International Centre for Environment and Development
(ICED)
________________________________________________
Final Report of the
Mid-Term Evaluation
Of
The GEF - Supported Project
For the Implementation of the
Strategic Action Programme
For the Red Sea and Gulf of Aden
Submitted to
Regional Organization for the Conservation of the
Environment of the Red Sea and Gulf of Aden
(PERSGA)
This report is prepared for PERSGA and is intended for its internal use only
July 2002
23 Fawzi El-Ramah St. Mohandessin 12411, Cairo, Egypt
Email: iced@intouch.com
Tel: (202) 304-6032/33/34
Fax: (202) 304-6033/34
Table of Contents
Executive Summary
3
Acronyms
4
Background
5
Mid Term Evaluation Results
6
Achievements
6
Remaining Challenges
19
Assessment of Achievements
22
Recommendations
29
Lessons for Future GEF Projects
40
Annexes:
Annex I:
List of persons contacted (Tentative List)
42
Annex II:
Mid-Term Evaluation Process
44
Annex III:
Main conclusions and recommendations from the Special Review
46
Annex IV:
Semi-Quantitative analysis of work-plan related achievements
49
Annex V:
Examples of possible demonstration activities
52
2
EXECUTIVE SUMMARY:
The project as a whole has made a number of valuable contributions to the implementation of a
Strategic Action Programme for the Red Sea and Gulf of Aden. All of the components have
realised some significant achievements within their work-plans, and most are within a reasonable
schedule of expectation with regard to delivery of outputs. Despite the usual setbacks
experienced in the early days of project implementation and management, ownership and
commitment to the project is growing as dialogue and feedback mature between the countries
and PERSGA. However, there are some very real concerns regarding financial sustainability, and
concrete deliveries. These need to be addressed and resolved as rapidly as possible after the
formal adoption of this Mid-Term Evaluation if the project is to deliver real value to the region,
and if the project objectives and outputs are to attain a self-sufficient level of sustainability.
Administratively and institutionally, the project has created a working and effective
infrastructure to support itself, as well as to continue to provide administrative support to the
long-term needs of a SAP within the region. Project administrative and policy accountabilities
could be more sharply defined, and there is now an urgent need to allocate responsibility for
developing an overall project sustainability plan, as well as a strategy for capturing co-financing
for project activities. In the long-term interests of the project, it would be advisable to re-visit the
mutually supportive roles of the Task Force and the PERSGA Management, and to clearly define
where policy oversight lies in relation to day-to-day effective management.
Technically, the project has built a very capable, dedicated and worthwhile core of specialists
within PERSGA itself, as well as an extensive network of regional expertise, which is
continuously growing as the project matures. A valuable roster of both regional and international
technical experts now exists within the organisation. Nationally, technical competence is
expanding and maturing as the project fulfils its training commitments. It is apparent that some
activities have fallen behind schedule and, although this is not uncommon in a regional project of
this nature, efforts should now focus on ensuring that the technical outputs are completed in
support of the ,,end-of project overall objectives.
On a policy level, there has been a marked and noticeable increase in ownership at the level of
the National Focal Points and the Task Force Members as the project reaches and passes its mid-
point. Both the country representatives and PERSGA itself have recognised the essential value of
open dialogue and the need for transparency and accountability of action. However, this need
now needs to be translated in to definitive processes and formal mechanisms to ensure the
sustainability of efficient policy-level project decisions.
Overall, national project representatives felt that the project could benefit from a clearer
definition of component goals and a more definitive ,,end-of-project landscape. The major
concern for the overall welfare and continuity of this regional initiative must now be the shortfall
of funding, as co-financing commitments have failed to be realised.
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ACRONYMS
AIS
Automatic Identification System
CEDARE
Center for Environment and Development in the Arab Region and Europe
CITES
Convention on the International Trade in Endangered Species
CTA
Chief Technical Advisor
CZM
Coastal Zone Management
EIA
Environmental Impact Assessment
FAO
Food and Agricultural Organisation (of the United Nations)
GEF
Global Environment Facility
GIS
Geographic Information System
GMDSS
Global Maritime Distress and Safety System
HBC
Habitat and Biodiversity Conservation
IA
Implementing Agency
ICED
International Center for Environment and Development
ICLARM
International Centre for Living Aquatic Resource Management
ICRI
International Coral Reef Initiative
ICZM
Integrated Coastal Zone Management
IIMS
Integrated Information Management System
ILO
International Labour Organisation (of the united Nations)
IMO
International Maritime Organisation (of the United Nations)
IUCN
World Conservation Union
IW:LEARN
International Waters: Learning Exchange and Resources Network
LMR
Living Marine Resources
M&E
Monitoring and Evaluation
MEMAC
Marine Emergencies Mutual Aid Centre
MoU
Memorandum of Understanding
MPA
Marine Protected Areas
MTE
Mid-Term Evaluation
NGO
Non-Governmental Organisation
NPC
National Project Coordinator
NRMP
Navigational Risks and Marine Pollution
NWG
National Working Group
PA
Public Awareness
PAP
Public Awareness and Participation
PERSGA
Regional Organisation for the Conservation of the Environment of the Red Sea
and Gulf of Aden
PIP
Project Implementation Plan
PSC
Port State Control
RAP
Regional Action Plan
SAR
International Convention on Search and Rescue
SAP
Strategic Action Programme
SSM
Standardised Survey Methodologies
STA
Senior Technical Advisor
TAG
Technical Advisory Group
TF
Task Force
ToR
Terms of Reference
UN
United Nations
UNDP
United Nations Development Programme
UNEP
United Nations Environment Programme
VTS
Vessel Traffic System
WG
Working Group
I. BACKGROUND
1. PERSGA and the SAP Project
The Regional Organization for the Conservation of the Environment of the Red Sea and Gulf of
Aden, 'PERSGA', was established in September 1995. One of the main functions of PERSGA
includes the implementation of the Jeddah Convention, and its Protocol. It has also been given
responsibility for preparation and implementation of the Strategic Action Programme (SAP) and
acts as the Executing Agency for the GEF project, which is supporting this implementation.
1.1
Objective and Components of SAP
The objective of the SAP is "to conserve the coastal and marine environment in the Red Sea and
Gulf of Aden region and ensure the sustainable use of their resources". The SAP is an
interdisciplinary programme with eight components:
1. Institutional Strengthening to Facilitate Regional Cooperation
2. Reduction of Navigational Risks and Marine Pollution (NRMP)
3. Sustainable use and Management of Living Marine Resources (LMR)
4. Habitat and Biodiversity Conservation (HBC)
5. Development of a Regional Network of Marine Protected Areas (MPA)
6. Support for Integrated Coastal Zone Management (ICZM)
7. Public Awareness and Participation (PAP)
8. Monitoring and Evaluation of Program Impacts (M&E)
1.2
Overview of the SAP Project under review
A project for the implementation by PERSGA of SAP was financed by the GEF through three
project documents: One, with the UNDP (starting December 1998), the second with the World
Bank (dated February 1999), and the third with the UNEP (commencing May 1999).
The UNDP's project implementation responsibility covers: Habitat and Biodiversity
Conservation; Sustainable Use and Management of Living Marine Resources;
Development of a Regional Network of Marine Protected Areas; Enhancement of Public
Awareness and Participation; Monitoring and Evaluation of Programme Impacts; and
Support for Project Management Team Cost.
The World Bank project implementation responsibility covers: Reduction of Navigation
Risks and Maritime Pollution, and Support for Integrated Coastal Zone Management.
The UNEP's project implementation responsibility covers: Institutional Strengthening to
Facilitate Regional Cooperation.
1.3
Evaluation Process
A Special Review of certain components of the project was undertaken in September 2001. This
looked specifically at the achievements and requirements of four components Living Marine
Resources, Habitat and Biodiversity Conservation, Marine Protected Areas, and Integrated
1
Coastal Zone Management. PERSGA, recognising that there had been some delays or shortfalls
in project delivery, and in agreement with the Implementing Agencies, commissioned ICED to
conduct a Special Review to be completed in the Summer of 2002. The purpose of the Special
Review was to provide PERSGA with an opportunity to review its progress so far in
management of the SAP, and to identify priority areas which needed to be implemented or
finalised prior to a formal Mid-Term Evaluation, so as to allow that MTE to be able to accurately
assess the status of the SAP.
The MTE, on the other hand has to undertake a detailed review of all components of the SAP.
The Terms of Reference for the MTE along with the list of Team Members is attached as Annex
II. The main Conclusions and Recommendations of the Special Review are attached as Annex
III. Most of them have been taken into consideration and what was agreed upon was already
implemented prior to conducting the MTE.
II. MID TERM EVALUATION RESULTS
This evaluation is presented essentially in three sections: A. Project Achievements; B.
Remaining Challenges; and C. Overall Recommendations (regarding the project as a whole, as
well as by individual components). It should be noted that there was insufficient time or
opportunity given within this Evaluation to review the budget in relation to the work-plan and to
provide evaluation comments on disbursement and on the cost-effective nature of the project to
date. However, there will undoubtedly be some inevitable budgetary implications arising from
the evaluation recommendations themselves, and these would necessitate a full budget review,
which should be discussed and assessed by the Task Force.
A. Achievements
A.1 - General:
Nearly all of the project components are achieving noteworthy results and it is hoped, and
expected, that their activities will leave the countries with some very real and potentially
sustainable achievements. However, it has to be said that the ICZM component, which has also
made significant contributions to the region, has been held back by circumstances often beyond
the control of the PERSGA technical specialists, and is in need of particular attention and
support at this mid-term stage. On the other hand, the component on Navigation and Marine
Pollution has been particularly successful, and stands out as having conferred a considerable
benefit already on the countries of the region.
Although lack of ownership has been a criticism throughout the earlier stages, the project is now
starting to develop a more effective level of country ownership and input to project management,
notable through the increased number of Task Force meetings. It is hoped and intended that this
increase in Task Force member input will provide enhanced policy guidance to the
2
PERSGA management, as well as to the overall implementation and execution of the project.
Certainly, the Task Force itself displays an admirable level of commitment to the success of
project goals and activities. The growing spirit of cooperation and brotherhood within the Task
Force should, if continued, provide the strong foundations for the long-term sustainability of
PERSGA and the projects objectives. National policy-level staff and Ministers are becoming
increasingly more approachable over project concerns and issues as the project matures.
At the technical level, the various component Working Groups have played a very valuable role
in advising the Lead Specialists, guiding SAP execution within their own countries, and
providing the link between the SAP and the national maritime programmes. These Working
Groups approve the SAP work-plans for each component on an annual basis. This has made a
positive contribution to country ownership.
The Lead Specialists present themselves as a dedicated and hard-working team of individuals
deserving of support and technical guidance. Although not experts of regional or international
stature, they contribute enthusiasm along with a willingness to react to the ever-changing needs
of the project, and a determination to build on their achievements, and to meet the outstanding
challenges facing them between this mid-term point and the end of the project.
Good inter-project coordination has been developed between this project and other GEF projects
related to coastal management issues within the region. This has been formally recognized
through agreements of cooperation signed between other projects and the PERSGA management.
Distance learning programmes have been cited by the countries as being very valuable in the
training and education process. Both IW: Learn and Train: Sea: Coast have been welcomed by
the countries and used to raise the human resource capacity within the region. A Distance
Learning Centre has also been established within the region.
Micro-grant projects are proving to be very popular, with six grants approved for community
participation projects, and other grants under consideration for capacity-building for national
NGOs.
A Legal Advisory Consultancy is now ready to start work within the region to provide input to
all of the national components on their legal issues, and to develop a regional synthesis which
will guide the development of regional legal issues and protocols.
