PROPOSAL FOR REVIEW

Project Title: Implementation of the Strategic Action Programme (SAP) For the Red Sea and Gulf of Aden

Executing Agency: Regional Organisation for the Conservation of the Environment of Red Sea and Gulf of Aden (PERSGA)

Northern coast of Somalia: Local Authority of Fisheries and Coastal Development, Hargeisa; and Executive Council of Bari Region, Bosaso

1. Located at the junction of three major biogeographical realms and characterised by an arid coastal zone with minimal freshwater input, the Red Sea and Gulf of Aden Region (hereafter called “the Region”) contains some of the world’s most important coastal and marine environments and resources. The topography ranges from nearshore, protected shallows, to exposed sandy and rocky shorelines, and depths of over 2,000 metres, giving rise to complex ecosystems and high biological diversity. Extensive mangroves, seagrass and macro-algal beds occur in the Region, forming highly productive habitats for unique species assemblages. The great variety of reef types in the Red Sea is astounding. The diversity of corals, many of which are found only in the Red Sea, is greater than anywhere else in the Indian Ocean. More than 1,300 species of fishes have been recorded from the Red Sea, higher than any other enclosed sea. Endemism at generic, species and sub-species levels in the Red Sea is extremely high, especially among reef fishes and invertebrates. The Gulf of Aden, one of the biologically least known branches of the Indian Ocean, is heavily influenced by seasonal upwelling and contains fishery resources of global importance. Situated at the eastern extreme of the Gulf of Aden, the Socotra Archipelago is of global significance in terms of island biodiversity and species endemism. It has been rated as being one of the highest priority areas warranting protective management in the Arabian Seas region^¹.

2. Although the Red Sea is still one of the least disturbed seas relative to other enclosed international water bodies, it is in increasing jeopardy. The transboundary issues of concern are wide ranging, from maritime pollution caused by international shipping, to unregulated exploitation of shared fish stocks, to widespread habitat destruction by uncontrolled coastal zone development leading to loss of important species. There is a growing risk of marine pollution, notably from maritime transport of petroleum, and environmental degradation from rapidly expanding coastal zone development including tourism facilities. In the Gulf of Aden, the fisheries are under great pressure from over-exploitation and illegal fishing. The rich cultural heritage of the Region, including a number of significant archaeological, historical and sacred sites on the coast, may come under increasing risk due to development pressure.

3. The SAP process supports and facilitates the primary objective of the Jeddah Convention^² of 1982, which is the conservation of the environment of the Red Sea and Gulf of Aden. The aims of the SAP are to develop and implement a regional framework for protection of the environment and sustainable development of coastal and marine resources. In view of the Region’s uniqueness, the growing environmental threats, and the necessity for action, the preparation of the Strategic Action Programme (SAP) for the Red Sea and Gulf of Aden was initiated in October 1995.

4. The SAP process was led by the Regional Organisation for the Conservation of the Marine Environment of the Red Sea and the Gulf of Aden (PERSGA) and funded by the GEF PDF mechanism, with supplemental support from PERSGA, the Government of Norway, UNDP and the World Bank. The SAP process was jointly supported by the three GEF partners. Annexes 4, 5 and 10a describe the SAP process further, as well as its main findings and recommendations. The GEF funding sought for the present proposal is designed to achieve global environmental benefits by removing the barriers against implementation of the SAP, which addresses transboundary issues. GEF funding is also sought to support high priority preventive actions to reduce navigation risks within the Region.

5. The development of the SAP used a participatory process which included workshops to support the development of the Country Reports, Navigation Risk Workshops in Egypt and Yemen and a Living Marine Resources Workshop in Saudi Arabia. Although the Government of Eritrea is not a member state of PERSGA and has not been directly involved in the SAP process, partnerships are being developed between the two through UNDP. The development of the SAP as well as the present proposal has taken into substantial consideration the significant marine biodiversity of Eritrea and its ecological role in the regional context. The recently approved five year GEF project “Conservation Management of Eritrea’s Coastal, Marine and Island Biodiversity” will complement fully the proposed regional SAP and ensure that the SAP will indeed be a viable and sustainable regional initiative.

6. The long term objective of the project is to safeguard the coastal and marine environments of the Red Sea and Gulf of Aden Region and ensure sustainable use of its resources. The project will enable the implementation of a series of complementary, preventive and curative actions identified in the SAP.

8. The Project Components and their Outputs are described below:

Project Component 1. Institutional Strengthening to Facilitate Regional Co-operation

Output 1.1. Strengthened Institutional Capacity of the Regional Organisation for the Conservation of the Environment of the Red Sea and Gulf of Aden - PERSGA

1.1.1. Establish a Programme Co-ordination Unit (PCU) within PERSGA, consisting of a Regional Co-ordinator, regional technical experts in the thematic areas of the SAP, administrative support staff and a Chief Technical Advisor. The PCU will strengthen the capacity of PERSGA in co-ordinating and implementing SAP activities, and ensure co-operation with other environmental and development programmes in the Region. PERSGA will also be responsible for programme administration, resource mobilisation, and finance management including procurement and disbursement.

