delegates to the Commissions.
Therefore the Consortium will cover their participation.
85. It has been agreed that the Project Implementation Unit will be based in the city of
Montevideo, and staffed by nationals of both countries. Meetings and events shall take place
in both countries. The Consortium will provide office facilities for the operation of the
Project Implementation Unit and the GEF its personnel costs.
86. During the first year of implementation, an agreement will be signed between participating
institutions and the project. Agreements are foreseen with the following international
organisations:
(1) ATAS for the development of training activities.
(2) Dalhousie University (Canada), for the TDA
(3) IOC, for accessing to regional oceanographic information as elements of the TDA and integrated information
system.
(4) IADB, for co-financing of specific activities to be determined which would include, among other activities, the
integration of economic and financial factors in the development of pollution control strategies.
(5) IDRC, for the development of the integrated information system.
(6) IFREMER, for TDA preparation.
(7) IMO, for technical assistance regarding the protection of the marine environment.
(8) IUCN for collaboration in the preparation of the biodiversity element of the TDA and the bi-national strategy
for the protection and conservation of coastal and aquatic biodiversity.
(9) TRAIN-SEA-COAST, for short - term training in environmental management.
(10) UNESCO, for co-operation with the BIOPLATA project.
(11) University of Hamburg (Germany) (Centre for Marine and Climate Research) for the preparation of the TDA.
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87. The UNDP Office in Montevideo will provide administrative support and will be responsible for general
oversight, follow up, and monitoring of the project and will organise evaluation activities.
The selection of staff, supplies and hiring will be undertaken according to UNDP procedures and regulations.
88. In order to streamline Project implementation and expedite its execution, a number of preparatory actions have
already been undertaken. These include periodical meetings of the Consortium Executive Board, the entry into
operation of an interim Technical Advisory Group and the appointment of a Provisional Project Coordinator.
The latter began to work in April of this year, and its tasks includes making the necessary institutional
arrangements (such as cooperation agreements with national and international organizations), required for
Project implementation.
B.5.2. Public Participation
89. The stakeholders linked to the key environmental management issues of the area were identified in the PDF by
means of the Working Groups in the Piriapolis workshop and also by the study on "Stakeholders Identification
and Analysis". Environmental issues, and particularly pollution, are a high priority for the institutions and
societies of both countries. National, Provincial, Departmental and Municipal governments are investing
resources in the understanding and regeneration of the river, marine and coastal areas. A high level of
participation and commitment was obtained during the PDF phase.
90. The formulation of the SAP will involve wide participation of stakeholders at all stages. The main mechanisms
to be used are as follows:
Participation of stakeholders in the Technical Advisory Group of the project.
Intersectoral and binational Working Groups, including all organisations on the Project Co-ordination
Committee, that will guide the processes and analyse the results of nearly all the outputs;
Analysis and harmonisation events -- e.g., (a) bi-national fora for revising and refining the SAP draft, (b)
events to analyse strategies to control transboundary pollution and protect biodiversity and (c) awareness
raising events. Additionally, several mechanisms have been incorporated into project design to involve the
stakeholders of the area, namely (a) the virtual information centre, (b) dissemination events, (c) community
events and (d) mass dissemination of messages.
B.6. REASONS FOR ASSISTANCE FROM UNDP
91. This project will contribute to accomplish one of the strategic objectives of cooperation agreed by UNDP and
the Governments of the Republica Argentina and the Republica Oriental del Uruguay in the subject of
environmental protection.
92. The proposed project is consistent with the GEF WATERBODY-BASED OPERATIONAL PROGRAMME, as it is
focussed on the identification and solution of transboundary4 environmental problems affecting an area of
regional and global significance.
93. The project will benefit from the existence of a binational Argentine-Uruguayan legal framework, established
under the Treaty of the Rio de la Plata and its Maritime Front, that will serve as a framework for the
environmental management of the area. Additionally, both countries have a good environmental legislation
basis, but in some cases there is an overlapping of the States' responsibilities and gaps in binational
environmental management. The preparation of a strategic plan of action will make it possible to direct
national efforts towards filling the gaps that may exist and promoting harmonisation of the respective national
legislation.
4 This term is used as defined by GEF
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94. The Project complements and strengthens other projects that are presently in the process of implementation and
analysis:
(i)
The project for the consolidation of the Bañados del Este Biosphere Reserve5 (PROBIDES).
(ii)
The project Consolidation and Implementation of the Patagonian Coastal Zone Management Program
for Biodiversty Conservation.
(iii)
The integrated watershed management project for the Pantanal and Upper Paraguay River Basin;
(iv)
The Strategic action program for the binational basin of the Bermejo River6.
(v)
The project coastal contamination prevention and sustainable fisheries management in Patagonia7;
(vi) The
TRAIN-SEA-COAST8 training programme.
(vii)
The projects for the formulation of national biodiversity strategies.
(viii) The project Support to the ICZ management of the Uruguayan coast of the Rio de la Plata
(ECOPLATA).
(ix)
The BIOPLATA project.
(x)
The project will be linked with other national initiatives supported by other UN agencies, the World
Bank9 and the Inter-American Development Bank10.
95. The project will strengthen and complement activities that both Parties are developing at present, both
individually as well as in the framework of the two binational Commissions.
96. The project will make a significant global contribution, in several aspects:
i)
It will contribute to establishing binational strategies for environmental management that are
essential to ensure the sustainable development of an area of considerable global significance.
ii)
It will contribute to the conservation and sustainable use of river, marine and coastal biodiversity of
the area.
iii)
It will contribute to establish the bases for the development of regional mechanisms for co-operation
and co-ordination, to reduce the pollution load of the La Plata Basin on the area.
iv)
It will make it possible to know the pollutant load being exported to the South West Atlantic Ocean,
and contribute to reduce it through the development of binational management tools.
5 Projects URU 97/G31 UNDP GEF and URU 97/L01 UNDP European Union, executed by the Programme for
the sustainable development and conservation of biodiversity or the Bañados del Este Biosphere (PROBIDES).
6 This project will develop a TDA that will provide relevant information for the TDA of the Río de la Plata and its
Maritime Front.
7 This is a project to be submitted to GEF in 1998. The implementing agency is the World Bank and the executing
agency is the Secretariat for Natural Resources and Sustainable Development of the Argentine Republic (SRNyDS).
The component on control and prevention of marine and coastal pollution contains elements that are linked with the
Rio de la Plata and Maritime Front Project.
8 This project will establish a regional training centre in PROBIDES and develop a course for the management of
special marine and coastal zones.
9 Particularly the pollution management project (AR-PE-6050).
10 Mainly:
(1) The projects for institutional strengthening of the National Environmental Office of Uruguay and the Secretariat
for Natural Resources and Sustainable Development (SRNyDS) of Argentina.
(2) The project for environmental management of the Matanzas Riachuelo Basin in Argentina.
(3) The programme for fiscal strengthening, institutional reform and investment of the Government of the City of
Buenos Aires (BID AR-218, in the subject of the management of the River coast).
(4) The programme for support to the establishment and operation of a national environmental fund in Argentina
(AR-227).
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v)
It will be a joint environmental management experience, and the lessons learnt may be transferred to
other areas of Latin America and the world.
vi)
The activities undertaken as part of the Project and SAP implementation process will be relevant for,
and replicable by, other international projects. The Project will provide a valuable model, and
become a significant source of experience and inspiration, for integral international management
systems for river and estuarine systems shared by two or more countries, elsewhere in the world.
The signification of the Project as a model is enhanced by the advanced legal framework established
by both coastal countries and the considerable experience in the joint management of the Project
area they have accumulated since the establishment of both binational Commissions, in 1976. In
this sense, the implementation of the Project and the process for the drafting of the SAP will be a
valuable example for other international waters projects.