A.2 - Components:
1. Institutional Strengthening to Facilitate Regional Cooperation
The outputs from this component can be broadly clustered as follows:
a. Strengthening the Institutional Capacity of the PERSGA Secretariat
b. Enhancing Regional Cooperation
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c. Enactment of Adequate Regional Environmental Policies and Legislation, and Increased
Participation in Regional and Global Conventions
d. Developing a Sustainable Strategy on Financing and Resource Mobilisation
Reports received from PERSGA indicate that the following was achieved:
i. Strengthening the Institutional Capacity of PERSGA Secretariat
There are now 22 full and part-time persons working in the PERSGA offices, including
management, lead specialists, technical and administrative support staff. Their professional
expertise continues to grow through experience and training. A full office infrastructure has been
established, with formal administrative and financial procedures. The office has also developed a
significant library collection, and is planning an on-line library catalogue.
Training Programmes provided to increase technical capacity of PERSGA Staff include:
Technical Aspects of Marine Conservation 1999 (Jeddah)
Project Planning and Management 2000 (Jeddah)
Computer Training courses 2000 (Jeddah)
Project Management Workshop (Sanaa)
Monitoring and Evaluation Workshop 2000 (Jeddah)
Procurement for Services (Vienna)
Accounts Budgeting and Cost Control (Dubai)
GIS Training CEDARE 2002 (Egypt)
UNDP Procurement (Addis Ababa)
Train-Sea-Coast Course Development (New York)
Environmental Economics (World Bank, Washington)
The British Council has provided English language training, and five members of the Project
Management Team are now qualified SCUBA divers. Additional technical training was also
provided to the CTA, the PFS and the Lead Specialists as well as the National Project
Coordinators (e.g. Environmental Economics PAP LS; San Francisco Conference MPA LS).
PERSGA has now established a Training Unit within the PERSGA Management Office to
support the following activities:
Coordination of all training activities of PERSGA
Coordination of PERSGAs other relevant training programmes such as
IW:LEARN and Train-Sea-Coast.
Compilation and dissemination of training course and workshop reports.
Production of guidelines for training including criteria for selection of nominees
and follow-up procedures for trainees in collaboration with member countries.
Establishment of a course evaluation system.
Preparation of PERSGA Training Manuals.
4
The PERSGA Financial Management Information System is now fully operational and used
daily for planning, budgeting, and financial reporting. This programme has required a higher
level of bug-fixing and maintenance than originally anticipated but now functions effectively.
The comprehensive administrative and procurement guidelines prepared in 2000 have been
updated and revised to meet current circumstances.
A GIS and information database is being installed at PERSGA Headquarters which will be
accessible from within the region.
To facilitate the implementation of activities a roster of more than one hundred regional and
international consultants and consulting firms has been prepared. The skills and expertise
included cover a wide range of disciplines such as marine biologists, pollution control
specialists, fisheries scientists, ecologists, social scientists, editors, translators and librarians.
ii. Enhancing Regional Cooperation
Continued government commitment was assured by Member Countries at the annual Task Force
(TF) meeting that was held in Jeddah in 2001. The TF discussed the results of a Special Review
Mission conducted 2001. The Terms of Reference of the TF were amended to reflect some of the
points discussed. One of the first improvements arising from both the Review and the
deliberations of the TF was to increase Task Force meetings to twice a year so as to discuss
issues of commitment and ownership in greater detail and frequency.
The component-specific Working Groups that have been established continue to meet twice a
year to advise and to guide SAP activities at the national level. This mechanism has greatly
improved networking and communication between experts within the region, and the
introduction of national cross-component meetings organised by the National Programme
Coordinators has achieved a level of involvement between experts from different institutions that
had not previously existed. Linkages between national and regional goals vis-à-vis protection
and management of coastal and marine resources are carried out primarily through the
component Working Groups.
Many of the lead specialists have forged and strengthened regional networks among
environmental organisations through their work; in particular the component on LMR with FAO
and ICLARM; the PAP component with IUCN; the HBC component with CITES, FAO, ICRI;
and the component on NR and MP with IMO, ILO.
The NPC offices in each country of the region are now equipped and operational. The NPCs
facilitate travel for WG members, brief Focal Points on SAP progress, and expedite the logistical
preparations for workshops and surveys held in their country. The organisation of cross-
component meetings for national WG members from each component has assisted the integration
of the SAP activities at the national level.
The PERSGA secretariat continues to act as a focus for the dissemination and exchange of
information. SAP reports are prepared on a monthly, semi annual and annual basis. One
5
thousand copies of the PERSGA publication Al Sanbouk are prepared and distributed on each
print-run.
The development of a regional marine environmental science library has progressed steadily.
Staff have been trained on the operational procedures for the library including international
systems of classification, loans and exchanges, security and document maintenance.
This component also includes the need to ensure closer cooperation amongst relevant existing or
planned projects (both GEF and Non-GEF) within the region. This tends to take place at a Lead
Specialist component level where SAP activities can be complementary to or gain added value
from existing projects in the region. The NPCs also act as an important link to existing projects
and programmes within the region such as the GEF ICZM Belhaf-Bir Ali project.
iii. Enactment of Adequate Regional Environmental Policies and Legislation,
and Increased Participation in Regional and Global Conventions
Through the SAP, PERSGA has hired a regional legal consultant to collect copies of
environmental laws from each country, to look at similarities and differences in environmental
legislation between the Member countries, and to identify the gaps in existing national legislation
and suggest further steps.
Integrated with the SAP and complementary to its objectives, PERSGA is involved with the
development of two regional protocols:
Global Plan of Action for the Prevention of Pollution from Land-Based Activities
Conservation of Biodiversity and the Establishment of Protected Areas
It was not practical at this stage to evaluate this element in detail. However, this should be a
natural product from the aforementioned consultancy.
Increased participation in Conventions is certainly being encouraged with regard to the IMO
conventions (through the component on Reduction of Navigation Risks and Marine Pollution
see below).
iv. Developing a Sustainable Strategy on Financing and Resource Mobilisation
Successful implementation of the SAP requires that a range of resources, both human and
financial, be mobilised to support the priorities of the Programme. This will be achieved through:
Seeking funding input from bilateral and multilateral donors;
Designing self-financing mechanisms for the respective components;
Establishing an environmental fund;
Some co-funding has been provided through the Islamic Development Bank (approx. $400,000)
but this is well short of the original target.
6
This aspect of the project needs more prioritisation and effort if the project is to achieve self-
sustainability in its objectives and to provide continued support to its outputs.
2. Reduction of Navigation Risks and Marine Pollution
Although there have been incidents recently, the PERSGA region has for many years been
fortunate to escape the consequences of heavy pollution from any major oil spill or marine
accident similar to those that have affected many other parts of the world. The aim of component
2 is to ensure that Port State Control, routeing measures, contingency plans, pollution combating
centres, SAR (International Convention on Search and Rescue), GMDSS (Global Maritime
Distress and Safety System) and enhanced maritime competency in the region are put in place as
quickly as possible to reduce navigation risk and provide the means for dealing with any incident
that might occur. Prevention is, as always, considered better than cure.
Component 2 of the PERSGA Strategic Action Programme (SAP), ,,Reduction of Navigation
Risk and Marine Pollution, is being implemented through nine key Elements:
1. Navigation Working Group (NWG)
2. Implementation of Conventions
3. Port State Control (PSC)
4 & 5. Hydrographic Surveys, Navigation Aids and Routeing Measures
6. Vessel Traffic Systems
7. Contingency Plans
8. Pollution Response Centres
9. Port Rules, SAR, GMDSS, Accident and Incident Investigations
Areas of actual or potential success and lessons learned in the activities already taken (as well as
those that are planned) include:
a) Activities already undertaken:
NWG Approval of Routeing Measures design April 2000;
IMO commendation for proposed routeing measures July 2000;
Completion of extensive hydrographic survey June 2001;
Contingency Planning Workshop in Djibouti July 2001;
Completion of report on MEMAC and Pollution Combating Centre June 2001;
Publication of new navigation charts Feb 28th 2002;
7
Completion of Action Plan and Project Document for Contingency Planning Feb
2002;
Workshop on Port State Control with positive recommendations March 2002;
Submission of proposed routeing measures to IMO with support from Eritrea and
Djibouti April 5th 2002;
Since SAP initiated, 14 more ratifications have been given within the region to
IMO Conventions. Each NWG meeting encourages States to ratify Conventions:
Training has also been provided in various subjects under this component, including:
Hydrographic Survey Methods April 2000
Contingency Planning July 2000
Port State Control April 2000
b) Planned Activities:
New IMO Courses on Port Security and on Pollution Response Centres, Mid
2002.
IMO Subcommittee to approve routeing measures, July 2002 and adapt them in
Nov.2002.
NWG Workshop on Marine Accident and Incident Investigation Dec 2002;
Formulation of concepts for additional routeing measures in the Red Sea.
The Review Team feels that component 2 has the potential to significantly change shipping
operations in the Red Sea and Gulf of Aden by establishing the means for states in the region to
exercise greater control over ships, guide, control and monitor traffic through the Red Sea, be
prepared for contingencies and emergencies, establish improved Port Rules and enhance rescue
and other services to shipping.
The record of implementation up to the time of this Mid-Term Evaluation indicates that the
approach of component 2 to each of the elements that it is responsible for has so far been
competent and has led, or is likely to lead, to a successful outcome for the element.
The
objectives of the component, as defined when the SAP was being formulated, have been
demonstrated so far to be attainable, illustrating the soundness of design. The international
community has observed that a combination of international funding and regional expertise can
achieve positive results. Achievements have been noted by the United Kingdom Hydrographic
Office (UKHO), the International Hydrographic Organization (IHO) and at conferences in
several parts of the world where this work in the Red Sea has been presented and discussed.
3. Living Marine Resources
As part of the Development of a Sustainable Management Strategy, the following achievements
can be noted for the study and management of key LMR groups:
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Elasmobranch Management:
Elasmobranch Identification Guide (English and Arabic)
First and Second Elasmobranch Survey Report
Final Report on Elasmobranchs
Management measures in preparation
Ornamental Fisheries Management:
Preparation and practices of standard survey methodologies for the assessment
and monitoring of ornamental fish
Selection of regional consultants to conduct further regional training and studies
in June 2002
Lobster, Shrimp and Cuttlefish:
Assessment of the stocks of commercially exploited marine invertebrates (study
and report)
Agreements have been reached with national institutions (Egypt, Kingdom of
Saudi Arabia and Yemen) to conduct stock assessments and fisheries management
for commercially exploited invertebrates
Workshops on LMR have been completed at the Training Centres on:
Elasmobranch Identification 2001 (training of 55 enumerators)
Ornamental Fish Resources 2002 (training of 24 researchers)
Elasmobranch Stock Assessments 2002 (23 researchers)
This component has achieved significant results in the areas of capacity building, development of
a sustainable management strategy for transboundary fish stocks and invertebrates, and in the
establishment of legal and policy framework for the conservation and sustainable management of
living marine resources
A Marine Science Centre and a Fisheries Training Centre (already established in Aden) have
been designated by the project as sub-regional training and research centres, and are being
supported with equipment (computers, printers and other tools), capacity building and
strengthening, and training. The Training Centres have already hosted 3 workshops.
A further Workshop has also been completed for Shrimp Aquaculture and its Environmental
Effects, and regional discussions were held on the development of national and regional
strategies for better management of aquaculture. Other workshops are planned for 2002. A
Fisheries Database is also being established at one of the Centres.
There has been successful regional training in data collection techniques and data storage
mechanisms for living marine resources, with manuals developed for fisheries surveys, and for
national enumerators (in elasmobranch recognition). Regional Working Groups have received
9
and discussed national reports on fisheries statistics, which have been reviewed by FAO, who
have advised on the design of fisheries databases at both the national and regional level. Working
Group Members have also submitted reports on national shark fisheries. Regional Species
Identification Guides for Sharks and Rays have been completed as well as Guides for national
enumerators on the collection of landing data and statistics. This component is also collaborating
with the HBC component to establish a Fish Reference Library for the region.