1.2.2. Continue the existing SAP Task Force and update its terms of reference to allow it to oversee the implementation and monitor the progress of the full programme.

1.2.3. Co-ordinate and support the implementation of the national components of the SAP, and their incorporation into national policies and investment programmes.

1.2.4. Establish and co-ordinate activities of the different thematic Regional Expert Working Groups envisaged under the other project components, and support their regular meetings and training workshops.

1.2.5. Develop, at the request of the PERSGA Council, the additional regional protocols envisaged under the other project components.

1.2.6. Facilitate regional communication, information flow and data exchange through newsletters, e-mail and internet services, a regional library and a information database.

1.3.1. Review the opportunities for self-financing of the different components of the project at regional and national levels, pinpointing the potential economic sources and mechanisms. Undertake consultations with the co-operating governments and all stakeholders involved, including the private sector.

1.3.2. Evaluate the establishment of a proposed Red Sea and Gulf of Aden Environmental Fund to support transboundary activities identified in the SAP. There is in this region an established tradition to establish such funds, and there is, moreover, a good track-record of success of these in attracting substantial additional resources. The present activities will involve evaluation of existing economic instruments in the countries which may contribute to the Fund as well as possible support from donors. This will include procedures to define disbursement priorities and the legal, governance and administrative structure of the Fund.

2.1.1. Continue the PERSGA Navigation Working Group as a regional forum for promotion and implementation of “good practices” in navigation risk reduction and dissemination of “lessons learnt” on a sustained basis.

2.1.2. Co-operative implementation of major maritime conventions on a regional basis and co-operative development of selected PERSGA Protocols concerning measures to reduce navigation risks.

2.1.3. Following establishment of a Regional Agreement on Port State Control, support training of staff in implementation of the agreement to improve the operational and safety standards of vessels operating in the Red Sea and Gulf of Aden.

2.1.4. Conduct a re-examination of Traffic Separation Schemes (TSS) for the shipping lanes of the southern Red Sea and the introduction of recommended tracks for through traffic, in co-ordination with the International Maritime Organisation (IMO). Also review the need for TSS at entry/exit points into some major ports.

2.1.5. In conjunction with the establishment of the new TSSs, implement surveys to accurately establish water depths and location of obstacles, and install new navigational aids in critical locations.

2.1.6. Review the design and planned operation of the Vessel Traffic System (VTS) for the entry to the Gulf of Suez and the Strait of Tiran and prepare an evaluation of the technical and financial feasibility of developing a VTS for the Bab el Mandab.

2.1.7. Develop a Regional Oil Spill Contingency Strategy which is complemented by Sub-Regional, National and Local Oil Spill Contingency Plans.

2.1.8. Revise the Agreement which established the Marine Emergency Mutual Aid Centre (MEMAC) in Djibouti to make it a Sub-Regional Centre under the umbrella of PERSGA, and update its current Sub-Regional Oil Spill Contingency Plan.

2.1.9. Hold regional training courses for oil spill preparedness and combating procedures (to be funded under PERSGA work programme).

2.1.10. Evaluate and develop sustainable financing mechanisms to support long-term operation of navigation systems and oil spill management programmes at the regional, national and local levels.

2.2.1 Systematic action on the national level to facilitate the timely ratification of key international maritime conventions for improved navigation standards and reduction of environmental risks associated with maritime accidents.

2.2.2. Adoption of Port State Control, following ratification of key conventions, to allow for routine inspections of vessels that make certain the crews and ships are properly qualified and equipped, in order to reduce navigation risks in ports and territorial waters.

2.2.3. Improvement of Traffic Separation Schemes for major ports and their approaches, including surveys in selected areas and installation of additional navigational aids.

2.2.4. Updating of port regulations which could be supported by development of “model port rules” adapted to individual locations.

2.2.5. Dissemination of “good practices” and “lessons learnt” by the PERSGA Working Group at the local level through workshops.

2.2.6. Preparation of national oil spill contingency plans and related emergency management systems for countries currently lacking these plans (to be funded under PERSGA work programme).

2.2.7. Preparation of a “model” local oil spill contingency plan for a selected priority port which could be used as a basis for development of additional locally adjusted plans.

Project Component 3. Sustainable Use and Management of Living Marine Resources

Output 3.1. Capacity Building for Sustainable Management of Living Marine Resources

3.1.1. Continue the Regional Living Marine Resources (LMR) Working Group supported by a regional expert based at the PERSGA Secretariat. This Working Group will meet twice annually to plan joint activities, evaluate progress, and exchange data and lessons learnt. Its members are the link between the regional project and the national government agencies concerned with the management of LMRs. Specific issues will be dealt with by special experts committees.