B.7. SPECIAL CONSIDERATIONS
97. Sustainable livelihoods, The project focuses on environmental conservation in densely populated areas which
depend to a considerable degree on the resources of the Rio de la Plata and its Maritime Front, water supplies
and economic activities. It aims at increasing the awareness of these populations on transboundary issues,
firmly placing the environmental conservation at the centre of development in the project area. It will also
contribute to improve living conditions by providing a range of economic and recreational options.
98. The project will facilitate active participation of women. Project implementation will involve a number of
women professionals and scientists. Also urban and rural economies, and therefore women, of the area will
benefit from the results of the project.
99. As mentioned before in B.5.2., Civil society including local, national and international NGOs will have
relevant participation in the project. Also Private sector will be involved in the preparation of the TDA and
SAP and in particular the strategy and action plans for pollution control. Also the investment plan of the project
would try, as much as possible, to offer opportunities for private investment, both local and international.
100. Technical cooperation between Argentina and Uruguay and other countries of the La Plata basin will be
enhanced. The project will allow active participation and interaction between scientists and governmental and
non-governmental institutions of the area as well as with international institutions and NGOs.
B.8. SUSTAINABILITY
101. Institutional sustainability is ensured through the operational mechanisms of the two Commissions. For the
execution of the Project, the Commissions have established an agreement formalising joint operations by a
CARP-CTMFM Consortium. During the execution of the Project, a decision will be made on whether this will
be sufficient for the SAP implementation phase or if a different structure is needed. The development and
implementation of the SAP would be a joint undertaking by multiple executors, considering the levels and
responsibilities of the authorities and organisations involved (i.e., local, national, binational and international).
102. Financial sustainability will be ensured through several mechanisms. The Commissions will increase their
budget by approximately 25% each to cover the costs associated with the new activities they will be taking on
(e.g., maintaining and updating the management information system). It is foreseen that the operation,
maintenance and updating of the GIS and Virtual Centre of Information will, in the long-term, be financially
self-supporting. Training activities for operators and user groups will be supported, in the mid-term, by cost
recovery.
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103. Finally, as part of the preparation of the SAP: (i) cost estimates for baseline and additional SAP
interventions will be prepared, (ii) SAP implementation mechanisms determined, and (iii) political and financial
commitments will be leveraged. SAP implementation activities would be inserted into budgetary decision and
investment portfolios of national and local government. Emphasis will be placed on ensuring that SAP funding
mechanisms proposed and selected are feasible and equitable.
104. The execution of this project will involve the participation of donors. It has been
proposed that the fourth public awareness event be entitled: "The economics of
environmental management in the Rio de la Plata and its Maritime Front" and that it focus on
the economic implications of transboundary environmental management of the area,
including pollution reduction and management, and the instruments required to sustain
efficient environmental management of this transboundary resource. Finally, a donor meeting
will be arranged in year four. This will stimulate the interest of the broader donor community
to finance the implementation of the SAP.
C. DEVELOPMENT OBJECTIVE
105. Prevent and, when necessary, mitigate the degradation of the transboundary
environmental resources of the Rio de la Plata and Maritime Front and enhance the
sustainable use of these resources by the inhabitants of both countries.
106. Within the context of this development objective, the central purpose of the project is to develop a
Strategic Action Programme (SAP) for the Rio de la Plata and Maritime Front that once implemented will
mitigate transboundary environmental problems and facilitate the sustainable use of resources. This SAP will be
developed through a participatory process, will build on a solid Transboundary Diagnostic Analysis, and will
include clear mechanisms for its implementation in a phase following this project. Whilst there is one clearly
defined project purpose this will be attained through three different steps that constitute separate project
components. Each of these will contribute with vital information and processes to achieving the overall purpose
but also have stand-alone value producing specific outputs and clearly measurable impacts. Each component
corresponds to an immediate objective and each have specific outputs and activities.
D. IMMEDIATE OBJECTIVES OUTPUTS AND ACTIVITIES
IMMEDIATE OBJECTIVE 1
Develop and approve a Transboundary Diagnostic Analysis (TDA) that will fill relevant information gaps and
provide key data and tools for the definition of a Strategic Action Program for prevention and mitigation of
transboundary environmental problems in the Rio de la Plata and Maritime Front.
107. This immediate objective or component will focus on the preparation of a Transboundary Diagnostic
Analysis (TDA). Whilst information sources, needs, gaps and barriers were identified during the PDF phase,
further effort is required to obtain priority information needed to understand the functioning of the system, the
key causes and effects of transboundary degradation (particularly pollution) as well as to integrate it into
preparation of the SAP. Most of the information available on the area (i) is scattered, (ii) is limited to a few
topics, especially fisheries biology and (iii) has a limited spatial and temporal coverage. There are practically no
interdisciplinary studies. A robust TDA is necessary in order to define the baseline resource condition and
trends, prioritise transboundary problems, and specify jurisdictional and national interventions to address them
under the SAP. Co-financing for TDA preparation has been leveraged from the Commissions, the IADB and the
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University of Hamburg. Some of these moneys will be used to obtain oceanographic and meteorological
information to understand the circulation of currents within the system.
108. The first step of this component will establish mechanisms for co-ordination and
cooperation among participating entities, additional sources of information will be identified
and the methodology to be followed for TDA finalisation will be agreed upon among the
participating entities. An agreement will be signed between the co-operating entities and the
project to define the obligations and contributions of each party and the constitution of the
Working Groups that will develop and finalise the components of the TDA. Since activities
both upstream and downstream of the Rio de la Plata and its Maritime Front project system
boundary may impact or be impacted by activities in the Rio de la Plata and its Maritime
Front, arrangements will be made for co-ordination of the TDA with similar analyses
underway in other projects in the region with transboundary relevance to this project; in
particular with the WB/GEF and UNDP/GEF projects in Patagonia, the UNEP/GEF projects
in the Pantanal and Upper Paraguay River Basin and Bermejo River, the UNDP/GEF project
in the Bañados del Este biosphere reserve (PROBIDES) and the ECOPLATA and
BIOPLATA projects.
109. The second step of the TDA component will include a range of assessments to be made simultaneously,
covering transboundary elements of key biophysical issues as well as cross-cutting social, economic,
institutional and legal issues. Each of these diagnostics will be developed by a Working Group formed by
specialists from both countries including law, economics and the social sciences in order to identify legal,
economic and social root causes. The assessments will be effected for the most part through compilation,
systematisation and analysis of existing information. In selected areas, specific studies needed to fill priority
information gaps -- will be executed as part of the assessments of water and sediment pollution, pollution
effects on biodiversity, biology of key species and accumulation of pollutants in the trophic chain.
110. Amongst these assessments the survey of river and marine biodiversity is of particular relevance to perceive
the effects of environmental changes and transboundary pollution on the biological diversity of the area. It will
make it possible to (i) integrate existing information, (ii) identify areas requiring special attention, (iii) identify
key species and indicators and (iv) define priority research and monitoring activities in the project area. Short,
specific studies will be carried out, where necessary, to fill knowledge gaps. A population biology assessment
of fisheries resources is also of particular importance since it will enable the integration and systematisation of
existing information aimed at identifying the location of important feeding, breeding and nursery grounds and
perceive the effects of exploitation, habitat modification and transboundary pollution on living marine resources
in the Plata/Maritime Front. Specific targeted studies will be carried out, as necessary, to define such areas.
111. The third step of the TDA preparation will consolidate, analyse and present the results of the previous steps to
independent specialists for evaluation. Specialists from the other upstream and adjacent GEF projects in the
region will participate in this analysis to ensure the integration of information and a holistic analysis of the
priority transboundary problems in a basin-wide context so that SAP actions proposed under each project are
co-ordinated and complementary.