Arrangements are currently under way to hire a Consultancy to review national fisheries
legislation.
4. Habitat and Biodiversity Conservation
Component Achievements can be summarised as flows:
Development of Standard Survey Methodologies for the Key Habitats and Key Species:
A Guide to the Standard Survey Methodology (SSM) for Key Habitats and Key
Species (coral reef, seagrass & seaweeds, inter-tidal & mangroves, sea turtles,
marine mammals, seabirds and rapid assessment techniques) has been prepared.
Regional Teams have been established to survey the regional Key Habitats and
Key Species (Coral Reef, Mangrove, Seagrasses and Seaweed, & Marine Turtles).
Countries have been provided with Marine Turtle Tags and full set of turtle
survey equipment in advance of surveys to be held May-July 2002.
A Regional Conservation Plan for Marine Turtles & for Seabirds is expected to be
complete by the end of 2002.
Development of the Regional Action Plan (RAP) for the Conservation of Coral Reefs in the
Arabian Seas Area:
A status report on Coral Reefs for each country has been finalised and the
Regional Coral Reef Status Report has been published.
A successful International Symposium on the Extent and Impact of Coral
Bleaching in the Arabian Region was held in Riyadh.
A Regional Action Plan (RAP) for the Conservation of Coral Reef in the Arabian
Seas Region has been prepared and is in the final stage prior to printing.
Capacity Building of Regional Specialists:
Regional Training courses on the Standard Survey Methods for marine turtles,
Coral Reefs, Seagrasses and Seaweeds and Inter-tidal & Mangrove habitats were
held.
Five constructive and productive Regional Working Group (WG) meetings were
held to date, leading to a good deal of regional capacity building and regional
exchange of information. Working Group Members are very active and functional
A Reference Collection Site has been identified at King Abdulaziz University,
Faculty of Marine Science.
10
Six Regional Training Courses have been conducted
101 regional Specialists have been trained (36 coral reef, 18 seagrass and
seaweeds, 17 mangrove, 18 marine turtle, 12 seabirds).
Seven Regional Trainers have been trained.
Four Regional Specialist groups have been established.
Links with international and regional environmental agencies opened and
cooperation established.
One International Symposium completed.
There is evidence of good networking within this component. Regular communications have
been established between National Working Group Members and Regional Specialists Teams.
Furthermore, links with other International organisations such as IUCN, Birdlife International
and FAO have been developed and are proving to be most productive.
Standardisation of survey methods is a critical output from this component. In the past there have
been no standards for data collection within the region and comparisons have therefore always
been subjective. A draft ,,Guide to Standard Survey Methods (SSM) was prepared at a
workshop in Sharm El-Sheikh and is now being used as the standard for all survey methods in
the region. Standard procedures were prepared for all of the key habitat types found in the region
as well as key species groups. Evaluation forms have been completed by the trainees after each
Standard Survey Methodology (SSM) training course. These evaluation forms ask such questions
as "is the training applicable to your country?". Three of these training courses were conducted
by Regional Experts and the other two used regional specialists as assistants. The regional
trainers and national specialists provided very useful comments and information on the SSMs.
These comments have been sent to the authors for inclusion into the final draft reports. Countries
have been provided with marine turtle tags and a full set of turtle survey equipment in advance of
surveys scheduled for summer 2002.
Coral reef specialists from the region have been trained to use ReefCheck methodology,
including training in site selection, survey basics, fish and invertebrate belt transects, species
identification, data transfer and analysis, report preparation and the presentation of results. This
has given the region a team of coral reef experts which can provide the necessary data to monitor
the status of reefs and to develop management programmes for their well-being. This can
contribute directly to the work of the International Coral Reef Initiative and the Global Coral
Reef Monitoring Network. Other coral reef initiatives within the region are targeting the problem
of coral bleaching through a Regional Action Plan which provides a set of priority actions for the
conservation and ecologically sustainable development of coral reefs in the region.
5. Marine Protected Areas
Achievements under the MPA component can be summarised as follows:
Master Plan:
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The Regional Master Plan has been drafted and reviewed. It is now ready for
printing and dissemination.
The Lead Specialist has presented the Master Plan in an International Symposium
Surveys and Site-Specific Plans:
Surveying, diving and camping equipment has been procured for the surveys for
Sudan, Yemen and Djibouti.
Two of the proposed MPAs have been surveyed and the data collected.
Unsupervised classification maps have been used for ground-truthing.
Capacity Building:
Training on MPA management and survey methods has been carried out. This
included the Working Group Members, and other technical personnel for all of
the PERSGA Member States
Existing MPA personnel have been identified and potential future MPA Managers
have been noted.
Attendance of the Working Group meetings is 100% and the members are
actively contributing.
An electronic Working Group has been established in the region (in cooperation
with IW:LEARN and Train-Sea-Coast).
In-class and on-the-job training has been conducted on survey methods, GIS and
remote sensing in two countries.
The Lead Specialist has supported Train-Sea-Coast MPA course developments
and validation.
The MPA component is promising to provide the countries with support in the identification,
designation, establishment and management of internationally valued MPAs. International
experts, who have provided assistance, are of the opinion that the selected sites are highly
representative of the region and of tremendous value in the protection of global marine
biodiversity. All of the countries, which have these MPAs, are very pleased with the progress.
Two of the four main sites proposed within the region have been surveyed already and the third
should be surveyed by the end of the summer of 2002. Equipment and support has been provided
by the project to two of the four selected sites. The Site-Specific Management Plans are expected
to be completed by the end of 2002.
The draft of the Regional Master Plan is finished and has been circulated to each country for
their review and input. Part of this draft Master Plan includes a framework for networking the
MPAs within the region. The MPA selection process has involved active public and community
participation and it is hoped to continue this participation into the management and monitoring of
the MPAs.
The National Working Group Members and the Regional Working Groups have been very active
and functional in moving this component ahead. There have been three successful and
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constructive Regional Working Group Meetings to date. Requests for micro-grants for survey
and self-assessment have been submitted to PERSGA.
The overall country opinion is that this component is moving ahead methodically and surely, and
has the potential for being a successful component by the end of the project, as long as the
project does not lose sight of the primary component objective, which is networking.
6. Integrated Coastal Zone Management
Achievements under the Integrated Coastal Zone Management component can be summarised as
follows:
Regional Networking and Training:
First regional training course in IIMS has been conducted.
Lead Specialists actively working to include poverty alleviation and sustainable
development into this component
Data Handling and Integrated Information Management System (IIMS):
More than 400 GIS data layers have been developed at country and regional level
along with 74 layers of hotspots.
Analogue source and digital maps have been collected.
Data entry and handling forms have been designed for coral reefs, mangroves,
turtles, sea-birds, seagrass, stock assessment for commercial fish.
Data has been collected and entered for the ICZM Model Activity in Yemen.
Regional IIMS Assessments have been started.
The IIMS Assessment regional technical teams have been established.
CEDARE contracted to develop GIS/IIMS and establish it within PERSGA
Office.
PERSGA provided funds for national consultations for ICZM planning.
Model ICZM Plans:
Creation of a National CZM Working Group in Yemen.
Completion of the CZM Review of the Aden Governate (also giving useful input
to the World Banks Port Cities Development Programme).
Launch of the Aden Model Activity with a local and national workshop.
Plans to repeat these activities in Sudan and Djibouti.
Specific Working Mission to Khartoum resulting in agreement with the
government on a CZM Model Activity for Sudan.
Despite encountering a number of setbacks in implementation and execution, this component is
now starting to make achievements within the project. PERSGA has provided funds for initiating
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national consultations to undertake ICZM planning in-country. The Lead Specialists are also
working to include issues of poverty alleviation and sustainable development into this
component. During the Evaluation Mission, most countries had expressed concerns about this
component, which has fallen behind during the first half of project implementation and execution
cycle. However, concerted efforts are now underway to focus this component and achievements
are growing as outputs are delivered. There is much emphasis on the Model Activities and it is
hoped that these can provide best practices for certain areas. The Integrated Information
Management System is a critical output for the success and sustainability of the project as a
whole. Once this is functional within PERSGA many other project outputs and activities will fall
into place.
7. Public Awareness and Participation
Achievements under the Public Awareness component can be summarised as follows:
Strengthened Networks for Environmental Awareness Activities in the Region:
Regional Working Groups developed and very effective.
Training course manual for PAP Working Group Members has been developed.
Working groups have developed PA requirements for each project component.
Project has disseminated awareness material throughout region (posters, T-shirts,
etc).
Several NGO-managed micro-grant proposals submitted for funding.
Further micro-grant proposals under development.
A PAP Centre proposed for Port Sudan.
Project has contributed equipment and is preparing information kits.
Countries now thinking regionally rather than nationally.
Strengthened National and Local Environmental Awareness in Support of the SAP:
Over 30 school Environmental Clubs have been established within the region.
Guidelines provided to other schools for setting-up their own Environmental
Clubs.
Over 60 teachers trained in education and awareness of project issues.
Educational curricula have been revised in a number of countries.
National decision-makers becoming more sensitised to issues.
The main objectives of this component are:
I.
The enhancement in public awareness of the importance of coastal and marine
resources of the region and the active role of the public in their conservation, and;
II. To raise the profile of PERSGA at national, regional and international levels.
14
To achieve these objectives, PERSGA must deal with individuals and national organisations. The
project and its specialists recognise that this component must integrate very closely with all other
project components in order to disseminate relevant information to the correct target areas
throughout the region (e.g. stakeholder groups, community participation groups, etc).
This is another component, which is considered to be achieving significant successes. The
project is responsible for supporting the development of over 30 School Environmental Clubs in
the region, as well as providing guidelines to those schools which are taking their own initiative
in setting up such clubs. Project Workshops have trained over 60 teachers so far to educate
students in project issues and objectives. The educational curricula have been revised in a
number of countries to accommodate this new teaching approach and to reflect project priorities.
PAP has also disseminated various materials including hats and T-shirts, as well as literature and
posters in support of project objectives.
The Regional Working Groups are considered by all of the countries to be very effective. The
component has developed a training course for the Working Group Members on PAP based on
an existing Jordanian training manual. These Regional Working Groups have recommended
several NGO-managed project proposals to PERSGA for micro-grant funding. The Regional
Working Groups have discussed PA requirements for each project component as well as inter-
component linkages and the relationship to PA. Again, this is thought to be a significant step
within the region. National governments and decisions-makers are gradually becoming more
sensitised and aware of the project issues and environmental issues in general as they realise the
political implications. The countries are now encouraged to think regionally instead of just
nationally and this is a very positive contribution for the project. National decision-makers and
policy level government staff are invited to attend public awareness meetings as a matter of
project policy.
A PAP centre has been proposed for Port Sudan and the project has contributed audio-visual
equipment to national PAP programmes. The component is preparing information kits and is
targeting both government and NGO personnel for training in PAP. Part of their training will
include being able to train others back in their countries.
Micro-grant proposals have been submitted to support a Centre for Media Awareness, an
Information Library and Childrens Centre, and a Centre for Training Teachers. These are
currently under review by PERSGA. Micro-grant proposals are also currently under development
that would support NGOs through training and capacity building in PAP. Six micro-grant
proposals have been approved so far for community participation in PAP. These follow the
Small Grants format of GEF, which is considered to be a valuable and working model.
8. Monitoring and Evaluation of Programme Impacts
Progress within this component has been very limited. PERSGA is producing reports and
newsletters, which help to define progress and evaluate outputs. Work-plans are reviewed and
revised on an annual basis.
The Mid-Term Evaluation has been carried out as scheduled.