3.1.2. Support existing fisheries institutions in developing and conducting training courses for fisheries managers and applied researchers directly involved in fisheries assessment, monitoring and management.

3.1.3. Implement activities to train fishermen in the collection of landing data and stocks assessment.

Output 3.2. Development of a Sustainable Management Strategy for Transboundary Fish Stocks and Invertebrates

3.2.1. Develop standardised methods for data collection, statistical analyses and presentation.

3.2.2. Produce a Species Identification Guide to the Living Marine Resources of the Red Sea and Gulf of Aden in co-operation with FAO, as a tool for data collection, statistics and fisheries management.

3.2.3. Assess the transboundary stocks of pelagic finfish with special attention to sharks. These assessments will cover migration routes, major spawning, nursery areas, fishing pressures and economics. (Scope of activities requires supplementary resources to those provided by the GEF.)

3.2.4. Analyse the impacts of present shark fisheries on shark populations and local socio-economic parameters of fishing communities.

3.2.5. Assess stocks of shrimp and lobsters and other exploited invertebrates. Review the past and present exploitation pressures and economics. (Scope of activities requires supplementary resources to those provided by the GEF.)

3.2.6. Survey ornamental fish collecting activities for the aquarium trade and develop a monitoring programme.

3.2.7. Based on the above information and assessment, develop a Sustainable Management Strategy for Transboundary Fish Stocks and Invertebrates^³.

3.2.8. Initiate implementation of the Management Strategy at national and local levels through the network of fisheries workers trained under Output 3.1.

3.2.9. Develop public awareness programs for fishing communities and other users of marine resources in support of the Management Strategy.

Output 3.3. Development of a Regional Conservation Plan for Turtles, Seabirds and Marine Mammals

3.3.1. Educate and train members of coastal communities in the protection and monitoring of turtles, nesting seabirds and marine mammals.

3.3.2. Conduct seasonal surveys and monitoring of marine turtles, sea birds and marine mammals, including migration routes, nesting and feeding areas; as well as exploitation by local communities.

3.3.3. Based on the above findings, develop a Regional Conservation Plan for turtles, sea birds and marine mammals, building on traditional beliefs and conservation practices.

3.3.4. Initiate implementation of the Regional Conservation Plan at regional, national and local levels through extensive public awareness programs, and participation of the coastal communities involved in the earlier training.

3.3.5. Develop small-scale pilot relief projects for the poorest fishing communities in Sudan and the northern coast of Somalia to reduce pressure on turtles and certain other easily accessible nearshore resources.

Output 3.4. Development of a Regional Conservation Plan for Key Habitats: Mangroves, Seagrass Beds and Coral Reefs

3.4.1. Organise a regional workshop on habitat conservation with emphasis on mangroves, seagrass beds and coral reefs in order to draft a detailed workplan for the conservation of key habitats, and integration of habitat conservation into the management of living marine resources, marine protected areas and coastal zone management.

3.4.2. Conduct surveys on the status of the Region’s mangrove areas to develop a regional framework for site-specific action, including sustainable use of mangrove resources, alternative animal fodder, fuel and building materials, and management of freshwater resources.

3.4.3. Conduct survey of mangrove-associated fauna with special emphasis on sensitive stages of harvestable resources.

3.4.4. Develop protection, and where necessary, rehabilitation programmes. Establish local mangrove nurseries and re-plantation schemes, with special attention to genetic source of seedlings.

3.4.5. Map seagrass beds throughout the Region and assess their status, particularly in trawlable areas.

3.4.6. Conduct seasonal survey of diversity and biomass of seagrass-associated fauna, with special emphasis on harvestable fish and shellfish species, as a basis for the development of a comprehensive management and conservation scheme.

3.4.7. Conduct seasonal survey of selected coral reef areas to determine the degree and the root causes of widespread deterioration of reef habitats; develop protection and, where necessary, rehabilitation schemes.

3.4.8. Develop a programme for a sustainable, non-consumptive use of coral reefs by tourists, including a long-term monitoring scheme.

3.4.9. Develop control mechanism for construction work, dredging and landfill with regard to the conservation of mangroves, seagrass beds and coral reefs.

Output 3.5. Establishing the Legal and Policy Framework for Conservation and Sustainable Management of Living Marine Resources

3.5.1. Develop regional agreements and protocols for the sustainable use of transboundary stocks and protection of threatened and endangered species.

3.5.2. Review and consolidate national regulations on species, size, fishing gear and seasons of exploitation, and control through licensing and marketing systems, in line with regional agreements and protocols. Include regulations on the collection of ornamental fish for the aquarium trade.

3.5.3. Conduct a study on regional fisheries monitoring, surveillance and control systems, including assessment of possible self-financing mechanisms to support implementation.