112. The fourth step of the TDA component will produce an integrated information system to facilitate the
integration of the results of the assessments and the consolidation in a TDA as well as providing an important
tool for the preparation and implementation of the SAP. This system will consist of a geographic information
system, a management information system and a virtual centre of information (VCI) that will allow the
compilation, systematisation and processing of information about the area and present or display it in accessible
formats for the Consortium and key national and local institutions and stakeholders.
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113. The total cost of this TDA component is US$ 4.5 million of which GEF will contribute approximately
US$2.5 million for TDA work, and co-financing for this component will amount to US$2 million. In order to
accomplish this immediate objective the project will deliver the following specific products or outputs by
undertaking the series of activities described below under their respective outputs.
Output 1.1. Methodologies, approval processes and cooperation and co-ordination agreements for the
development of the TDA defined and endorsed by stakeholders including bi-national Commissions and local
and national institutions
Activities for output 1.1
1. Identify existing groups related to the evaluation of transboundary environmental problems and relevant issues
and evaluate their potential inputs to the TDA process. Using this information identify the key members of the
working groups and organisations that will be responsible for the assessments to be undertaken in output 1.2.
2. Design and approve co-operation mechanisms for the development of the TDA including national institutions,
bi-national commissions and relevant projects in the region. This will include drafting outline agreements,
discussion and evaluation in workshops and the official signing of agreements that establish specific areas and
mechanisms of co-operation including the exchange of existing information and the acquisition of new data to
fill critical gaps. The relationship of the working groups for the assessments with these co-operation mechanism
will be formalised at this point.
3. Draft a proposal for the methodology for TDA development to ensure that existing information is adequately
incorporated, information gaps are filled and final reports are produced in a format that will readily serve for
developing the Strategic action Plan (SAP). This methodology will also include a detailed description of the
TDA approval process and guidelines for incorporation into a SAP
4. Evaluate the draft methodology proposal with international experts
5. Form a TDA group consisting of representatives of the groups that will be responsible for the assessments
within the TDA preparation. Participation will be depend on signed formal institutional arrangements of co-
operation
6. Evaluate, refine and adopt the methodology proposal with the TDA groups and inputs from the international
experts for the TDA
Output 1.2. Critical information gaps filled by the compilation, integration and assessment of existing
information and selected generation of missing data on transboundary elements of at least nine key issues
related to water and sediment pollution and river and marine biodiversity
Activities for Output 1.2.
1. Identify sources of existing information building on the co-ordination mechanisms determined in output 1.1
2. Compile, integrate and evaluate existing information on the degradation of transboundary environmental
resources including issues related to water and sediment pollution and biodiversity.
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3. Identify critical information gaps for completing the TDA, outline minimum data requirements to fill gaps and
realize studies required to generate this priority information. Where required these studies will form part of the
assessments describe in the following activity.
4. Develop full assessments of the transboundary elements of key technical subjects critical to the mitigation of
environmental resources in the project area using the integrated existing information and priority data generated
from commissioned studies. These assessments will adop an ecosystem approach, will be developed
simultaneously by different multidisciplinary working groups formed by specialists from both countries, and
will include a full diagnosis of present conditions and predicted future scenarios. Assessments of the
transboundary elements of at least the following subjects will undertaken:
Assessment of Circulation Patterns in the Rio de la Plata and its Maritime Front. This assessment
will provide valuable information for a range of the following assessments on key biophysical issues.
For example, a more complete understanding of circulation patterns is vital for the full assessment of
water pollution levels and trends. The assessment will include compiling and integrating existing
information on circulation and dynamics of the waterbody and oceanographic and meteorological
information from local and international sources. This will be used to identify and develop a model that
will accurately project circulation patterns and provide a deeper understanding of the circulation in the
Rio de la Plata and its Maritime Front with particular reference to the influence of meteorological
factors. This will be used by the following assessments for detailing evaluations and predictions as well
as providing a key input for the development of the SAP. The assessment will be undertaken in co-
operation with the Naval Hydrographic Service of Argentina (SHN) and the Oceanographic,
Hydrographic and Meteorology Service of the Navy of Uruguay (SOHMA).
Water Pollution Assessment including the analysis of pollution loadings from the Plata Basin,
secondary basins; urban centres; ports; marine activities; loading activities and shipping accidents
Sediment Pollution Assessment including the analysis of the polluted sediments loadings from the
Plata and secondary river basins; the distribution of contaminated sediments in the area; an analysis of
the processes by which sediments trap contaminants; and the effects of dredging in terms of sediment
resuspension and location and impact of dredged sediment tipping.
Pollution by Hazardous Residues Assessment including an evaluation of the existing activities and
structures for hazardous residues management and disposition present in the project area.
River and Marine Biodiversity Assessments. An ecosystem approach will be used for the assessment
instead of the more common taxonomic approach Therefore the assessment will include the
identification of keystone and indicator species and habitats; population biology evaluations for key
species; the identification of critical feeding grounds and breeding areas; the definition of biodiversity
monitoring requirements; the identification of critical information gaps and the generation of priority
information for a complete biodiversity assessment. This activity will be co-ordinated with on-going
initiatives in both countries, including formulation of national biodiversity strategies, the UNDP/GEF
project for the consolidation of the Bañados del Este Biosphere Reserve (PROBIDES), the BIOPLATA
and ECOPLATA projects and will have the technical support of the IUCN.
Introduction of Exotic Species Assessment including the identification of exotic species currently
present in the project area; the evaluation of the sources of introduction; the quantification of the
environmental and economic impact of these species; and the prediction of future impacts under
different management scenario
Red Tides Assessment including the identification of organisms that cause red tides and the evaluation
of impact on ecosystems and on the economy of the region. Much of this assessment will draw on
information being produced through research and monitoring actions of INIDEP ands INAPE
Population Biology Assessment of Fisheries Resources including the location of important
feeding, breeding and nursery grounds and the evaluation of exploitation, habitat modification and
transboundary pollution on living marine resources in the area. This assessment will be prepared by the
fisheries institute of both countries (INAPE and INIDEP) with the support from universities and co-
ordinated with ECOPLATA activities.
Assessment of Pollutants Accumulation in the Trophic chain including an analysis of major trophic
chains; an evaluation of the accumulation of pollutants within these; and targeted studies where
necessary for determining pollutant levels.
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Undertake two complementary cross-cutting assessments that will provide supportive information to
all the assessments undertaking in activity 4 and provide a vital information for the integration of
information and preparation of the SAP. These cross-cutting assessments will include institutional,
social and economic and legal assessments. These will be used to identify the root causes and key
consequences of crucial transboundary environmental issues and the needed policy, regulatory and
institutional reforms to adequately redress these problems. They will also provide important
information to detail priority activities to be included in the SAP and prepare mechanisms for
enhancing the effective bi-national management of the waterbody
Output 1.3. Solid knowledge base developed to support the preparation of the SAP and its
implementation, including the integration of the assessments produced in Output 1.2, the
definition of a preliminary zoning using ecological charts and the drafting, approval and
dissemination of a formal TDA report in a format useful for SAP
Activities for Output 1.3.
1. Consolidate, integrate and analyse the information produced in output 1.2 and incorporate
this into the Integrated Information System, (IIS), to be developed under output 1.4, as this
becomes operational.
2. Prepare further elements that will enrich the TDA and provide valuable information for the
preparation of the SAP. This will include the definition of ecological charts using the
Geographical Information System (GIS) system to be developed as part of the IIS (see output
1.4.). The GIS will facilitate the identification of sensitive areas for navigation and other
uses thus feeding into the development of ecological charts and the definition of a
preliminary zoning of the area. This zoning will be analysed, revised and adopted by the
commissions and provide a vital component on which the SAP can be based.
3. Prepare a draft TDA report in a format that is useful for the preparation of the SAP. This will
include an integrated diagnosis of present conditions and future and scenarios as well as
individual components providing more in-depth information on specific issues. It will also
include outlined recommendations for priority actions and management requirements to be
included in a program to mitigate the degradation of transboundary environmental resources
and an economic appraisal of the cost these actions.