15
B. Remaining Challenges and Concerns
B.1: - General
One of the principal challenges in the early stages of the project, and one which represented a
risk to its sustainability, has been the perceived deterioration in ownership by the countries since
the inception of the project. This has been highlighted by every country and should be seen as a
very serious concern. Allied to this is the need for a greater political commitment at both the
national level, and at the regional level through the PERSGA Council.
Much of this concern over ownership has been catalysed by a lack of communication and
outreach by PERSGA to the senior country project staff, particularly the Task Force Members.
There is a need to remember that, in almost every case, these Task Force members are
answerable directly to the Ministerial level in their countries. Task Force members have felt
disenfranchised and side-lined in the decision-making process and in the development of project
policy and management approaches. At the same time, PERSGA has legitimate concerns
regarding the need to manage the project on a daily basis without resorting to the need for
approval and endorsement from the Task Force for every decision.
In fairness also to PERSGA Management, such a lack of communication and outreach can work
in both directions. It is important that Task Force Members make a concerted effort to provide
PERSGA with up-to-date information on national activities relevant to the SAP and the project
implementation process.
Some of this ownership concern has reflected itself in uncertainties and worry by the Task Force
Members and their countries with respect to due process and the lack of correct procedure in
project administration and management policy. Countries have felt that the management
approach has led to a lack of transparency in day-to-day management activities and that the
procedures defined in the SAP and the Project Implementation Plan are not being closely
adhered to. This may well be the reason for the perceived breakdown in country support and
ownership, which now needs to be rekindled through redefinition and correct alignment of
management approaches.
Country concerns and perceptions, whether fully justified or not, are very important to the long-
term stability and sustainability of a regional project. PERSGA management needs to address
these concerns at the earliest opportunity and to assure the Task Force of its best interest through
development of clear and transparent policies, accountabilities and responsibilities. This may
even require a response from PERSGA regarding specific issues which are troubling Task Force
Members.
16
In view of the concerns raised by the ownership and commitment problem, it should be stressed
that the Evaluation Team notes with satisfaction that efforts by both the PERSGA Management
and the Task Force members is now leading to a more open and frequent dialogue at the project
policy level. In light of the greater role that the Task Force will now play at the policy level, as
will be supported by its more frequent meetings, the necessary policy improvements suggested
above should prove to be fairly straightforward to accommodate.
There is also a need for more outreach between the project (at senior management level) and
national/regional policy-makers. This is essential if the projects objectives are to be properly
reflected in national and regional political strategies. There is still a relative lack of awareness of
the importance and overall linkages of this project to other national and regional strategies on
development, economic transition, human health and welfare issues and the sustainability of
ecosystem functions. There is a need for the project to ,,Sell itself and its achievements at the
higher decision-making level in the region. This would allow the project to seek further support,
be that political or financial, to complete its objectives and to develop and maintain
sustainability. The project may wish to consider organising a high-level Red Sea Symposium to
allow PERSGA, governments, NGOs and others working on Red Sea environmental issues a
chance to share experiences and perspectives.
There is also a perception of imbalance between the resources provided by the project to the
developing countries of the north (Egypt, Jordan and Saudi Arabia) and the least-developed
countries to the south (Djibouti, Somalia, Sudan and Yemen). Although all of the countries agree
that the least-developed countries need more by way of capacity building and training, there is a
concern that this is still a regional project, and that this regional nature might be lost as certain
countries are left with little to show for their support to the project.
One clear issue raised by every country is the need for the project to deliver more concrete, on-
theground activities (and this is also linked to this perceived north-south division). Every
country wants to feel that it has inherited something constructive from the project rather than just
training and general capacity building. A more valuable project approach within the PIP would
have been to identify small demonstration and ,,best practice activities within each country
addressing very real and concrete national and regional issues related to coastal management
(e.g. water resource management, waste treatment, tourism management, development planning,
industrial EIAs, etc). These could have been developed on a site-specific basis within each
country and the lessons transferred throughout the region
At present there is still not sufficient institutional strengthening at either the national or regional
to provide a guarantee of sustainability after the project lifetime. There is also lack of a project
strategy at present (or any recognizable mechanism to develop such a strategy) to address
financial and political sustainability beyond the end of the project.
Approaches to training and the actual value of that training has been raised as another concern.
The countries frequently nominate inappropriate persons for training. Furthermore, those who
are trained are often not used in an appropriate way that takes full advantage of their new skills
once they return to their countries. Some countries simply have a lack of appropriate staff to send
for training, and often it is the same person who gets sent every time. This is not in the best
17
interest of project sustainability or component success. Furthermore, there has been no
mechanism in place by which the project could follow-up after the training to see what value that
training has been, to see what further training would be advantageous, or to identify if there are
any resources which the project should supply in a support role so that the trainee can best use
those skills. However, the recent establishment of a Training Unit within the PERSGA Offices
(with a specific Terms of Reference) should now go a long way toward rectifying this situation.
The countries would wish to see a closer degree of communication with the IAs at the national
level. This would allow better dialogues regarding IA support to SAP issues at the national level.
It would also allow countries to share their perceptions regarding the project and possible
concerns over regional administration directly with the IAs. Some countries feel that had this
been available more recently then many of the ownership issues could have been resolved by IA
representation to PERSGA and the Task Force.
There is a lack of proper policy and strategy regarding the use and sharing of project-related
information. The project is expected to set up a regional information database but there is
currently no protocol for this. The need for a more formal agreement needs to be considered
between the relevant country agencies and the project to overcome this issue, although such
provision may already exist within the Jeddah Convention and its protocol. A PERSGA website,
currently under development, should certainly provide an excellent platform for information
sharing.
The countries also feel that PERSGA as a regional representative organisation could play a more
active role by assisting in negotiations with and between Member Countries over transboundary
issues and disagreements. The countries would also wish to see the organisation taking on a more
functional role in representing the region at the international level and in representing the project
and promoting its objectives and achievements on the international stage.
Countries felt that there is a need for better communication and cooperation between the Lead
Specialists and the National Working Group Members, especially over issues such as selection
and timing of expert missions to countries, and the need for better counterparting arrangements
within countries and within the region to capture and retain expert skills. In particular, National
Project Offices and National Project Staff would appreciate having better warning of technical
missions, preceded by clear Terms of Reference and mission intention.
There are concerns in every country regarding the apparent lack of budget to support country
project teams, especially Working Group Members. If indeed the support for these WGMs was
intended to be an ,,in-kind country contribution then this needs to be clarified to the countries at
the senior level so that the WGMs do indeed receive such support from their countries. The Lead
Specialists also feel that they need more administrative support if they are to concentrate on the
technical aspect of their components sufficiently to meet the end-of-project deliverables. In this
regard, PERSGA should review the presence and availability of administrative support to its
technical experts and specialists within the office administrative environment.
B.2 - Assessment of Achievements:
18
Annex IV presents a semi-quantitative attempt to assess the actual achievements of the project up
to the time of the MTE against the intended achievements as defined in the Indicative
Consolidated Work Plan within the SAP. It should be noted here that this original Work Plan
was not designed to be an evaluation tool so much as a sequential guideline of events necessary
to complete the project outputs. As such, it is possible to see what SHOULD have been
completed by the time of the MTE and to compare that with what has been completed, but it is
not possible to assign a realistic and fair actual percentage of project achievement for each
component, especially in view of the fact that different activities will have significantly different
levels of effort involved in their delivery (and there is no weighting for individual activities
attached to this assessment approach). Nevertheless, this is a useful guideline to see which
components are keeping up with the work plan and which have fallen behind and in what
activities they have fallen behind.
The assessment sets out to define the amount of achievement per activity against the original
work plan on a scale from 1-5 where:
0 1.0 = Almost no delivery Project sustainability severely in jeopardy
1.1-2.0 = Some delivery but very poor and well behind schedule unsustainable at present
2.1-3.0 = Borderline Some notable achievements but needs greater delivery to be sustainable
3.1-4.0 = Good Delivery Some activities are behind, most are on or ahead of schedule
4.1-5.0 = Excellent Delivery keeping pace with the work plan. Project feasibly sustainable
From this it is possible to see that NR&MP, PAP, MPA and the Institutional/Management
components are all giving good to excellent delivery. ICZM, LMR and HBC are Borderline with
ICZM needing the most improvement on delivery. The component for Monitoring and
Evaluation is in bad shape with very poor delivery.
The overall Project assessment using this scaled achievement approach is right on the edge
between Borderline and Good Delivery. The concern here must be that the funding situation
could easily make a significant difference at this stage and drag the project down across the
borderline into insufficient delivery and unsustainability. The other concern must be the time
factor as a lot of undelivered outputs are a result of delays in both funding and activity execution.
Therefore, in order to get the project back on to schedule and to stand a chance of achieving
sustainability before the end of the project lifetime, two things need to happen:
The funding shortages need to be resolved at the earliest opportunity
Each component needs to be reviewed and a new work plan developed up until
the end of the proposed outputs and deliverables to see whether a project
extension will be necessary
A detailed budget review was not undertaken within the terms of this MTE. This should be done
in parallel with any revision of the project workplan. Any project extension will have inevitable
budgetary implications, as will the implementation of some of the recommendations of this
review. In view of these budgetary-related concerns, it would be advisable for the IAs and the
Project Management, in cooperation with the Lead Specialists to review budget expenditure so
far and to reassess budget requirements based on new work-plans which reflect the needs of the
19
project to meet its deadlines as well as the implications of the recommendations from this MTE.
The proposed budget revisions will have to be presented to the Task Force for review and
approval before amending the agreements between PERSGA and the IAs.
B.3 Remaining Challenges by Components:
1. Institutional Strengthening to Facilitate Regional Cooperation
Clear advances are being made in strengthening regional ownership of the project and PERSGA,
as well as identifying the need for stronger political commitment throughout the Member
countries. However, the greatest concern must still focus on the financial sustainability of the
project and the SAP. There is now an urgent need to address the shortfall in funding which has
arisen from the absence of the agreed co-financing. Some very specific activities exist within
certain components, which have no identified funding at present, but which also represent vital
links within the integrated nature of the project. The original intention was that these activities
would be funded from outside of the GEF financial support system. So far little or no external
funding support has materialised. Outstanding needs within this component include:
Co-ordination and support of the implementation of the national components of the SAP,
and their incorporation into national policies and investment programmes;
Identification of the need for the subsequent development of new Regional protocols;
Finalising the information and communication systems, databases, etc., which will
complement the existing newsletter (Al Sanbouk), e-mail and internet services, a regional
library and an information database. Many of these are in-progress but remain incomplete
at present;
Developing a sustainable strategy on financing and resource mobilization. Further more,
consultations with the co-operating governments and all stakeholders involved, including
the private sector, need to be systematically organized;
An assessment at the highest possible level to determine the feasibility of establishing the
proposed Red Sea and Gulf of Aden Environmental Fund to support transboundary
activities identifies in the SAP.
2. Reduction of Navigation Risks and Marine Pollution
This record of past and planned future activities indicates that useful and necessary actions have
been successfully completed so far, and are planned for future implementation. However, areas
of concern that now need to be address must be recorded, as follows:
Timescale:
It will not be possible to complete the work on the remaining elements of
component 2 within the 2002/2003 timescale. For example any meaningful
Contingency Planning activities and additional work on routeing measures (as
20
recommended in the 1997 DNV Report) will inevitably extend beyond the
end of 2003.
Finance:
There is almost no funding left in component 2 for implementation of
remaining activities. Due to the heavy demand for funding to complete the
survey on both sides of the Hanish Islands, component 2 is now short of funds
to cover the costs of any navigation aids, or to finance the other elements that
it is responsible for.
This is a matter of some concern and, at this
intermediate stage in the project, is likely to lead to end results being less than
the current potential for success. The component will have to rely on sources
of external funding to execute useful actions on Contingency Planning, new
Navigation Aids, Vessel Traffic Systems (VTS)/Automatic Identification
System (AIS), GMDSS etc. There is only sufficient funding for one NWG
Workshop in 2003. Lack of success in securing additional funding for
component 2 threatens to significantly reduce its long-term effectiveness if
this is not addressed as a matter of urgency, and solutions found.