3.5.4. Liaise with governments and concessionaires to find means of enhancing enforcement of fisheries laws and regulations. Identify possible financial mechanisms such as licensing and fines to cover the capital and recurrent costs of enforcement programmes.

3.5.5. Promote integration of fisheries development into coastal zone management.

Project Component 4. Development of a Regional Representative Network of Marine Protected Areas

Output 4.1. Establishment of a Regional Network of Experts Specialised in MPA Planning and Management

4.1.1. Establish a Working Group of Marine Protected Area (MPA) planners and managers supported by a regional expert who will be based at the PERSGA Secretariat. The Working Group will meet twice annually to plan joint activities, evaluate progress, and exchange data and lessons learnt. Working Group members are the link between the regional project and the national government agencies in charge of MPAs. They are the key counterparts for all country-based activities within the project.

4.1.2. Develop a Regional Master Plan as framework for site specific Management Plans.

4.1.3. Adapt existing regional guidelines for the establishment and management of MPAs to regional conditions, including consideration of the specific abiotic, biotic and socio-economic conditions of the region.

4.1.4. Integrate findings of surveys and assessments described under Project Component 3 into MPA scheme.

Output 4.2. Increased Human Capacity in MPA Management through Regional Training and Exchange Programmes

4.2.1. Conduct a series of training courses, one basic and one advanced each, in sanctuary management, survey and monitoring, and marine rangers duties. These courses will be held at various sites throughout the Region, partly building on the experience of existing MPAs. They are based on the guidelines described under 4.3.1.

4.2.2. Organise exchange programmes and study tours for current and proposed MPA managers, scientists and rangers in different countries of the Region to enhance the transfer of experience within and outside the Region.

4.2.3. Provide formal overseas professional training to selected candidates, followed by on-the-job training in home countries. (Scope of activities requires supplementary resources to those provided by the GEF.)

Output 4.3. Completion of Site-Specific Management Plans, supported by detailed habitat, biodiversity and resource use surveys, public consultation, and commitments from the respective governments

4.3.1. Organise national meetings to evaluate the current legislative framework for MPA management, review required resources for enforcement of regulations at existing priority MPAs, and initiate the legal process for designation of new MPAs of regional priority.

4.3.2. Conduct detailed habitat, biodiversity and resource use surveys at four selected sites which lack current information—Djibouti, northern coast of Somalia, Sudan and Yemen (Annex 6). Consult local stakeholders on their views on management throughout the process. Surveys of Socotra in Yemen and areas in Egypt, Eritrea and Saudi Arabia will be covered by other projects (Annex 7), and Sanganeb in Sudan has already been studied.

4.3.3. Develop site specific Management Plans for all network MPAs except the Farasan Islands and Ras Muhammad where such plans already exist, and Socotra where such a plan will be developed under another GEF project.

4.4.1. Provide basic equipment, facilities and on-the-job training for MPA management.

4.4.2. Conduct national and local consultations and workshops to initiate implementation of the Management Plans.

4.4.3. Develop public awareness and participation programmes for various target groups at each site, in the context of the respective Management Plans.

4.4.4. Carry out studies on suitable and viable economic instruments for financing the operations of MPAs in the long run, including eco-tourism potential.

4.4.5. Offer alternative livelihood to local fishing communities at Saba Wanak (northern coast of Somalia), Iles des Sept Frères (Djibouti) and Dungonab (Sudan), including fishing gear that is non-destructive and suitable for exploitation of pelagic resources, alternative housing and fuel, and revenue from eco-tourism. (Scope of activities requires supplementary resources to those provided by the GEF.)

4.4.6. Carry out long-term monitoring activities to check progress and impacts of the Management Plans at each site, and propose adjustments where needed.

Output 5.1. Enhanced Regional Exchange in Expertise, Experience and Information

5.1.1. Establish a Regional Working Group on ICZM with experts from each participating country to facilitate this component and to exchange lessons learnt from national experience through periodic workshops.

5.1.2. Conduct a series of regional training workshops on ICZM and related subjects which would include, but not be limited to, the following: planning and implementation of ICZM, use of environmental assessment in ICZM, resource and economic valuation in coastal areas, mechanisms for improved co-ordination, participatory approaches to planning in coastal areas and methods for conflict resolution. The proposed training programmes would be co-ordinated with complementary activities included under other project components.

5.1.3. Review the present database and GIS systems in the Region that contain data relevant to ICZM. Provide technical advice and support to harmonise the different systems to facilitate information exchange.

5.2.1. Establish or consolidate national ICZM working groups in each of the participating countries, represented by all major relevant government agencies, academic institutions, community leaders, NGOs and the private sector. The cross-sectoral working groups will meet regularly to review progress of activities and exchange lessons learnt in different areas of management within the countries.