4. Circulate the draft TDA to independent specialists for evaluation including those involved
with other up-stream and adjacent GEF projects to ensure the integration of information and
a holistic analysis so that the SAP actions proposed each project are co-ordinated and
complementary. The consolidation of the recommendation of these evaluators will be
complied in a seminar to be held at the beginning of year 3 involving scientists and decision-
makers from riparian countries.
5. Fine-tune the TDA report and submit for approval following the approval procedures
established in Output 1.1. Final approval of the TDA will be the responsibility of the
Commissions. and is expected by the middle of the third year of the project.
6. Disseminate the TDA report through the IIS
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Output 1.4. Integrated Information System (IIS) developed and operational as a management tool to facilitate
the application of the TDA components to decision-making regarding transboundary waterbody management
and consequently the development and implementation of the SAP for the Rio de la Plata and Maritime
Front
Activities for Output 1.4
1. Assess key information needs for decision-makers for the SAP preparation and its eventual implementation by
undertaking an end-users needs assessment of local, national and bi-national authorities, identifying the degree
of detail required by each and formats that will be accessible to each level. This will include not only
information needs for technical data and its integration into decision-making but also the that required for
management related actions and decision-making processes.
2. Evaluate the availability of required information using the results of the end-user assessment and determine the
capacity of each level to set-up and maintain an IIS with at least three separate components Geographic
Information System, a Management Information System and a Virtual Centre of Information.
3. Develop and make operational, a Geographic Information System (GIS) on a pilot scale to integrate
knowledge generated through the TDA assessments as well as other information available in existing GIS and
related systems. This system will be designed to ensure compatibility, and hence data-sharing, with other GIS
systems in the region, particularly those of ECOPLATA (GIS of the coastal zone of Uruguay on the Rio de la
Plata) and PROBIDES (GIS for land use planning that includes the coastal lagoons in the Rocha Department
Uruguay). The GIS activity will start by undertaking a study to define a system that is compatible with existing
GIS and the scales and scope of analysis to be provided. This will be followed by the acquisition of satellite
and cartographic materials and the development of the system itself (operational algorithms etc.). A third step
will be the demonstration of the pilot GIS including the production of basic information such as ecological
sensitivity maps. The fourth step will be the development of operational manuals and the definition of actions
required to expand the pilot-scale to full-scale under the SAP implementation. Finally this GIS related activity
will also include the careful definition of financial and institutional mechanisms to support the long-term
operation of the GIS
4. Develop and implement a Management Information System (MIS) to produce processed information for
decision-making and the effective formulation of the SAP including joint plans for transboundary pollution
reduction. This system will be developed focusing on the CARP-CTMFM and their needs for well defined
decision-making processes on binational issues. It will build on the end-user needs assessment undertaken in
activity 2 and on an evaluation of the capacity of the Consortium to sustain a MIS. The development of the
MIS will include the design of the system and its implementation on a pilot-scale to allow for fine-tuning.
Implementation over the complete system will be supported by the development of manuals and guidelines, and
the definition of funding sources to cover long-term operational costs.
5. Design and set-up a Virtual Centre of Information (VCI), that will serve to compile, integrate, systemise and
make accessible information on the project area through INTERNET to a wide range of end-users and
stakeholders in the project area. The development of this system will include the design for different data bases
to be accessible via the centre such as bibliographic information, images and cartography, maritime traffic and
others that each requires specific data management techniques. It will also include an electronic forum on
pollution sources, causes and effects in the Plata Basin to with input from GEF and other projects upstream with
transboundary relevance. The design stage will be followed by the implementation firstly at a pilot scale during
the second year of the project and later on a full scale in the third year of the project. During the remaining two
years the full scale CIV will be up-dated with information prepared in the other components of the project.
Financial and institutional mechanisms for permanent up-dating and maintenance will also be secured defined
during the final years of the project.
6. Develop and deliver training programmes for end-users to ensure the effective use of the IIS including fund
management and planning for securing long-term funding of maintenance and up-dating.
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IMMEDIATE OBJECTIVE 2
Prepare and adopt a Strategic Action Programme including policy, legal and institutional
arrangements and priority investments for the Rio de la Plata and its Maritime Front with
specific strategies, targets and implementation mechanisms for pollution prevention,
reduction, control and monitoring and the protection and conservation of biodiversity.
114. This second immediate objective or component of the project will focus on the preparation of a Strategic
Action Program (SAP) for the Rio de la Plata and the Maritime Front. As a result of the PDF phase it is
foreseen that the SAP will concentrate on the priority transboundary issues of (i) prevention, reduction and
control of pollution from land-based sources and aquatic activities and (ii) protection and conservation of
biodiversity and key areas in the lifecycle of important living resources. Other elements would be incorporated
during project execution as a result of finalisation of the TDA and other project activities. The SAP will contain
(i) a binational strategy for pollution reduction, control and monitoring for the Rio de la Plata and its Maritime
Front; (ii) pollution reduction action plans for each of the principal jurisdictions and key pollution sources
through which the overall pollution reduction strategy will be implemented; (iii) binational environmental
impact protocols; (iv) regional, national and local plans for biodiversity conservation; (v) a budget and priority
investment plan, involving IFI's such as IADB and/or the World Bank, to guide future investments (public or
private; national, regional or international) in the area; and (vi) an institutional structure for co-ordination,
monitoring and follow up of SAP implementation.
115. The total cost of the SAP component is US$ 2.2 million. The GEF will contribute US$1.6
million, and co-financing amounts to US$ 0.6. In order to accomplish this immediate
objective the project will deliver the following specific products or outputs by undertaking
the series of activities described below under their respective outputs.
Output 2.1. Capabilities enhanced for the strategic planning of transboundary
environmental management through the preparation of bi-national environmental tools
including targets for water and sediment quality, national and jurisdiction pollution
control strategies and environmental impact assessment protocols
Activities for Output 2.1.
1. Develop targets for the Rio de la Plata and its Maritime Front water and sediments quality
and pollution reduction based on the results of the TDA. This will focus on high priority
pollutants and include consideration of the regulations in force in both countries; the capacity
of key national and local authorities and stakeholders to achieve the targets; the economic
and social options and implications of the activities for target achievement; and the bio-
physical characteristics of the environments of the Rio de la Plata and its Maritime Front.
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The targets will be developed by a group of specialists that will prepare a proposal to be
discussed through a workshop with a broader range of specialists. Based on the results of
this workshop, adjustments to the targets will be made before submitting to the Commissions
for formal approval and adoption. Once adopted, these jurisdictional and pollutant-specific
water and sediment targets will be disseminated to relevant stakeholders in the project area
through a range of communication and dissemination methods including tools within the IIS
developed in Output 1.4.
2. Develop a set of economic and financial instruments to promote and facilitate actions for
pollution reduction and control in the long term. For example, specific tax adjustments to
compensate for pollutant-load discharges and incentives for clean production mechanisms
linked to green certificate schemes.
3. Prepare a strategy to facilitate co-ordination and co-operation between both countries for
pollution control in the project area in support of achieving the pollution reduction targets
defined in activity 1. This strategy will be prepared through a process of analysis and
consensus-building involving key local, provincial and national authorities charged with
emissions reductions and stakeholders from both countries. Develop this strategy as national
and jurisdictional control programmes.
4. Develop and agree upon bi-national environmental impact assessment protocols in the
common use area of the Rio de la Plata and its Maritime Front to enable uniform
assessments, facilitate the establishment of common standards, guarantee a holistic vision of
the impacts in the area and mitigation measures required. The diagnosis step of this activity
will be covered by GEF resources and will involve: (i) assessing EIA protocols and
regulations in force in both countries, (ii) assessing protocols and regulations that might be
relevant for the common use area and (iii) preparing a concept paper on the most appropriate
EIA protocols for the area and actions proposed for incorporation into the SAP. Formulation
of the protocol and consensus-building will follow.