Sustainability:
The cost of operating navigation aids, VTS/AIS, GMDSS, pollution
combating centres etc. in the southern Red Sea has, at present, to be carried by
countries which are, in general, defined by the UN as ,,least developed.
PERSGA, and other stakeholders in component 2, should investigate means of
ensuring sustainability of these activities through some type of funding from,
for example, international shipping.
3. Living Marine Resources
As with all of the components (except possibly Navigation and Marine Pollution), there is a need
for a clearer definition of what the final project landscape should be in relation to this
component, and what the final outputs and deliveries will have achieved. There is concern that
there may only be some vague memories of training, workshops, and recommendations for
institutional strengthening left at the end of the project lifetime. The component outputs have
been slower than planned and many of the current activities were scheduled for completion
nearly a year ago. The component is still focusing on training and capacity building whereas it
needs to move on now to resource monitoring and data collection, as well as scientific studies. In
this respect, countries state that they are unsure and confused about the status of activities on
standardised methods for data collection and what methods they should use.
There seems to be general agreement regarding the need for a regional protocol for the
management of transboundary stocks, and the need to develop regional approaches and
arrangements for surveillance, monitoring and compliance/enforcement for fisheries. A Fisheries
Commission has been suggested as one alternative, which has received almost unanimous
support both from the countries and PERSGA. This needs a more formal discussion with the
countries and a regional meeting (workshop, conference) to discuss the exact aims and needs.
21
At the national level, legal issues are seen as a principal concern within this component that the
project still needs to address. However, the countries feel that insufficient action has been taken
in this regard to date. PERSGA is hiring a consultant to undertake this work and there will be a
need to coordinate more closely with country representatives to keep them informed of this
activity.
There have been significant achievement with regard to developing working relationships with,
and strengthening of, the established regional centres under this component. However, national
institutions are still in urgent need of more strengthening and capacity building and closer liaison
with these regional institutes.
The project needs to resolve the misconceptions created in the countries regarding the purpose
behind the Alternative Livelihood activities. Countries feel that this activity is focused on
development of fisheries through funding and support to the industry and nothing to do with best
practices or alternatives. The project has, as a consequence, actually acted to encourage and
promote exploitation of living marine resources (e.g. the ornamental fish trade) in the region.
The concern is that this might lead to over-exploitation if not properly managed, which would
clearly defeat the aims of the project.
Certain LMR activities were clearly identified within the project documents as needing non-GEF
funding. So far this has not been secured. The Lead Specialist needs to work closely with
PERSGA Management in identifying those specific activities and in resolving this issue. If
necessary, this could be raised with the Task Force to see if national lobbying could assist in
capturing funds for these activities from other agencies or Funding Organisations.
4. Habitat and Biodiversity Conservation
Significant advances have been made in training already within this component. However, there
is still a need for further education and training at all levels (community education and regional
specialists). For example, training on SSM has to be evaluated to confirm that it is suitable for
the region. There is also an urgent need to inspire trained specialists to participate in home-
country surveys using their improved skills.
One very high priority development must be the need for national monitoring programmes for
key species and habitats (over and above the baseline studies planned or already completed in
some cases). Especially the activity for Seasonal Surveys (4.3 in the PIP). The need for these
continuous scientific reviews of the status of species and habitats must be impressed on national
governmental bodies responsible for conservation and management.
Outstanding requirements under this component include:
The development of an efficient mechanism for the transfer of information
between countries, and from countries to PERSGA;
Discuss and share opinions on the plans for the new Reference Facility;
Development of a systematic strategy for national monitoring programmes;
22
Persuade national authorities of the importance of monitoring of key habitats and
species;
Review feasibility of a Regional Protocol(s) on Biological Diversity and Special
Protected Areas;
Consolidate national regulations and legislation in line with existing Conventions
and Protocols already ratified;
Develop conservation and rehabilitation programmes in relevant areas within the
region;
Development of fund-raising programmes for habitat rehabilitation;
5. Marine Protected Areas
There is a most urgent need under this component to develop a strategy and mechanism for
networking the MPAs, which is the primary objective of this component. Countries are
suggesting that this might best be captured under the auspices of an MPA networking and
coordination centre. PERSGA should explore this possibility, including the need for sustainable
funding.
Delays to the project can be traced back to delays in expenditure by PERSGA and in
procurement of equipment for the MPA surveys. This process, along with other budget
administration and procurement processes in the project, needs to be streamlined.
The project has not taken full advantage of existing lessons and practices from active MPAs
within the region. This reflects again the lack of networking and communication between the
MPAs and the project. Experience and lessons from the MPA management and planning process
used in Aqaba and at Ras Mohammed should prove to be of value to MPA development
elsewhere in the region.
Again, as in other components, there has been insufficient institutional strengthening to the
national MPAs, which could threaten their long-term sustainability. Furthermore, according to
country sources there has been little or no attempt to assist them in defining revenue collection
mechanisms for financial sustainability (although this should be part of the management plan).
PERSGA should respond to these needs through the Lead Specialist and through regional
expertise.
Countries are uncertain about the status of the legislative review and there have been
unexplained delays in this area. The Lead Specialist originally took the initiative and started
working on this activity, but stopped when PERSGA decided to hire a consultant. At the present
moment, it is not clear when this activity will be implemented or completed.
6. Integrated Coastal Zone Management
This component has undergone considerable delay and a number of activities are behind
schedule at present. The development of national ICZM plans has not started in some countries.
There is still no physical presence of a GIS or database management system established for the
region at PERSGA, although PERSGA has contracted CEDARE to start this preparation.
23
However, a new workplan has been prepared starting from 2001 in an attempt to catch up with
the execution of the outstanding activities and outputs, and it is clear the real efforts are now
being made to resolve the situation.
Some countries have expressed concern that the GIS system has not yet been transferred to
PERSGA Headquarters. PERSGA should respond to these concerns with ToRs for the activities
to be carried out. Countries are also concerned that the GIS component should be coupled with
the acquisition of remote sensing imagery from which both baseline and management maps can
be defined. Again this should be clearly identified in the ToR for this activity with effective
expertise demonstrated by the selected group.
Certain countries also felt that the training within this component had fallen behind schedule and
that the Training Centre at PERSGA headquarters should now work closely with the Lead
Specialists to rectify this problem.
Up until the present, this component has not captured the best practices and lessons from existing
CZM mechanisms within the region. This should also become a component requirement and the
Lead Specialists should review the availability of such lessons and best practices.
In view of the delays, serious consideration may now have to be given to the feasibility of
extending the time scheduled for this component.
Outstanding component requirements include:
The development on national ICZM plans;
The actual presence and effective functioning of a GIS database, supported by
remote sensing capacity, as part of an Integrated Information Management
System within PERSGA Offices;
The execution of model activities in Sudan and Djibouti;
Model ICZM plans for demonstrating application of ICZM at national and local
level;
7. Public Awareness and Participation
This component has already made some significant advances in overall public awareness and
participation within the region. However, the evaluators felt that insufficient efforts have been
focused on targeting senior national (and regional) policy-makers with regard to sensitisation and
awareness on project achievements and objectives. It is realised that this can be a delicate issue,
but most of the countries specifically stated that their senior political figures are very
approachable and willing to discuss project issues. Also, the Task Force Members could play an
active role here through PERSGA to the PERSGA Council. PERSGA needs to make greater
efforts to present project achievements at the national, regional and international level and to
raise international awareness of project outputs and objectives. This may have the added
advantage of attracting the interest of other funding agencies to support project activities.
Outstanding requirements under this component include:
24
Initiating dialogues with and among relevant Government agencies to trigger
interest in environmental awareness programmes;
Targeted workshops for Ministerial representatives to review potential for
increased coverage of environmental management within their responsibilities;
Developing close linkages to IW:LEARN.
8. Monitoring and Evaluation of Programme impacts
This component now needs urgent attention. One of the difficulties encountered during the Mid-
Term Evaluation was attempting to provide a quantitative assessment of project achievements
without pre-determined performance and progress indicators. Although the Logical Framework
does provide Indicators and Means of Verification, these are not time-related and are only really
of value to the Final Evaluation. Annual work-plans could provide a clearer indication of
achievements, but the main guidance should be the Work-plan as approved within the PIP.
This component has the following outstanding requirements
Definition of time-related indicators for performance and progress, as well as
environmental and socio-economic indicators;
Design of a SAP monitoring programme which is integral to the project
components;
Organise training workshops on monitoring and evaluation procedures for the 5
thematic expert working groups.
C. Recommendations
These recommendations have been derived after consideration of project achievements and
outstanding challenges. These can be broken down into general recommendations (addressing
such issues as the need for an improved management approach for the project) and
recommendations addressing issues specific to individual components.
C.1 - General Recommendations:
Overall Project Objectives and Goals:
The project needs a clearer definition of its overall aims and what the end-of-project landscape
will be. This definition needs to address institutional arrangements, regional partnerships and
ownerships, country benefits and improvements, the overall ICZM approach at the national level
(and integration throughout the regional institutional body where possible), and the exact
benefits accrued from each component with respect to the sustainable management and
conservation of marine biodiversity and the removal of barriers to the protection and
25
management of international waters in the region. To some extent the aims and end-of-project
landscape for each component can be extrapolated from the verifiable indicators identified in the
Logical Framework. However, it would have been valuable if these aims and indicators could
have been presented more concisely for each component within the PIP.
With respect to institutional arrangements and management of the SAP in the long-term, certain
recommendations have focused on the strengthening and clearer definition of the responsibilities
and roles of various project staff and committees. Responsibility for defining the end-of-project
landscape should rest initially with the technical experts in the project. Their input can then be
reviewed and tuned by those responsible for management and policy. As such the Evaluation
recommends that the Senior Technical Advisor (the CTA as was) and the Lead Specialists are
given initial responsibility for this activity. Their input could then be assessed by a Technical
Advisory Group of some nature (see 1.4 below).
1. Project Management:
1.1 The need to strengthen the Task Force and to hold more frequent Task Force
Meetings has already been agreed between PERSGA and the IAs. A revised ToR and
mandate for the Task Force should be drafted, and agreed at the next Task Force
Meeting. This ToR and mandate should ensure that this group can fulfil the function
of a primary policy and project monitoring body with final oversight regarding all
project activities. The Task Force should have final responsibility and accountability
for monitoring the overall implementation of the project, revisions of work-plans and
budgets, annual expenditures, etc. PERSGA will maintain responsibility for the day-
to-day management of all project activities but will be accountable in all respects to
the Task Force. The intention here is NOT that the Task Force should review and
endorse every document relating to budgets, work-plans, etc. the intention is that the
project management should be responsible and accountable to the Task Force, and
keep it informed of all policy-related changes affecting overall management and
administration, and that the Task Force should have the right to review such
administrative documents as they feel fit. Therefore, the Task Force will be ultimately
responsible and accountable for the overall project implementation, while the
PERSGA Management will be responsible and accountable for day-to-day execution
as required and requested by the Task Force.
1.2 The Task Force should, at the earliest opportunity review and approve a new Work-
Plan and associated budget for the project. This workplan must clearly define all
intended consultancies, expert missions, procurement activities, etc., within the
condition set out by the Implementing Agencies and their funding conditions.
1.3 The Project Manager should be given the responsibility for appointing project
experts and consultants, following ToRs which have been developed by the Lead
Specialists and approved by the Task Force. These ToRs should be developed as part
of the new Work-Plan (see 1.2 above). The Project Manager will be accountable to
the Task Force, through PERSGA, in ensuring proper procedures are followed for
contracting of such project experts and consultants (to be reflected in Project Manager
ToR).