5.2.2. In countries without ICZM Plans, organise week-long, national, cross-sectoral workshops and brain-storming sessions to trigger Government and public dialogue and interest in ICZM, identify key environmental issues and potential solutions, and assess present capabilities and needs.

5.2.3. Provide short-term applied training opportunities to selected candidates who are or will be involved in ICZM.

5.2.4. Develop national frameworks for ICZM including issues such as tourism development and environmental standards for fish and shrimp farms.

5.2.5. In co-ordination with other components of the programme, develop sustainable financing mechanisms focusing also on coastal investment opportunities which could support the implementation of ICZM.

Output 6.1. Strengthened Networks for Environmental Awareness Activities in the Region

6.1.1. Establish a Regional Working Group on Public Awareness and Participation with representatives from each country and supported by a regional expert at the PCU.

6.1.2. Establish linkages among environmental and community groups participating in the project, through the production of a newsletter and periodic regional workshops that encourage exchange of news, good practices and lessons learnt.

6.1.3. Produce a series of awareness and educational materials focusing on regional issues for distribution to all participating countries. Electronic media and web-pages will be utilised, where feasible, for out-reach within and beyond the region. Linkage with the UNDP/GEF Initiative, IW: LEARN will be established.

6.1.4. Develop regional awareness programmes whereby concerted activities are launched in the countries and publicised by the media to increase impacts.

6.1.5. Building on the experience and expertise gained from the GEF Small Grant Programmes, as well as those from the micro-grants schemes in the Danube River Basin and the Black Sea programmes, develop micro-grant programmes to provide support to local environmental and community groups to undertake micro-projects which integrate environmental awareness with sustainable resource development objectives in coastal and marine areas.

Output 6.2. Strengthened National and Local Environmental Awareness in Support of the SAP

6.2.1. Initiate dialogues with and among relevant Government agencies to trigger interest in environmental awareness programmes.

6.2.2. Organise targeted workshops for representatives of Ministries of Education and other government bodies to review the potential for increased coverage of environmental management of the Red Sea and Gulf of Aden in their programmes and curricula.

6.2.3. In countries where environmental NGOs or community groups do not exist or are at the infant stage, assess current needs for training in developing awareness programmes. Following the needs assessment, provide training to the local groups.

6.2.4. Involve local groups in developing and implementing awareness programmes in support of other components of the project; targeting different stakeholders such as fishermen, coastal villagers, ship owners/operators and harbour workers.

7.1.1. Develop a model annual report for PERSGA, design a structured work plan and schedule for report preparation, and establish standard reporting formats for tables.

7.1.2. Define the performance and progress indicators and the specific environmental and socio-economic indicators needed to measure the achievements of the different components in relation to the set objectives and expected outputs. This should be done by PERSGA with the technical expertise of the PCU and guidance from the GEF implementing agencies. This will reflect the evolving guidance being developed by the GEF Secretariat.

7.1.3. Design a monitoring programme with well defined methodology of data collection and analysis, and a structured database for time series data. The monitoring programme will form an integral part of the different components of the project.

7.1.4. Organise regional training workshops for the five thematic expert working groups on monitoring and evaluation, and specifically on the methodology involved.

7.1.5. Analyse all data collected from the co-operating countries periodically. Review the results for overall evaluation as well as evaluation by component. Disseminate the results annually.

7.1.6. Conduct an independent mid-term and final evaluation and facilitate effective dissemination of the findings and lessons learnt.

Output 7.2. Implementation of the Monitoring and Evaluation Programme at National Levels

7.2.1. Supervise and co-ordinate implementation of the monitoring programme at the national level through the national PERSGA focal points, supported by members of the Expert Working Group.

7.2.2. Collate and submit the monitoring data to PERSGA for monitoring and evaluation purposes.

9. The co-operatively prepared Strategic Action Programme for the Red Sea and Gulf of Aden provides a sound technical basis for a prevention oriented project to address priority activities under GEF Operational Programme Number 9, “Integrated Land and Water Multiple Focal Area Operational Programme^⁴.” The objective of this Operational Programme is to support “better use of land and water resource management practices on an area wide basis.” Under this Operational Programme, activities are supported which have an “area wide focus, and with biodiversity considerations often included in project objectives, more proactive interventions aimed at the protection of international waters with important biodiversity are common.” A major focus of this Operational Programme is to support measures for “prevention of damage to threatened waters...” and these focus on “preventive measures to address threats rather than remedial, highly capital intensive measures.” The project would also support measures to address these issues in a group of African countries identified as a priority area in the guidance provided by GEF.