5. Define and implement a self-sustained system for the training and certification of specialists
carrying out EIA in the area. The design of a training system will be funded with non-GEF
funds and be developed in co-operation with the TRAINMAR Association for South
America that will deliver the course charging the participants a fee to recover costs.
6. Develop a bi-national biodiversity strategy for the co-ordination and co-operation of actions
to protect coastal and aquatic biodiversity from pollution and to better conserve it throughout
the area. This will build on the results of the TDA and the National Biodiversity Strategies of
the riparian countries and be prepared with the collaboration of relevant national and local
authorities (e.g., DINAMA, SRNyDS), key related projects (e.g., BIOPLATA, PROBIDES)
and organisations that are linked to the subject (e.g., Uruguayan Network of Environmental
NGOs, Vida Silvestre, IUCN). A draft strategy will be discussed and evaluated in a public
consultation. Following this consultation the revised bi-national biodiversity strategy will be
presented to the Commissions for adoption and subsequently submitted to the riparian
country governments for implementation.
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Output 2.2. Framework for the SAP implementation and regional planning and management developed and
approved
Activities for Output 2.2
1. Draft an initial version of the SAP using the results from output 2.1. The SAP will contain a
set of activities aimed at solving the priority transboundary environmental problems of the
Rio de la Plata and its Maritime Front and include at least (i) a binational strategy for
pollution reduction, control and monitoring for the Rio de la Plata and its Maritime Front;
(ii) pollution reduction action plans for each of the principal jurisdictions and key pollution
sources through which the overall pollution reduction strategy will be implemented; (iii)
regional, national and local plans for biodiversity conservation; (iv) an implementation plan
and a budget to guide future investments (public or private; national, regional or
international) in the area; (v) an institutional structure for co-ordination, monitoring and
follow up of SAP implementation.
2. Build consensus on SAP contents and implementing framework by analysing the draft SAP
in bi-national meetings with key stakeholders.
3. Fine-tune the SAP and present it to the Consortium for adoption on behalf of Argentina and
Uruguay and endorsement by the members of the Co-ordination Committee. In addition
each Authority will also endorse the corresponding action plan for its jurisdiction
4. Disseminate the SAP and action plans to the public through a variety of communication and
dissemination media (see immediate objective 3)
Output 2.3 Portfolio of projects identified to operationalise the SAP and negotiation for its financing with
national, bilateral and multilateral public and private sources
Activities for output 2.3.
1. Identify project portfolio to operationalise SAP implementations.
2. Draft a priority investment plan for SAP implementation. This investment planning will be co-ordinated by a
Working Group formed by the Consortium, key national and local authorities (responsible for the
implementation of action plans), the finance or planning authorities of both countries, the IADB, the World
Bank and the UNDP. This will secure the insertion of SAP implementation activities into budgetary decisions
and investment portfolios of national and local governments of Argentina and Uruguay. The investment plan
would try, as much as possible, to offer opportunities for private investment, both local and international.
3. Circulate the investment plan to other international development agencies to identify parties interested in
funding priority components of the SAP and jurisdictional action plans. International Financial Institutions
(IFI's) both public and private, such as IADB and/or the World Bank will be invited to participate in the
preparation and financing of investments addressing the priority transboundary issues identified in the
TDA/SAP process.
4. Review projects with governments and potential donors and officially adopt the priority investment plan by the
Consortium on behalf of Argentina and Uruguay. The finance or planning authorities of the countries will
subsequently incorporate the investment plan into national and local investment plans.
IMMEDIATE OBJECTIVE 3
Strengthen and sustain the SAP implementation framework by increasing the capacity the
of bi-national Commissions and key national and local institutions to implement the SAP
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priority interventions and increasing the level of understanding and participation of key
stakeholders.
116. This third immediate objective or component of the project will focus on Strengthening and Sustaining the
SAP Implementation Framework. As noted previously, a number of barriers exist which prevent the successful
joint management of this international waterbody. These include incomplete knowledge of the Rio de la
Plata/Maritime Front system, poorly informed decision-makers, weakly integrated binational planning, various
institutional weaknesses, limited tools for transboundary resource management, and general lack of public
awareness of the project area's situation. Immediate Objective 3 is designed to overcome many of these barriers
through a suite of capacity building and institutional strengthening activities which will in turn enhance and
sustain the SAP implementation process.
117. Actions will be taken to i) strengthen the bi-national Commissions and key national and local institutions in
both countries in order to prepare and implement the Strategic Action Program of priority interventions; and ii)
increase the level of understanding and participation of key stakeholders in the process of solving priority
transboundary environmental problems in the project area.
118. The analytical capacities of the two bi-national Commissions and key national and local entities will be
strengthened to enable them to formulate the SAP and associated jurisdictional action plans. Emphasis will be
placed on the exchange of knowledge and experience between related initiatives. Capacity building activities
will include: (i) visits to areas where related transboundary environmental and pollution management
programmes have been executed; and (ii) specific training in transboundary environmental and pollution
management to sensitise managers to new management approaches, methods and techniques.
119. Relevant stakeholders will be systematically informed regarding priority transboundary environmental
issues and challenges for pollution reduction in the Rio de la Plata and its Maritime Front. In particular,
communication and dissemination activities will aim at promoting recognition of upriver and downstream
linkages of pollution and other transboundary problems in the Rio de la Plata and its Maritime Front. All
communication and dissemination activities will be co-ordinated with other projects in the area to ensure
programmatic congruity.
120. Finally, working in concert with appropriate scientific and technical institutions and government agencies
in the region, in line with emerging GEF policies the project will develop a set of 'indicators' to track the short
and long-term impacts of this and other related projects in the Río de la Plata and its Maritime Front. Key
indicators will include process (e.g. policy, legal, institutional, etc. reforms), stress reduction (e.g. reduced
pollutant loads, fishing pressure) and environmental status (e.g. cleaner waters/sediments, restored habitats,
sustainably managed fisheries). The Project will take into account indicators developed by several competent
organizations such as the World Bank.
121. The total cost of the strengthening the SAP implementation framework is US $2.1 million. The GEF
contribution to the component is US$ 1.6 million, and co-financing will amount to US$ 0.5 million. In order to
accomplish this immediate objective the project will deliver the following specific products or outputs by
undertaking the a series of activities described below under their respective outputs.
Output 3.1. Collaborative framework for co-operation and co-ordination for the control
and management of transboundary problems in the area.
Activities for Output 3.1
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1. Set up working group made up of the CARP-CTMFM Consortium and key binational, national and local
authorities, national environmental authorities, with assistance from specialists on institutional arrangements for
co-operation and environmental management.
2. Identify options and develop institutional arrangements for collaborative co-operation and co-ordination.
develop mechanisms and agreements for the implementation of the SAP at national and jurisdictional levels
based on the institutional analysis prepared as part of the TDA.
3. Adopt collaborative framework
Output 3.2. Enhanced capacity of the Commissions and key national and local entities for
SAP preparation and regional management of priority transboundary issues.
Activities for Output 3.2
1. Define key capacity building activities based on the institutional analysis of the TDA..
2. Develop and implement a programme of exchanges to areas where related transboundary
environmental and pollution management programmes have been executed.
3. Develop and implement specific training in transboundary environmental and pollution
management to sensitise managers to new management approaches, methods and techniques.
4. Develop and implement a programme to strengthen the analytical capacities of the two bi-
national Commissions and key national and local entities will be strengthened to enable them
to formulate the SAP and associated jurisdictional action plans.
Output 3.3. Stakeholders duly informed on priority transboundary environmental issues
and challenges for the management of the area.