26
1.4 New ToRs for Senior Technical Advisor and Project Manager should be presented to
Task Force for their review and endorsement. ToR for STA to include responsibility
for development of a sustainability (exit) strategy for each project component at both
national and regional level, and for coordination with PERSGA management in
developing an overall sustainability plan for the project including the PERSGA
institutional component. ToR for STA also to include responsibility for advising the
Secretary General of PERSGA on the feasibility and selection of a Technical
Advisory Group (TAG) and on developing and implementing a work-plan for TAG.
Proposed membership and workplan to be approved by PERSGA management and
Task Force. The STA will also be made responsible for developing an integration and
coordination strategy between project components
1.5 PERSGA should now develop a specific work-plan to deliver the outputs and
activities defined in component 7 Monitoring and Evaluation Programme. This
should be done, using guidance from the GEF IAs, and with assistance from the
technical expertise available within the project staff.
1.6 PERSGA, with assistance from the IAs, will develop a TOR for the Final Project
Evaluation, which should take place in the last 6 months of the project lifetime. This
ToR will identify timing (ensuring there is sufficient time to meet with stakeholders
and senior government personnel) as well as listing the persons to be included in the
evaluation consultations. The ToR to be reviewed and endorsed by the Task Force
and circulated to the countries at least 3 weeks before the evaluation mission begins,
along with a proposed timetable for the evaluation mission.
1.7 PERSGA management should develop a strategy of more frequent country visits to
discuss project issues with senior country stakeholders and policy-makers, with a
view to raising the profile of the project and encouraging national support,
commitment and sustainability.
1.8 The project may wish to consider organising a high-level Red Sea Symposium to
allow PERSGA, governments, NGOs and others working on Red Sea environmental
issues a chance to share experiences and perspectives.
2. Project Administration:
2.1 PERSGA and IAs to review the existing administrative manual for the project to
ensure that it provides clear and up-to-date guidelines for project administration. Any
such guidelines should address project staff responsibilities and accountability,
modalities and policy for contracting of project staff and experts or consultants, due
process for budget revisions, and changes to work plan (noting the overall
accountability to the Task Force in these issues). The guidelines should also contain
an organisational chart showing the responsibility and accountability of all project
staff (including defined lines of communication within the project). Any amendments
made to these guidelines and the administrative manual to meet the above
requirements should be summarised for review and endorsement by the Task Force.
27
Clearly any such administrative guidelines must be seen to meet the policies and
requirements of the IAs for project implementation.
2.2 PERSGA to develop a detailed workplan and guidelines for training, which defines
the expected delivery by the end of the project, and ensures appropriate training
strategies (e.g. coordination between complementary activities, nominations of
appropriate national candidates, follow-up with trainees after training to identify if
new skills being employed by country and support given to trainees). This document
should also contain national guidelines to ensure appropriate counterpart trainees are
attached to any visiting experts. Due consideration should be given to a strengthened
role for Train-Sea-Coast, especially for providing training and awareness on such
important guidance as the FAO Code of Conduct for Responsible Fisheries.
2.3 PERSGA to develop a more streamlined strategy for disbursement of funds and for
procurement of equipment and services (including the review and approval of micro-
grants), in accordance with the requirements and conditions of the Project
implementation Agencies. This strategy should follow procedures defined in the
Strategic Action Programme (SAP) and the Project Implementation Plan (PIP). This
strategy to be reviewed and endorsed by the Task Force.
2.4 PCU to develop single MoU or similar agreement between itself and the countries
regarding accessibility to project-related information and sharing of such information.
2.5 PCU to identify funding and create ToR for a regional consultancy to address
Alternative Livelihood concerns. In particular, this consultancy should focus on
removing any national misconceptions about the purpose of the funding for this
component being to strengthen exploitation capacity of LMRs.
2.6 PERSGA to provide quarterly reports to the country offices on achievements and
coming work-plans, and to liase more closely with the Working Group Members in
between regional meetings.
3. Country Ownership and Benefit:
3.1 Senior Technical Advisor and Lead Specialists to undertake an assessment of
potential demonstration activities (best practices) which could be developed within
the countries of the region, along with criteria for proposals for countries (see Annex
V for some examples). This assessment should involve close coordination and
cooperation with country project staff. The STA should work with PERSGA
Management to identify funding for such demonstration activities, with particular
reference being given to using this new activity to leverage the committed co-
funding. A proposal to include these demonstration activities as new activities (or
substitute activities for existing planned activities) under each component should be
submitted to Task Force for review and endorsement. The STA should have
responsibility (accountable to PERSGA Project Manager who is in turn accountable
to the Task Force) for developing such demonstration activities with the countries
should this prove feasible.
28
3.2 PERSGA to develop a Public Relations document targeted at attracting
co-funding to the project, and to plan and host a donor conference. This
PR document would be circulated to potential donors at least four weeks
before the donor conference.
3.3 The Implementing Agencies to review their own policies for contact and
outreach to the partner countries to ensure regular communications with
national project representatives as well as PERSGA.
3.4 PERSGA should, through the Task Force, respond to country concerns
relating to A. Perceived changes in agreed policy regarding NPCs for
Egypt, Jordan and Saudi Arabia, B. Perceived conflicts of interest
generated if NPCs also hold the position of National Task Force Member.
3.5 PERSGA to prepare a Position Paper for the Task Force on its role as a
regional technical advisory body regarding transboundary issues and
concerns, and on its proposed strategy for resolving the perceived
differences between support to the northern and southern partner
countries. This Paper should also attempt to address development of a
strategy whereby the more developed northern countries may be able to
assist their less-developed southern partners who suffer from severe
constraints by way of human resources and institutional capacity/facilities.
4. Sustainability
4.1 The Task Force to discuss the serious concerns related to project sustainability
created by the lack of $17.6 million in co-funding. PERSGA to provide the Task
Force with any pertinent documentation prior to discussion, including those
activities which the project can expect to be lost in the absence of such co-funding,
as well as any explanations provided by the co-funders. Task Force members should
consult with their own countries regarding national financial commitments to
PERSGA
4.2 PERSGA with the support of the STA to plan and implement a regional workshop
on sustainability of project components.
4.3 The Lead Specialists (working through PERSGA and in collaboration with National
Working Group Members and Project Staff) to produce a comparative chart showing
Planned (as per PIP) versus Actual (as of MTE) outputs, activities and deliverables
including reasons for delays. Lead Specialists to provide a clear definition of what the
expected outputs, deliverables and end-of-project landscape will be by the close of
the project. This briefing document should include revised Work-Plans and budgets
(where altered) for each component, and should be circulated to the countries for their
comments. The document and any country comments to be circulated to the Task
Force members for discussion and decision.
29
4.4 PERSGA to prepare a Position Paper for the project on country ,,in-kind
commitment to project volunteer staff such as the national Working Group Members.
This should highlight the need for country contributions to such in-country project
activities. This Paper should go through the Task Force, and be circulated to relevant
national government agencies.
4.5 PERSGA, in coordination with IAs, to undertake an early review of the budget
implications arising from the recommendations of this MTE. This review should go
on the next Task Force Meeting Agenda for discussion as a matter of urgency.
4.6 PERSGA to initiate a review and feasibility study for a Red Sea and Gulf of Aden
Trust Fund (as identified within the SAP) to support transboundary activities. This
will need to identify possible sources of funding as well as procedures to define
disbursement priorities and the legal, governance and administrative structure of any
proposed fund
C.2 - Component Recommendations:
1. Institutional Strengthening to Facilitate Regional Cooperation
The concern over the sustainability of the project after the GEF funding is finished requires:
i) Review of the opportunities for self-financing of the different components of the project
at regional and national levels, pinpointing the potential economic sources and
mechanisms.
ii) Evaluating of the feasibility of establishing 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 also a good track
record of success in identifying and attracting substantial additional resources. There is a
need to evaluate existing economic instruments in the countries that may contribute to the
Fund as well as possible support from donors. This should include procedures to define
disbursement priorities and the legal, governance and administration structure of the
Fund.
iii) The need to establish the status and availability of original co-funding commitments to
the project.
2. Reduction of Navigation Risks and Marine Pollution
i) There is an urgent need to take action to meet the remaining challenges mentioned
in the previous section of this report under timescale, financing and sustainability.
In effect, all of the remaining challenges centre on the need to identify further
long-term funding support.
30
ii) Component 2 now needs to continue to encourage PERSGA (and ROPME) States
to make progress to the stages where they develop the capacity to ratify and
implement the necessary IMO/ILO Conventions, join the IOMoU and initiate
effective ship inspections and information exchange with others states in the
Region.
iii) If the new routeing measures enter into force in about May 2003, work under
component 2 will need to assist the Governments involved to regulate the present
uncontrolled movement of ships in this potentially hazardous area where several
marine accidents have occurred in recent months. There should also be an
examination of extending the separation of traffic streams in the Red Sea all the
way along the 1100 mile route from Bab el Mandeb to the Strait of Gubal. With
routeing measures established at each end, it should be relatively simple to secure
the adoption of measures off Jabal At Tair, Al Akhewain and Abu El Kizan,
where there is deep water in each case, to provide a separation of at least 5 miles
between northbound and southbound traffic flows and eliminate the present
500,000 potentially hazardous ,,end on meetings of ships each year in the Red
Sea.
3. Living Marine Resources
The overall purpose of the LMR component is to capture sufficient information on living marine
resource exploitation (fisheries, ornamental fish trade, any other exploitation in the region which
may threaten marine biodiversity), so as to be able to develop national and regional legislation
and regulations to control, monitor and modify exploitation within the Red Sea and Gulf of
Aden. Specific attention needs to be given to transboundary stock management, which is
traditionally difficult to monitor and control. In order to achieve this purpose, the project needs
to provide training on identification and data collection/presentation techniques, develop and
implement monitoring and management mechanisms at both the regional and national level, and
assist and advise in setting up national and regional surveillance and compliance/enforcement
strategies. The end goal of this component will be the development of sustainable exploitation
strategies, which will ensure the long-term preservation of marine biodiversity and
economically-important resources within the region while protecting the interests of fishing
communities, and ensuring a sustainable supply of commercial species to the market. Although
much has been achieved already with respect to reaching these goals, there are some priority
areas which still need to be addressed or finalised. There is also a concern that insufficient
consideration has been given through the SAP to sustainable aquaculture within the region.
Recommendations under this component include:
i) The Lead Specialist and PERSGA should design and plan for a Regional Workshop to
discuss the feasibility of creating a Regional Fisheries Commission. This workshop
should also discuss national and regional related issues dealing with:
The sustainable use of transboundary stocks
National and regional surveillance, monitoring and enforcement of fisheries policy
and legislation.
31
ii) The Lead Specialist and STA should liaise with the countries regarding their needs with
respect to the development of a project strategy to provide more strengthening and
support to national fisheries institutions, and linkages to the Regional Centre.
iii) The Lead Specialist should advise the countries on the current status relating to
standardised data collection procedures so as to remove any uncertainties in this regard.
iv) The Lead Specialist should provide PERSGA and the countries with an update on those
activities defined in sub-component 3.2 of the PIP which are not GEF-funded, and should
discuss and define a strategy with the STA and PERSGA management on capturing funds
to cover non-GEF funded activities under this sub-component.
v) PERSGA should assess the feasibility of developing and implementing some aquaculture
demonstrations or pilots within relevant areas in the region.
vi) In view of the importance of the forthcoming review of national fisheries legislations, the
project should give consideration to providing further assistance to participating countries
in revising and harmonising national and regional fisheries legislation.
4. Habitat and Biodiversity Conservation
Although emphasis has been given to capturing baseline data on key habitats and species within
the region, there is still a very important need to develop proper on-going and long-term
monitoring programmes at both the national and regional level. Information-sharing must also be
a critical concern if these efforts are to be effective at the regional level, and if transboundary
effects are going to be taken into account. The new Reference Facility should help to support
accessibility to up-to-date information as long as there are clear and transparent mechanisms in
place to allow for such accessibility.