10. The objective of the proposed project is to achieve global environmental benefits through implementation of the SAP, which has a major emphasis on cost-effective preventive actions for the conservation of the coastal and marine environment of the Red Sea and Gulf of Aden. The GEF funding sought for the proposed project would “operationalize [a] sustainable development strategy” for the Region and support incremental costs needed to remove barriers to implementation of the SAP, including additional transaction costs for joint planning activities, development of common approaches to sectoral policies, data collection and analyses, and co-ordination of efforts among the participating countries. Consistent with the objectives of the GEF, the proposed project supports complementary policy and technical measures on a regional basis for the reduction of navigation risks and associated maritime pollution; management of important living marine resources which are shared by the co-operating countries; development of a network of representative Marine Protected Areas to conserve unique biodiversity; and support for Integrated Coastal Zone Management to protect the critical interface between the terrestrial and marine environments. The proposed project also has a high potential for replication of key elements, such as the activities for navigation risk and the management of living marine resources, in other international waters programmes of the GEF.

11. The proposed project, consistent with GEF guidance, would contribute significantly to the “reduction of stress to the international waters environment” in this Region and would support PERSGA and the co-operating countries in “making changes in their sectoral policies, making critical investments, [and] developing necessary programmes” to achieve these objectives. The long-term commitment on the part of the concerned governments is demonstrated by the Jeddah Convention, support for PERSGA, participation in the SAP Task Force, and a direct role in the Country Reports and Regional Studies which co-operatively identified priority actions. The support of GEF will play an important catalytic role in the project, and the participation of the European Community, international financial institutions, donors and the private sector will also contribute to this multi-country and multi-stakeholder effort. Linkages with the UNDP/GEF initiative IW:LEARN will provide for sharing and replication of successful practices in the international waters field. The emphasis in the individual project components on the evaluation of sustainable mechanisms for self-financing of a number of activities would contribute to the long-term financial sustainability of project initiated actions.

12. The co-operating Governments have demonstrated their commitment to regional co-operation for conservation of coastal and marine resources though their approval of the Jeddah Convention, establishment of PERSGA and participation in development of the SAP. The development of the SAP was initiated at the “Sea to Sea Conference,” held in Jeddah in October 1995, which reviewed the challenges and opportunities for conservation of the Red Sea and Gulf of Aden. The proposed project has been designed to support implementation of agreed priority actions identified in the SAP. The Ministerial level PERSGA Council has fully endorsed the outcome of the SAP process and has authorised the PERSGA Secretariat to pursue the implementation of the SAP and its related initiatives. The project brief has incorporated the comments and suggestions gathered in the Fourth SAP Task Force Meeting and has received the official endorsement of all participating countries (Annex 2). Government commitment is further demonstrated in their financial contribution as listed in the finance section and the budget.

13. The development of the SAP has been a participatory process demonstrating the broad based commitment of a wide range of stakeholders in conservation of the Red Sea and Gulf of Aden. Country Reports were prepared for all co-operating countries with the direct participation of diverse local experts from a range of disciplines. In addition, field surveys were conducted in Djibouti, the northern coast of Somalia, Sudan and Yemen, where baseline data are limited. As part of this process, informal consultations were held with coastal communities in several locations. With the support of UNDP, consultations were also held with the Government of Eritrea. To widen participation and facilitate consensus building, national workshops were conducted to support development of the Country Reports and to identify priority actions required by each country to address environmental threats. A wide range of stakeholders participated, including representatives of national and local government, academic and applied research institutes, non-governmental organisations, and community groups. The activities of the Regional Navigation Working Group benefited from workshops held in Egypt and Yemen while the Regional Living Marine Resources Working Group held a workshop in Saudi Arabia. These workshops provided input from regional groups of specialists for the planning and implementation of the proposed GEF project.

14. Member countries have provided annual contributions in cash to support the work of PERSGA including implementation of the SAP. The budget of PERSGA for fiscal year 1996 included contributions of US$930,000 from member countries. This was complemented with supplemental support from various international and regional sources. The Kingdom of Saudi Arabia also provides PERSGA with offices and covers selected operational costs. The anticipated support of SAP implementation by the Jeddah-based Islamic Development Bank, an international financial institution, provides a regionally based source of support for the project. The planned participation of the European Commission in SAP implementation brings the experience and resources of the European Union to support proposed priority actions. As noted in the SAP, there also exists significant potential for participation of internationally and regionally based private sector organisations through contributions in cash and kind. All operational components of the proposed Project include activities to develop appropriate resource mobilisation measures to allow for full or partial funding of routine operational costs.

15. An independent technical review was prepared by a STAP Roster expert. The reviewer endorsed the project in positive terms, and made a number of constructive suggestions for further strengthening of the proposal. These proposals have been incorporated into the present text, as described below.

16. The reviewer suggested that IMO be involved in the navigation risk component. This suggestion is extremely well received, and the World Bank, which will be handling this component, will ensure IMO’s involvement in the implementation.