Activities for Output 3.3
1. Increase the general awareness of stakeholders regarding priority transboundary environmental issues and
challenges for pollution reduction in the Rio de la Plata and its Maritime Front through an initial awareness
programme to be implemented in the first year. This will be delivered through messages that will be transmitted
through low cost mass media (e.g. advertisements on the radio, press releases and interviews) and through
community events, which will be organised in collaboration with local organisations. Emphasis will be placed
on promoting recognition of upriver and downstream linkages of pollution and other transboundary problems in
the Rio de la Plata and its Maritime Front.
2. Develop and implement a communication strategy for the project to complement and deepen the general
awareness programme of activity 1. This will be undertaken from the second year onwards and will have a
wide scope and degree of penetration. It will be based on the voluntary participation of municipalities and other
entities (including NGOs) in both countries. It is anticipated that the project will develop messages and other
material, and that the municipalities and entities in the countries will cover the costs of transmission. In this
way, the entire project area will receive coherent messages.
3. Build-up awareness on specific issues by promoting a series of community events, during years 2 to 4, such as
beach clean-ups and celebration of the day of the oceans, involving local participation and contributions.
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4. Organise opinion forming events. Four high level events will be organised, with the objective of focussing
attention on priority transboundary issues identified during the TDA phase. These events will assemble relevant
decision-makers and resource managers to present and analyse issues relevant for the preparation of the SAP
and associated jurisdictional action plans.
5. Hold four exchange seminars to present, analysis and discuss the results of the different elements of the project
with scientists and decision-makers. These seminars will take place in years 2, 3 and 4. Practitioners and the
family of GEF and other projects working on transboundary problems and solutions in other areas of the Plata
basin and Southeast South American Shelf Large Marine Ecosystem will be encouraged to also present their
results in these seminars to facilitate the initiation of basin-wide understanding, co-operation and co-ordination.
These seminars will complement the electronic forum on transboundary issues in the Plata basin to be
established under output 1.4. to form a basin-wide information sharing and exchange mechanism.
Output 3.4. International waters indicators developed to monitor the status of the Rio de la Plata and its
Maritime Front to facilitate evaluation of project impact as well as over the long-term SAP implementation
Activities for Output 3.4.
1. Develop a set of 'indicators' to track the short and long-term impacts of this and other related projects in
Plata/Maritime Front, drawing on information from other international water projects, relevant initiatives in the
project appropriate scientific and technical institutions and government agencies in the region. Key indicators
will include process (e.g. policy, legal, institutional, etc. reforms), stress reduction (e.g. reduced pollutant loads,
fishing pressure, etc.), and environmental status (e.g. cleaner waters/sediments, restored habitats, sustainably
managed fisheries, etc.).
2. Use these indicators to monitor the impact of the present project and that of other relevant projects in the area.
3. Incorporate these indicators into the IIS system and monitoring programme designed for the SAP
implementation this contributing to the overall evaluation of the impact of the SAP in the long-term.
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E. INPUTS
E.1. INPUTS IN-KIND PROVIDED BY THE GOVERNMENTS
a) National
Personnel.
Scientists, technicians and support staff from INIDEP, INAPE, SOHMA and SHN.
Managerial, technical and support staff from CARP and CTMFM.
b) Office
space.
Office space for the Project Implementation Unit.
c) Infrastructure
Equipped laboratories in INIDEP, INAPE, SOHMA, SHN, UMP, UR and UP.
Equipped research vessels of INIDEP, INAPE, SOHMA and SHN.
Computer networks in CARP and CTMFM
d) Subcontracts
Communication strategy, costs of transmission of messages through mass media by municipalities,
governmental organizations and NGOs of both countries.
E.2. INPUTS PROVIDED BY UNDP
As described in sections J below, UNDP will provide the following inputs:
a) International consultants (see annexes IV, V and VI)
b) National consultants (see annexes IV and V)
c) Support staff (see annexes IV and V)
d) National and international Travel
e) Subcontracts and cooperation agreements11
f) Training and meetings
g) Equipment (see annex VIII)
h) Miscelaneous
The above mentioned inputs will be covered with GEF funds and cost-sharing contributions from the Governments
of Argentina and Uruguay and other donors.
The Governments of Argentina and Uruguay will provide funds for TDA report approval and dissemination, SAP
formulation, and strengthen and sustain SAP implementation.
IADB will provide funds for the cross-cutting assessments and the integration of economic and financial instruments
in the SAP.
Hamburg University / BMBF (Germany) will provide funds for the TDA.
Dalhousie University / CIDA (Canada) will provide funds for the TDA.
IFREMER / French Environment Fund (France) will provide funds for the TDA.
IUCN will provide funds for SAP formulation
11 This refers to the agreements with cooperating governmental and non governmental organisations as listed in the
annexe VII.
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IDRC (Canada) will provide funds for the Integrated Information System.
Private sector contributions and other sources for strengthen and sustain SAP implementation.
E.3. INPUTS PROVIDED BY PARALLEL COFINANCING
Certain pieces of equipment will be obtained through parallel co-financing, as part of the requirements for activity
1.2.4 "Assessment of circulation patterns in the Río de la Plata and its Maritime Front" (see Annex VIII). In this
respect the Project establishes a logical sequence, which will be followed during its implementation stage. This
point was stressed during the second meeting of the Project interim Technical Advisory Group (May 1999). In
principle, the critical information gaps will be filled by the compilation, integration and assessment of existing
information. However, it is likely that it will become necessary to generate data on selected aspects, relevant for the
completion of the TDA and the preparation of the SAP. The true magnitude of this task will only become evident,
with a reasonable degree of certitude, at some point after the initiation of Project activities. Furthermore, the task of
collecting data will continue over a longer period of time, after the termination of the present Project (probably as
part of a SAP implementation activity).
The opportunity and procedure for these purchases will be coordinated with the Parties, including in what refers to
potential sources of parallel cofinance, taking into account their existing projects or those under negotiation, in
order to ensure an optimum allocation and employment of available resources.
F. RISKS
122. During the preparatory phase, a FODA analysis was used to identify the project's strengths, opportunities,
weaknesses and risks. The proposal incorporates activities to overcome the greatest extent possible, the weakness
and risks identified. These include:
(1) The Commissions have limited experience in addressing transboundary environmental management issues,
particularly pollution. The Commissions' work has previously concentrated on the management of fisheries
resources and infrastructure works. The Commissions recognise the need to direct joint efforts towards
integrated environmental management of the area. To lessen this risk, close co-operation with national and
local authorities and institutional strengthening activities have been incorporated into the project, and will
enhance capacity to prepare and implement the SAP.
(2) The Commissions have different management responsibilities. The responsibilities of CARP concerning
pollution and formulation of management plans are not as broad as those of CTMFM. This subject was
analysed by both Commissions during the PDF. The Treaty foresees that other functions may be entrusted
to the Commissions. For this reason, it would be feasible to bring into line the functions of both
Commissions. This subject is on the agenda of CARP.
(3) The authorities of the countries may delay implementation of SAP actions. The Commissions' areas of
responsibility do not encompass some of the sources of pollution that are affecting the area. In such cases,
the adoption of measures will require the collaboration of local, provincial, departmental, or national
authorities. There are a great number of authorities involved, each with their own agenda and
implementation priorities. The risk is that authorities may delay interventions aimed at addressing the
recommendations generated by the project. In order to minimise it, the following actions have been
incorporated:
(i) The Consortium has established a Project Co-ordination Committee (see implementation
arrangements) for the co-ordination of activities among bi-national, national and local authorities in
preparation of the TDA and the formulation, adoption and implementation of the SAP.
(ii)
The Consortium has also established a Technical Advisory Group in order to optimise the co-
ordination at the implementation level with scientific and technical organisations, the private sector
and the NGOs.
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(iii) The SAP will be endorsed by the agencies represented in the Co-ordination Committee, which
includes the Finance and Planning authorities of the Parties. Each authority will also endorse the
action plan for its jurisdiction.