It is important that international agreements are captured in national legislation and policy. In
particular there is a need to review the regional protocols on biological diversity and special
protected areas.
PERSGA to finalise all the training plans and convince the countries of the
importance of training for their qualified national specialists;
Countries should select for the training courses appropriate specialists from research
agencies that are involved in the conservation of the marine environment;
PERSGA to give attention to the importance of monitoring plans as an important
part of the implementation of the RAP;
Develop a systematic strategy for national monitoring programmes which can be
reviewed on a regional basis;
Develop programmes for rehabilitation and conservation, in selected and relevant
areas in the region, supported by effective funding;
Assist countries to review their national commitments to relevant international
agreements, particularly within their national legislation.
32
5. Marine Protected Areas
The overall intention behind this component is to develop a higher level of protection for
regionally representative marine biodiversity at critical sites within the Red Sea and Gulf of
Aden. This recognizes the fact that all coastal areas will need some level of management and
protection. This will be addressed by other components (LMR, HBC and ICZM). However,
certain areas are considered to be of critical importance because of their high level of
biodiversity and/or endemism coupled with potential threats to such biodiversity and endemism.
The components end-goal is to identify such areas within the region; to develop site-specific
management plans for such areas; to provide some degree of support to the establishment and
management of selected sites (equipment, technical expertise, etc); to encourage government
commitment to the designation, legal protection and financial sustainability of these MPAs; to
create a mechanism within the region to coordinate and network between the MPAs so as to
share knowledge, experience and best practices in MPA survey, monitoring designation and
management. As an overarching requirement for this component, the project recognizes the need
to include all stakeholders (including local communities, NGOs, private sector, as well as
government agencies) in the selection, development and management process for these MPAs.
Recommendations under this component include:
a) PERSGA and the Working Group Members to define a clear strategy for networking the
MPAs with a workplan and deadlines. This strategy should identify a national support
system as well as looking at the feasibility of creating or designating an MPA networking
centre within the region. Consideration should be given to the site and the funds needed
for such an MPA coordination centre or designated body;
b) PERSGA to draft a Letter of Agreement or similar protocol, defining country agreements
to share MPA site plans and management experiences, as well as the intent to exchange
MPA staff on experience visits. The Lead Specialist should coordinate the development
of such a Letter or Protocol with the countries and should identify any associated costs.
This should be coordinated via a networking centre or body when and if this is
established. However, this activity should not wait for the establishment of such a centre
or body;
c) The Lead Specialist to provide the countries with an update on the status of the legislative
consultancy necessary for establishment of the MPAs, including proposed workplan and
time-schedule for visits, as well as Terms of Reference;
d) UN GEF Implementing Agencies to coordinate between themselves and UN High
Commission for Refugees on the possible threat to the selected MPA site in Somalia
which would result from the intended plan to relocate some 30,000 refugees adjacent to
the MPA and to encourage subsistence fishing within this new community. The Lead
Specialist will advise the UN GEF IAs on the background and status related to this issue.
6. Integrated Coastal Zone Management
This project component recognizes that an overarching challenge to the successful management
of the coastal and marine environment and the sustainable use of its resources lies in weak
coordination between government sectors (Ministries, government agencies, statutory bodies),
overlapping responsibilities, questions of jurisdiction and accountability, conflicting interest and
33
responsibilities, and the need to include all stakeholders in the planning and management
process. These problems are effectively common to all of the project components, and this
component has the overall responsibility to coordinate and integrate the management of activities
within all of the other components.
In order to address the need for such a coordinated management approach, the component aims
to integrate the activities of many diverse but related groups and sectors, through an overall
management strategy. This will require linkages and coordination to be developed at the national
level between planning departments and bodies: agencies responsible for water management,
waste treatment, tourism, town planning, public works, industrial coastal complexes, fisheries,
etc.
This is no simple task. However, there are plenty of best practices and examples of
successful ICZM approaches and strategies available around the world. These may not always be
entirely suitable to the PERSGA situation but their components may provide useful guidance.
The end-goal of this component should be the development of national ICZM plans that clearly
demonstrate the interactive and integrated nature of the management and monitoring process.
This may best be achieved through the development of a regional Model Plan, which can be
amended and adapted to suit each national situation. Currently the project is developing a Model
ICZM Plan in Yemen, and intends to expand this approach to both Sudan and Djibouti.
The outputs from the other project components need to be integrated into the development and
implementation of such ICZM plans. Such a Plan needs to define the role of MPAs, sustainable
fisheries, habitat and biodiversity conservation, and the need to monitor and control potential
threats from marine pollution, within its overall strategy. Clearly stakeholder participation and
public awareness are going to be critical to the overall successful implementation of the Plan.
With this in mind the project should view this component as the linkage between all other
components in the development of an overall strategy for coastal zone management. Therefore
each component should provide input and guidance to the ICZM component on the development
of an overall national ICZM Plan for each country. This will require close coordination between
the Lead Specialists and between the National Working Group Members: Recommendations
under this component include:
a) PERSGA and the IAs to collaborate in an urgent review of the ICZM component status,
workplan and budget allocations (disbursed and planned) with A. a view to establishing
the feasibility of completing all activities and outputs under this component by the end of
the project as currently scheduled, and B. assessing the feasibility, time-scale and budget
implications of extending this component beyond the currently agreed project lifetime.
b) PERSGA (through the STA and ICZM Lead Specialists) to organize and convene a
Regional Workshop for all Lead Specialists and all Working Group Members to develop
a strategy and work-plan on the incorporation of all component outputs into draft national
ICZM Plans.
c) The Lead Specialists to coordinate closely with the Training Coordinator and PERSGA
Management to place emphasis on delivering any outstanding training and implementing
any outstanding workshops scheduled under this component.
34
d) Lead Specialists to coordinate with project countries in the region to identify any best
practices or lessons in ICZM, which exist in the partner countries, and to capture these
for incorporation into national ICZM plans where appropriate.
e) Countries to review ToR for GIS consultancy and comment on their applicability and
value to the countries and the region as a whole. The ToR should specify the necessary
linkages to database management, storage and information management as well as the
need to use remote sensing imagery for baseline and management maps. ToR should also
require the consultancy to identify mechanisms for capturing existing national practices
and expertise within the region in GIS and other related activities.
f) Task Force should agree on the suitability of the location for the regional GIS capacity
and data storage centre.
7. Public Awareness and Participation
In order to build support and understanding for the project objectives (across all sectors - be they
public, private, community, international, etc) it is necessary to raise the awareness within these
sectors of the problems which threaten coastal and marine environments in the region, of the
interrelated nature of many of the socio-economic and political issues which create these threats,
and of the importance of proper management and protection of the marine and coastal
environment to the well-being of the people and governments of the region. PAP represents a set
of project activities and outputs which encompass the work of all the other components, and
therefore requires cooperation and coordination between this component and all others.
The end-goal of this component would be to provide a certain level of sensitivity and knowledge
toward project objectives within most of the sectors within each country. In particular the
component needs to focus attention on educating senior level decision-makers and policy-
definers in the aims of the project and its importance on a national and regional basis. However,
perhaps more importantly, the project component should leave a legacy of capacity and
strengthening to certain bodies and agencies so that they can continue promoting awareness on a
long-term basis. These include national and international NGOs, teachers, school groups, etc.
Recommendations under this component include:
a) The Lead Specialist to provide the countries (project staff and active NGOs) with clear
definitions of national and regional issues of coastal management to guide them in the
development of a Public Awareness strategy and in the development of suitable
materials. This strategy should create a coordinated role between the project and national
NGOs so as to encourage greater cooperation with and involvement of the NGO
community in project activities and objectives.
b) The Task Force to discuss mechanisms for raising awareness about, and sensitivity to,
project objectives within national and regional policy-makers. The Task Force should
consider using its relationship to the PERSGA Council as a means to raise awareness on
many regional issues.
35
c) The Lead Specialist should coordinate with the responsible staff member(s) in PERSGA
to develop a more comprehensive publication targeting international audiences, and
presenting project achievements as well as project challenges in order to foster more
international awareness and support.
d) PERSGA to develop a more streamlined approach to the review and approval of micro-
grants as part of its revised administrative procedures (see general Recommendations-
above).
8. Monitoring and Evaluation of Programme impacts
The project management must now place a high priority on the development of a concrete, time-
bound plan for implementation and execution of this component. The following outputs are now
essential:
Adopt a model Annual Report and standard report formats;
Define performance and progress indicators for each component;
Specify environmental and socio-economic achievement indicators for each component;
Design a time-related monitoring programme for the project and for the SAP;
Organise and implement regional training workshops on standard progress monitoring
techniques for the thematic expert working groups;
Prepare for the Final Project Evaluation by ensuring project staff are aware of time-
schedules and the indicators by which they will be evaluated.
D. Lessons for Future GEF Projects
1. One aspect that has become clear from this project, and which needs to be considered in
the development of future GEF projects, is the unrealistic expectation that all of the
countries are ready to start implementation at the same level at the same time i.e. when
the project starts. In a regional project of this nature there will inevitably be some
countries that are more advanced and some that need a lot more time to build their
capacity and to train their personnel and strengthen their institutions, in order to execute
the project. An early project objective should be a comparison of country capacities and
the development of a strategy to strengthen the weaker capacities in certain countries
using the strengths of the other countries and the region as a whole. A clearly identified
capacity-strengthening phase (prior to commencement of regional activities) would also
allow time for certain staff to receive more concentrated or extended training without
losing their skills and presence from the activities for which they are responsible (due to
their physical absence from the project while training). This has been a problem which
has dogged many previous GEF projects. During these early stages, institutional building
and training would be the emphasis with public awareness running in parallel to bring the
36
public and the policy-makers up to speed on the projects objectives prior to start-up of
the SAP activities phase.
2. In future, GEF Project Documents need to define and clarify from the outset the lines of
responsibility and accountability, and all correct and expected processes relating to
project administration and management. This should be unambiguous and should be
included as a Project Management Process annex.
3. GEF IAs needs to develop clear guidance and criteria within an agreed project document
for training to ensure the correct people attend the training, the their training is used back
home, and that they are supported to be useful to their parent institutions. Undoubtedly it
is up to the country to select the candidates that they feel are the most suitable, but it is
also the GEF IAs responsibility to ensure that donor funding is properly channelled and
disbursed to achieve project objectives.
4. GEF needs to provide a clear and unambiguous explanation in its documents of country
commitment through in-kind contributions. This is particularly important where
government staff is being assigned by the country to work on project issues. These staff
needs to be supported by the government as far as equipment and consumables are
concerned, as well as administrative support (unless otherwise specified within, and
funded by the project).
5. Finally, GEF should attempt to be more realistic within future project work-plans and
logical frameworks with respect to what can be achieved over a defined period of time. In
the case of a regional project of this nature, it may be necessary to be either less
ambitious with respect to outputs and deliveries, or more generous vis-à-vis timescale
and length of work-plans (realising that this will almost certainly have implications for
budget requirements). It might be more appropriate to identify clear benchmarks of
achievement within a project following which project evaluation can take place prior to
moving on to the next stage of execution.
37
ANNEX I
LIST OF PERSONS CONTACTED
Egypt
Dr. Mahmoud Khamis: Vice Dean, Faculty of Science, Alexandria University - Task Force
Member.