17. The reviewer further noted that the component for the sustainable management of living resources did not sufficiently address non-harvesting uses, but was rather limited to the fisheries sector only. This is considered an extremely useful observation and the present Output 3.4 was added in response to the reviewer’s suggestions. In addition, the symbiotic linkages between the components addressing fisheries, ICZM and the MPAs has been further strengthened to ensure that these are not implemented in isolation.

18. The reviewer’s suggestion that a technical expert advisory group be established is well taken. The Red Sea Task Force will serve this function and this has been further strengthened in the text.

19. To support preparation of the SAP, the World Bank prepared a review of the “Lessons Learnt” from regional environmental programmes and evaluated their specific application to the work of PERSGA^⁵ . The review included evaluation of lessons learnt to date from planning and implementation of regional environmental programmes for the Baltic Sea, Black Sea and Mediterranean Sea and also benefited from experience from the Aral Sea and Danube River Basin. This review was presented at the “Sea to Sea Conference” which was used to launch the SAP and its findings were discussed with members of the Task Force. During development of the SAP, a co-operative review of the experience in ICZM in the Mediterranean was initiated under the Mediterranean Environmental Technical Assistance Programme (METAP) whose preliminary results were also used to support development of the proposed GEF project^⁶.

20. Based on the above, therefore, key lessons learnt which have been incorporated into the SAP and the proposed GEF project include the following:

(a) Leadership [by] the Convention Secretariat. Experience has demonstrated the key role which can be played by an effective Convention Secretariat in the development of the SAP and in co-ordination of its implementation. The Secretariat needs to have a clear work programme which can be implemented with available resources. Local funding for the core expenses of the Secretariat is critical to maintain the operational effectiveness of the organisation. PERSGA was responsible for preparation of the SAP, has been authorised by the PERSGA Council to co-ordinate implementation activities and has its core costs covered by payments from members and the contribution of selected headquarters costs by Saudi Arabia.

(b) Critical Role of a Task Force. Preparation and implementation of the SAP and related projects should be supported by a formally established Task Force comprised of representatives of the contracting parties to the Convention and other interested parties who may take a direct role in supporting its implementation. The Task Force should use the SAP process to develop an integrated understanding of transboundary environmental issues and to identify priority actions. The SAP and the proposed Project were prepared with the support of a PERSGA chaired Task Force which will continue to operate during the implementation phase

(c) Adoption of a Long-Term Approach. Given the nature of transboundary environmental problems, a long-term approach is required, allowing for a series of complementary actions to be undertaken in a phased manner over several years. For this approach to be effective, specific measures should be taken to develop and sustain political commitment and public ownership of regional environmental programmes. The SAP and proposed project have adopted such an approach, which emphasises a range of complementary actions, including a major programme to support public awareness and participation.

(d) Support for Preventive and Curative Measures. Successful programmes include complementary measures which support both preventive measures to avoid or minimise future environmental problems and curative measures to remedy existing ones. Given the current status of the Red Sea and Gulf of Aden, the SAP and proposed project place very high emphasis on preventive action through improved environmental planning, coastal zone management and interventions to reduce navigation risks. Curative measures are focused on improved management of living marine resources and management of water, wastewater and solid waste in coastal areas.

(e) Co-operative Planning and Implementation. Experience from previous programmes has demonstrated the importance of co-operative approaches in planning and implementation, in development of a regional vision, and in sustaining support. The SAP and proposed project have included the use of a Task Force which has been complemented by the participation of a diversity of organisations and individuals in the preparation of Country Reports and the activities of the Working Groups.

21. The five year programme is estimated at a total cost of US$ 36,606,000. Of this amount, US$ 19,000,000 is being sought from the Global Environment Facility, US$ 5,995,000 will be secured from the Kingdom of Saudi Arabia, US$ 1,307,000 from PERSGA, and US$ 2.0 million (in cash and in kind) from the co-operating countries. Additional co-financing is being sought from the European Commission and European Governments and the Islamic Development Bank. Parallel financing from associated projects amounts to US$ 271 million (Annex 7). See budget table for cost allocation by components.

22. The incremental costs analysis, following GEF guidelines, is attached in Annex 1.

23. During the implementation of the PDF SAP project, PERSGA has proven that it has provided an effective forum for regional co-operation, especially at the technical level, despite complex relationships between the countries in the region. The present project will further the work of this regional body in facilitating co-operation on a diversity of topics of mutual concern and interest. Moreover, the bottom up approach, whereby technical bodies at the working level in the countries act as the main driving force in the design and implementation of independent and collaborative activities, will keep the momentum going in times of conflicts.