(iv)
The preparation and analysis of all project products will be made by means of open and participatory
mechanisms. Inter-sectoral Working Groups will be established to guide the processes and analyse
the results.
(v)
The direct participation of local governments and entities in the two countries will be actively
promoted. This will contribute to the dissemination of information to a wider constituency, and
placement of transboundary environmental issues on the agenda of the entities with responsibilities
in the area.
(4) Information of relevance for the Project is dispersed. In the workshop in Mar del Plata, several Working
Groups mentioned the difficulty of accessing information as a management constraint. To reduce this risk,
activities to foster linkages between users of information and agencies responsible for data gathering and
storage have been incorporated into the design of the project
G. PRIOR OBLIGATIONS AND PREREQUISITES
123. Prior obligations: There are no prior obligations.
124. Prerequisites:
a) The budget of the Binational Commissions will include the contribution of the Governments of Argentina
and Uruguay to cofinance the Project on a cost-sharing basis.
b) The Governments of Argentina and Uruguay will make available to the Project the office space required for
the operation of the Project Implementation Unit.
c) The Governments will make available to the Project the equipment and other inputs listed as in-kind
contributions to the Project.
d) The Governments will make available to the Project the technical and support staff listed as in-kind
contributions to the Project.
H. PROJECT REVIEW, REPORTING AND EVALUATION
125. The UNDP Office in Montevideo will be responsible for the follow up and monitoring of the project, and will
organise evaluation activities. The Project Implementation Unit will prepare half-yearly reports. At the end of
each year, a progress report and financial audit will be prepared, and submitted to all members of the
Consortium Executive Board, Project Co-ordination Committee, UNDP and cofinancing agencies for review.
Meetings will take place at least once a year to review the status of implementation.
126. At the end of year 2, a mid-term independent assessment will be made, carried out by specialists selected by
UNDP-GEF. This will include: an assessment of (a) the outputs generated, (b) the processes used to generate
them and (c) project impacts using indicators included in the logical framework matrix (Annex II). The review
would provide recommendations to optimise project delivery. In the last year, a final independent assessment
will be made, and its report will be part of the final project report.
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127. Indicators developed under the log framework matrix will be used for the monitoring process. These will be
developed in more detail by the Project Implementation Unit during the first semester of the project. Further
indicators will be added to the monitoring system as the set of 'indicators' for international water projects is
developed under output 3.4 of the project. These indicators will be developed in concert with appropriate
scientific and technical institutions and government agencies in the region and in line with GEF policies. They
will enable the evaluation of the short and long-term impacts of this and other related projects in the
Plata/Maritime Front.
128. The follow up and evaluation of each product will be carried out as follows:
(i).- each working team will draft a baseline report outlining the situation at the beginning of the
intervention;
(ii)
the working teams will draft two reports (middle of the term and final of the term) which will be
evaluated by the executing unit and outside experts. The reports will employ the indicators presented in
the logical framework matrix (Annex III) in order to show the degree of advance being made in the
process of attaining the specific objectives.
129. The monitoring and evaluation of the environmental management communication and dissemination activities
and of the binational biodiversity strategy have some peculiarities:
(i).-
The management communication and dissemination activities will have several evaluation
instances:
(a).- the activities aimed at increasing awareness will be executed between the first and second
year and will have their own evaluation, at an intermediate stage and at the project end.
(b).- the implementation of the communication activities will be subject to external evaluation each
semester.
Opinion surveys will be staged once a year, which will serve to monitor the penetration of the messages. The
evaluation reports will be analysed together with those involved in the activities.
(ii).-
At the end of year 3, an external team will evaluate the biodiversity strategy implementation level.
The reports will detail the strategy implementation level and the outcomes deriving from its
implementation.
I. LEGAL CONTEXT
130. The present Project Document is the instrument refered to as such in article I, paragraph 1 of the Standard
Basic Assistance Agreement between the Government of the Republica Argentina and the United Nations
Development Programme (UNDP), signed by the Parties on 26 February 1985 and approved by Law 23.396 of
10 October 1986; and Article 1 of the Standard Basic Assistance Agreement between the Government of the
República Oriental del Uruguay and the United Nations Development Programme, signed by the Parties on 12
December 1985 and approved by Law 15957 of 2 June 1988.
131. The following types of revisions to the present Project Document may be made with the signature of the
Resident Representative of UNDP only, provided that Resident Representative is assured that the other
signatories of the Project Document have no objections to the proposed changes:
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a) Revisions of any of the Annexes of the Project Document or additions to them.
b) Revisions which do not involve significant changes in the immediate objectives, outputs or activities of the
Project, but are caused by the redistribution of agreed inputs or increments in the costs.
c) Mandatory annual revisions through which actual expenditures incurred in a calendar year are recorded
and resources are transferred to future years to finance agreed costs.
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J. BUDGET
a) Budget by objectives and outputs (for details see Annex XI).
Project objectives and outputs GEF
Cofinancing
Total
Objective 1. Transboundary Diagnostic Analysis
Output 1.1. Methodol., approv. Process & coord. agreem. for TDA preparation
191,265
67,000
258,265
Output 1.2. Critical information gaps filled
1,632,921
*1,242,897 2,875,818
Output 1.3. TDA report approved and disseminated 354,737
103,705
458,442
Output 1.4. Integrated information system (IIS)
283,301
650,000
933,301
Objective 2. SAP
Output 2.1. Capabilities enhanced for strategic planning 881,717
339,894
1,221,611
Output 2.2. SAP & action plans developed and approved 262,151
63,250
325,401
Output 2.3. Portfolio of projects
441,934
200,000
641,934
Objective 3. Strengthen & sustain SAP implementation
Output 3.1. Collaborative framework for management of transboundary problems
included in 1.1.
Output 3.2. Enhanced capacity of Commissions & key nationl and local entities
836,735
200,000 1,036,735
Output 3.3. Stakeholders duly informed of issues
772,530
300,000 1,072,530
Output 3.4. International waters indicators
25,000
25,000
50,000
TOTAL 5,682,290
3,191,746
8,874,036
*Including parallel cofinancing for the amount of US$755.000
- 42 -
b) UNDP budget
BULI
YEARS
T O T A L
1999 2000 2001 2002
11-International Personnel
479.200
Project coordinator
11.01
51.000
72.000
72.000
87.000
282.000
Circulation model specialist
11.02
44.000
44.000
88.000
Consultants (short term)
11.50
TDA methodology
11.51
7.800
7.800
TDA analysis
11.52
15.600
15.600
GIS design & set up
11.53
7.800
7.800
15.600
MIS design & set up
11.54
7.800
7.800
15.600
Pollution reduction & control
11.55
7.800
7.800
SAP methodology
11.56
7.800
7.800
Investment portfolio
11.57
15.600
15.600
EIA protocols
11.58
7.800
7.800
Biodiversity strategy
11.59
7.800
7.800
SAP analysis
11.60
7.800
7.800
17-National Personnel
2.312.000
TDA coordinator
17.01
21.600
43.200
43.200
10.800
118.800
Leg.Framework & inst.coop.spec.
17.02
21.600
43.200
43.200
43.200
151.200
Information specialist
17.03
21.600
43.200
43.200
43.200
151.200
Communication specialist
17.04
21.600
43.200
43.200
43.200
151.200
Biodiversity specialist
17.05
21.600
43.200
43.200
108.000
Population biology specialist
17.06
21.600
43.200
25.200
90.000
Environmental specialist
17.07
21.600
43.200
43.200
108.000
Sensitivity charts specialist
17.08
21.600
21.600
Resource Management specialist
17.09
21.600
21.600
Maritime traffic specialist
17.10
14.400
14.400
Institutional specialist
17.11
28.800
28.800
Social specialist
17.12
28.800
28.800
Economist 17.13
28.800
28.800
Pollution management specialist
17.14
21.600
28.800
50.400
Resource economist
17.15
28.800
28.800
EIA specialist
17.16
43.200
14.400
57.600
Management plans specialist
17.17
32.400
32.400
Investment specialist
17.18
43.200
43.200
Cartographer 17.19
43.200
39.600
82.800
Systems engineer (1)
17.20
18.000
43.200
43.200
104.400
Systems engineer (2)
17.21
7.200
43.200
50.400
Capacity building specialist
17.22
7.200
28.800
36.000
TDA assistant
17.40
14.400
28.800
28.800
72.000
Environmental assistant
17.41
14.400
28.800
28.800
72.000
Fisheries specialist
17.42
14.400
14.400
Legal specialist
17.43
28.800
28.800
2.400
60.000
Pollution specialist
17.44
14.400
19.200
33.600
EIA assistant
17.45
28.800
9.600
38.400
Information assistant (1)
17.46
14.400
28.800
28.800
28.800
100.800
Information assistant (2)
17.47
14.400
28.800
12.000
55.200
Communications assistant
17.48
14.400
28.800
28.800
24.000
96.000
Biodiversity assistant
17.60
9.600
9.600
Population biology assistant
17.61
9.600
9.600
- 43 -
BULI
YEARS
T O T A L
1999 2000 2001 2002
Digitiser (1)
17.62
4.800
9.600
4.000
18.400
Digitiser (2)
17.63
4.800
9.600
4.000
18.400
Circulation specialist
17.81
6.000
12.000
18.000
Circulation specialist (Argentina-1)
17.82
3.600
21.600
18.000
43.200
Circulation specialist (Argentina-2)
17.83
3.600
21.600
18.000
43.200
Circulation specialist (Uruguay-1)
17.84
3.000
18.000
15.000
36.000
Circulation specialist (Uruguay-2)
17.85
3.000
18.000
15.000
36.000
Circulation specialist (assistant 1)
17.86
14.400
14.400
Circulation specialist (assistant 2)
17.87
14.400
14.400
13-Support Personnel
328.800
Administrative assistant
13.01
21.600
21.600
21.600
21.600
86.400
Executive secretary
13.02
21.600
21.600
21.600
21.600
86.400
Secretaries 13.03
12.000
48.000
60.000
36.000
156.000
15-Local Travel
14.000
Tickets 15.01
2.000
2.000
2.000
2.000
8.000
Per diem
15.02
1.500
1.500
1.500
1.500
6.000
16-International Travel
325.000
International tickets
16.01
20.000
25.000
25.000
25.000
95.000
Per diem
16.02
10.000
70.000
70.000
70.000
220.000
Local tickets
16.03
1.000
3.000
3.000
3.000
10.000
20-Subcontracts
3.125.000
Communication strategy and events
21.01
150.000
220.000
220.000
150.000
740.000
Information system and computing
22.01
25.000
50.000
10.000
85.000
23-Legal, econom. & social studies
Legal situation & root causes
23.01
25.000
25.000
Economic situation & root causes
23.02
25.000
25.000
Social situation & root causes
23.03
25.000
25.000
Institutional situation & root causes
23.04
25.000
25.000
Institutional assessment
23.05
50.000
50.000
24-Technical and scientific studies
Circulation patterns
24.01
30.000
30.000
Water pollution
24.02
300.000
300.000
Sediment pollution
24.03
200.000
200.000
Pollution by hazardous residues
24.04
60.000
60.000
River and marine biodiversity
24.05
300.000
300.000
Introduction of exotic species
24.06
20.000
20.000
Population biology of fisheries reso
24.07
200.000
200.000
Pollutants accumulation in trophic
24.08
80.000
80.000
25-Strategies & management plans
Pollution reduction & control
25.01
25.000
50.000
25.000
100.000
Economic & financial instruments
25.02
75.000
25.000
100.000
Binational EIA protocols
25.03
75.000
25.000
100.000
Binational Biodiversity strategy
25.04
75.000
25.000
100.000
26-Prep. of investment portfolio
Preparation of investment portfolio
26.01
60.000
200.000
260.000
27-Monitoring and evaluation
Project assessment
27.01
100.000
100.000
200.000
Communication strategy
27.02
20.000
20.000
20.000
20.000
80.000
International waters indicators
27.03
20.000
20.000
- 44 -
BULI
YEARS
T O T A L
1999 2000 2001 2002
30-Training and meetings
500.000
Group training
32.01
180.000
180.000
In service training
33.01
50.000
20.000
70.000
Seminars and workshops
34.01 20.000 70.000
100.000 60.000 250.000
45-Equipment
455.500
Circulation pattern
45.01
179.000
179.000
GIS 45.02
55.000
55.000
MIS 45.03
53.000
53.000
VCI 45.04
34.000
34.000
Office equipment
45.05
82.500
36.000
16.000
134.500
50-Sundries
279.448
Reports and publications
52.01
26.425
50.000
50.000
100.000
Sundries 53.01
35.448
48.000
48.000
48.000
179.448
54-UNDP Support
54.00 26.875
119.165 79.727 47.898 273.663
273.663
99-TOTAL BUDGET
99.00
8.119.036
101-Government Cost-Sharing
800.000
Government of Argentina
101.01
400.000
Government of Uruguay
101.02
400.000
102-IADB Cost-Sharing
400.000
IADB
Cost-Sharing
102.01
400.000
103-Third party Cost-Sharing
1.236.746
Hamburg
Univ./BMBF
103.01
200.000
Dalhousie
Univ./CIDA
103.02
200.000
IFREMER
103.03
250.000
IUCN
103.04
200.000
IDRC
103.05
40.000
Private Sector / Others
103.06
346.746
109-TOTAL COST-SHARING
2.436.746
999-NET TOTAL (GEF Contrib.)
5.682.290
- 45 -
c) Parallel cofinancing budget
EQUIPMENT
TOTAL
Circulation pattern sensors
US$755.000
(Buoys, metereological stations
on buoys, current meters, mareographer)
TOTAL
US$755.000
- 46 -
d) In-kind contributions to the Project
CONTRIBUTION US
DOLLARS
National Personnel
Scientists, technicians and support staff from INIDEP, INAPE, SOHMA and SHN.
403262
Managerial, technical and support staff from CARP and CTMFM.
Office space for the Project Implementation Unit
240000
Infrastructure
Equipped laboratories in INIDEP, INAPE, SOHMA, SHN, UMP, UR and UP.
508000
Equipped research vessels of INIDEP, INAPE, SOHMA and SHN.
Computer networks in CARP and CTMFM
Subcontracts
Communication strategy, Municipalities, governmental organisations and NGOs of both
416738
countries.
TOTAL 1568000
- 47 -
ANNEXES
Annex I. Work plan
Annex II.
Logical Framework Matrix
Annex III.
Schedule for project review and reporting
Annex IV.
Personnel required by the project
Annex V.
Job Descriptions
Annex VI.
Project coordinator terms of reference
Annex VII.
Subcontracts and cooperation agreements
Annex VIII.
Equipment requirements
Annex IX
Incremental Cost Analysis
Annex X.
Root Cause Analysis
Annex XI.
Budget
Annex XII.
Other information
Annex XII-1.
Actors
Annex XII-2.
Treaty of the Rio de la Plata and its Maritime Front
Annex XII-3.
Project area
Annex XII-4.
La Plata basin
Annex XII-5.
Large marine ecosystem
Annex XII-6.
Zones of the Rio de la Plata
Annex XII-7.
Navigation channels of the Rio de la Plata
Annex XII-8.
List of marine mammals
Annex XII-9.
Project team structure
Annex XII-10. SWOT analysis
Annex XII-11. International conventions
Annex XII-12. Suggested arrangements for buoys
Annex XII-13. PDF studies (english summaries)
Annex XII-14. Report of Piriapolis workshop
Annex XII-15. Report of Mar del Plata workshop
- 48 -