24. While it is not feasible at present to obtain Government endorsement for the proposed activities in Somalia, it is important to stress that UNDP has a fully operational programme in northern Somalia with active project offices in Bosaso, Hargeisa, Berbera, Johar and Belet Wayn. These offices are staffed with both international and national UNDP staff. UNDP’s total programme in northern Somalia is presently at US$ 37 million for the period 1997-1999. The programme focuses on port rehabilitation and improved revenue collection, local governance, infrastructure rehabilitation (water, schools, clinics, etc.), and income generation. In addition, it should be noted that the UN operates an airplane which has daily flights between Nairobi and one of the above mentioned cities. With respect to the GEF Instrument, Somalia is eligible under paragraph 9 b of the Instrument.

25. In the Sudan, UNDP supports an active programme, which for 1997-1999 is at the US$ 40 million mark. The UNDP programme in northern Sudan focuses on Area Development Schemes, which address poverty issues at the local level, working directly with local communities. The “area development” approach is also being introduced in the southern part of the country, in the form of “Area Rehabilitation Schemes”. In addition, UNDP’s programme supports basic education, especially for girls, renewable energy (biomass, wind and solar), and natural resource management activities, especially community based projects to combat desertification.

26. In view of the active UNDP programme mentioned above, it is considered that PERSGA’s regional outreach coupled with UNDP’s on-the-ground presence in the countries afflicted by insecurity, will be well able to address any risks which might be associated with a project such as the present one.

27. Building on the successful implementation of the PDF phase, the full project will continue to be jointly implemented by the three GEF partners, each with its specialised expertise and comparative advantage in the Region. PERSGA will become the Executing Agency of the full project. The Project Co-ordination Unit (PCU) to be established at PERSGA will provide technical and managerial support to PERSGA. It will be responsible for contracting, resource mobilisation, fund management, procurement, disbursement, programme administration and monitoring. It will consist of a Regional Co-ordinator, regional technical experts in the areas of the SAP, administrative support staff and a Chief Technical Advisor. At the country level, the PERSGA national focal points will also play an important role in co-ordinating national and regional activities of the programme.

28. The Regional Task Force will consist of PERSGA representatives from each participating country, the three GEF partners and the Islamic Development Bank. The Task Force will continue to oversee the direction and progress of the programme and ensure co-operation among countries, international financial institutions and donors. The Expert Working Groups on Navigation and Living Marine Resource formed during the PDF will continue to be the driving force of these two programme components. New Expert Working Groups supported by the respective regional experts at the PCU will be formed for the other components of the programme.

29. As this is a truly joint programme supported in equal part by the three GEF Implementing Agencies, the relative strengths of each agency has been drawn upon for the design of the present project. The backstopping, management and support to the project will draw equally on the comparative advantage of each GEF Implementing Agency. In line with this, therefore, the three partner agencies will implement the project components as follows:

25. Based in Jeddah, PERSGA is responsible for the development, implementation, co-ordination, monitoring and evaluation of regional programmes for the protection and conservation of the marine environment of the Red Sea and Gulf of Aden. Major functions of PERSGA include the implementation of the Jeddah Convention, the Action Plan for the Conservation of the Marine Environment and Coastal Areas in the Red Sea and Gulf of Aden, and the Protocol Concerning Regional Co-operation in Combating Pollution by Oil and Other Harmful Substances in Cases of Emergency. The role of PERSGA has been instrumental in the development of the SAP during the PDF as it has provided a basis for co-operation with international financial institutions, donor agencies and other potential sources of funding. The experience of PERSGA in managing the Red Sea Regional Framework Plan under the GEF project for the Red Sea Coastal Ecosystems of Yemen has led to the development of institutional mechanisms and capacity for international co-ordination and co-operation in the Region. PERSGA has recently supported regional workshops concerning environmental impact assessment, marine protected areas, living marine resources, and navigation risks. In addition, the series of national workshops which facilitated the development and finalisation of the SAP Country Reports were co-ordinated by PERSGA.

26. A large number of national government and non-government institutions will participate in the different components of the project (Annex 9).

1 Kelleher, G., Bleakley, C. and Wells, S. 1995. A Global Representative System of Marine Protected Areas. Volume III. The Great Barrier Reef Marine Park Authority, the World Bank, and the World Conservation Union (IUCN).

2 Final Act of Jeddah Plenipotentiary Regional Conference on the Conservation of the Marine Environment and Coastal Areas in the Red Sea and Gulf of Aden.

3 This Management Strategy should include: mechanisms to monitor and regulate fishing activities and trading; introduction of quota and closed seasons; regulations on fishing gear and methods; and community-based management, building on the revival and strengthening of traditional fisheries conservation practices.

4Global Environment Facility (April 1997). GEF Operational Programmes.

5 Lintner, S.F.; Arif, S., and Hatziolos, M. 1996. The Experience of the World Bank in the Legal, Institutional and Financial Aspects of Regional Environmental Programmes: Potential Applications of Lessons Learned for the ROPME and PERSGA Programmes. World Bank

6 The World Bank.: An Assessment of ICZM Initiatives in the Mediterranean: Experience from METAP and MAP, 1988 - 1996 (in preparation).