Dr. Ibrahim Abdul Gelil: Chief Executive, Egyptian Environmental Affairs Agency - National
Focal Point
Yemen
Dr. Mohamed AbuBakr - NPC
Jordan
Dr. Bilal Bashir Task Force Member
Khaled Abuaisheh Working Group Member (WGM) for ICZM
Abdualla Abu Awali WGM MPA
Dr. Marouf Halad WGM LMR
--------- WGM PAP
Sudan
Dr. Nadir Mohammed Awad - Task Force Member
Dr. Maghoub Hassan NPC
Osman Mohammed Farah WGM LMR
Ohmar Ahmed Hassan Siam WGM Nav. & Mar. Poll.
Mohammed Mustafa Eltayeb WGM MPA
Sulamin Ibrahim WGM PAP
Dr. Yousif Abu Giddiri Team Member for Special Review
Amin Atash Vice-Chancellor Red Sea University, Port Sudan (Hosting PERSGA Office)
Djibouti
Mohamed Ali Moumin Task Force Member
---------- - NPC
Hussein Rirech - WGM MPA
Saudi Arabia
Osama Qurban, Task Force Member
PERSGA
Dr. Nizar Tawfiq Secretary General, PERSGA
Dr. Mohammed Fawzi - Deputy Secretary General, PERSGA
Dr. Saiyed Al-Khouli Project Manager, PERSGA PCU
Dr. Dirar Nasr PCU Coordinator
Dr. Mohammed Abdallah Lead Specialist LMR
Mohammed Younis Lead Specialist MPA
38
Khulood Tubaishat - Lead Specialist PAP/ICZM
Osama Qurban Joint Lead Specialist ICZM
Dr. Abdul-Majeid Haddad UNDP Programme Manager
39
ANNEX II
MID -TERM EVALUATION (MTE) PROCESS
Terms of Reference for the MTE
The terms of reference specified that the Mid-Term evaluation will attempt to determine as
systematically and objectively as possible the relevance, efficiency, effectiveness, impact and
sustainability of the programme. The evaluation will assess its achievements against the
objectives and specific activities as set out in the PIP. This will require an examination of the
objectives and of the design towards achieving the goals. The evaluation will thus cover the
following four areas:
a) Programme concept, implementation design;
b) Follow up on recommendations of the Special Review study;
c) Programme Achievements so far; and
d) Lessons learned to date and identification of areas for corrective actions
This evaluation will focus on reviewing the 8 components of the SAP Project mentioned under
1.1 above.
The focus, while primarily technical, will also include institutional aspects. In the case of
component 8, the review will be limited to the preliminary planning process that has been
undertaken to date.
Mid -Term Evaluation Process
The evaluation process as stipulated in the TOR is as follows:
a) Review of available project-related documents;
b) Interviews
with
relevant
stakeholders
from
national
institutions,
experts,
and
Implementing Agencies.
Annex I provides a list of persons consulted. The detailed notes of the Evaluation Team on visits
to Member Countries and to PERSGA PCU are available from PERGSA.
Composition of the MTE Team
The evaluation team is composed of 3 consultants from the region and one international
consultant. All consultants are highly qualified, of every high calibre and each of them have
significant experience in their area of specialization. The team includes the following
individuals:
40
Professor Mostafa K. Tolba - Team leader (Egypt)
President of the International center for Environment and Development (ICED)
Former Executive Director of UNEP for 17 years, one of the three Heads of Agencies who
negotiated the establishment of the GEF. As Executive Director of UNEP he established the
whole Regional Seas Programme. He covered the components on institutional strengthening and
Monitoring and Evaluation of Programme Impacts as well as overall coordination of the Mid-
Term Evaluation.
Dr. David Vousden - Deputy Team Leader (United Kingdom)
International Consultant with long experience in international waters projects. He reviewed the
components on Living Marine Resources (LMR), Marine protected Areas (MPAs), Integrated
Coastal Zone Management (ICZM) and Public Awareness and Participation.
Professor Mohammed Farghaly (Egypt)
Vice President, Arab Academy for Science, Technology and Maritime Transport and Professor
of Navigation Safety. He reviewed the component on Reduction of Navigation Risks and
Maritime Pollution.
Professor Mansour Sijiny (Saudi Arabia)
Professor of Biology, King Abdel Aziz University, Saudi Arabia. He coordinated with PERSGA
on the visits to Jeddah and the cooperating countries and reviewed the component on Habitat and
Biodiversity Conservation.
41
ANNEX III
MAIN CONCLUSIONS AND RECOMMENDATIONS OF
THE SPECIAL REVIEW
General Recommendations
Immediate development of an environmental management system with a GIS core at PERSGA
headquarters is necessary for integrating and analysing data from all components for future
decision-making.
It is essential to realize that capacity building is one of the main targets and training is a means of
producing tangible output; hence the on- the job training is the most effective. Coordination of
training programs among various components, especially MPA, LMR and HB is necessary.
Criteria for selecting trainees and follow-up of what they do after to their countries guarantee the
effective sustainability of a main product of the project.
Integration among components is an essential element, yet it has been noticed that the TOR of
the CTA or the PM does not emphasize that and little has been achieved in that direction.
The sustainability of SAP and the GEF project is a main concern to the Review Team and to
many LSs.
There is a need to delegate the power to engage consultants to the PM with the proviso that:
There is an agreement on a ceiling for each components consultants based either on
the estimated costs or the duration of the consultancy;
There is a mandatory requirement for the PM to report regularly to the TF/PSC
regarding hiring of consultants, including a summary of what they have achieved and
at what cost;
Public awareness programs developed by various components of SAP should be consulted over
with PAP component. Inside country networking should also be given attention. It is necessary to
activate the role of NPC and make their activities available to all member countries (perhaps
through a web page).
It is essential to activate the work of the Working Groups at both national and regional levels.
There is also an urgent need to ensure co-operation between focal points, programme Co-
ordinators and members of working groups at the national level and to facilitate exchange of
information among them.
The Review Team believes that the Task Force should be changed to Project Steering Committee
(PSC). The primary task of the PSC will be to set the policies and provide guidance
(institutional, political and operational) and direction for the Project to ensure that it remains
42
within the agreed SAP framework. It will approve budgets and any changes in the program. The
PSC will also provide an oversight for all the components of the Project and facilitate
communication to the Project from throughout the region and the donor community and vice-
versa.
Specific Recommendation of the Special Review
Component 3 - Living Marine Resources
a) Formation of a Commission for Fisheries that include as members PFRSGA,
Organizations like FAO, IFAD, Stakeholders and others.
b) Establishment of Fisheries Database.
c) Establishment of GIS for LMR for specific species.
d) More regional involvement of countries of the region
Component 4 - Habitat and Biodiversity Conservation
The Lead Specialist believes that in spite of the delay in the start of the implementation, they
will manage to achieve the goals if topping of funds of GEF from non-GEF resources is
secured. This does not seem to be feasible to execute the expected outputs within the
remaining time frame. Perhaps a trimming down of the expected outputs to a realistic level
could lead to reasonable success.
The duplication and overlap between most of the activities in this component and those of
component 5 on "Development of a Regional Network of Marine Protected Areas" justify
merging the two components into one component, (Habitat and Biodiversity Conservation
including Marine Protected Areas).
Component 5 Marine Protected Areas
Proper and detailed surveys of MPAs, identifying other unrecognised MPAs, establishing
boundaries, legislation, biodiversity, socio-economic conditions, threats and potential impacts
and vulnerability, should be carried out.
Revising guidelines taking into account threats and potential impacts and reconsider priorities for
action.
Data collected should be encoded to a GIS for future integration with other components and
further analysis.
Component 6 Integrated Coastal Zone Management
a) Focus on the integration element of ICZM or ICAM
b) Focus on the planning stages rather than the management stages
c) Test the Integrated Coastal Planning Process through a series of Pilot Projects
d) Build capacity through Training Courses
43
e) Convert all data gathering and GIS initiatives into an Information Management
Strategy
f) Arrange accessible advice, guidance and support.
Some of these conclusions and recommendations of the Special review have already been treated
as a priority by PERSGA, the IAs and the Project authorities and staff themselves, and
consequently have been implemented prior to the MTE. Others are being acted upon, while some
of the recommendations are still under consideration. The Review Team is fully aware that
decisions on this project are the sole responsibility of the Council of Ministers and its Task
Force.
44
SEMI-QUANTITATIVE ANALYSIS OF WORK-PLAN ACHIEVEMENTS
ESTIMATED PERCENTAGE OF WORK-PLAN COMPLETED BY MTE
5 10 15 20 25 30 35 40 45 50 55 60 65 70 75 80 85 90 95 100 1-5 Rating
Preparations & Regional
Coordination
1.1
Recruitment of Staff
5
1.2
Set up the PCU
5
1.3
"Launching Workshops"
5
1.4
Regional Task Force Meetings
3
1.5
Review opportunities for
financing
0.5
1.6
Red Sea Environment Fund
0.5
Component Average =
3.2
Navigation & Maritime Pollution
2.1
Establish Navigation WG &
meeting
5
2.2
Baseline study for Maritime
Conventions
5
2.3
Reporting and consultation on
MC
5
2.4
Ratification of IMO + ILO
conventions
3.5
2.5
Review developments on PSC
5
2.6
Decide required measures
5
2.7
Draft & implement MoU on
PSC
2.5
2.8
Review proposals for TSS
5
2.9
Discuss with IMO and report to
the WG
5
2.1
Define provisions
5
2.11
Implement TSS
5
2.12 Define 2 areas for hydrographic
surveys
5
2.13
Study costs and report to the
WG
5
2.14
Contract and execute
5
2.15
Define and implement the
programme
5
2.16
Prepare TOR for study of
VTMS
5
2.17
Consult authorities/Report to
WG
5
2.18
Execute feasibility study
2.5
2.19 Evaluate study and its financing
0.5
2.2
Contract and execute
0.5
2.21
Prepare TOR for study of
Regional OSCP
5
2.22
Carry out study and report
5
2.23
Implement the strategy
1.5
2.24
Prepare TOR for MEMAC
5
2.25
Update its contingency plan
5
2.26
Decide on its future actions
2.5
2.27
Provide training
2.5
Component Average =
4.1
45
Living Marine Resources
3.1
Establishment of the WGs and
meetings
4.5
3.2
Standardized methods for data
collection
3.5
3.3
Design and conduct Fisheries
Management courses
2.5
3.4
Produce Identification Guide to
LMR
3
3.5
TOR for transboundary stock
assessment
1
3.6
Assess financing opportunity for
3.5
0.5
3.7
Socio-economic assessment of
shark fisheries
3
3.8
Develop & implement
Management Strategy for
transboundary stocks
2
3.9
PA in support of 3.8
2.5
3.10
Feasibility study on regional
fisheries monitoring and
surveillance
1
Component Average =
2.4
Habitat and Biodiversity
Conservation
4.1
Establishment of the WGs and
meetings
4.5
4.2
Conduct training on conservation
issues
4
4.3
Seasonal surveys for key species
2
4.4
Develop & implement
biodiversity conservation plan
2.5
4.5
Survey status of key habitats
3
4.6
Organise regional workshops
2.5
4.7
Develop Regional Habitat
Conservation Plan
1
4.8
Identify control mechanism to
habitat exploitation
2
4.9
Regional agreements/protocols on
habitat and wildlife conservation
2
4.10
Study financing opportunties for
4.4 & 4.7
1
Component Average =
2.5
Regional Network of MPAs
5.1
Establishment of WG and
meetings
4.5
5.2
Develop Region-specific MPA
guidelines
3
5.3
Develop a Regional Master Plan
4
5.4
Conduct MPA training &
exchange prog.
2.5
5.5
Develop & implement site-
specific MPAs
2.5
Component Average =
3.3
46
Integrated Coastal Zone Management
6.1
Establishment of WG and
meetings
3
6.2
Regional training workshops
1.5
6.3
Establishment of national
working groups
2
6.4
Design model ICZM studies
2
6.5
Prepare model ICZM studies
2
6.6
Review GIS at regional level
2.5
6.7
Design regional GIS network
2
6.8
Prepare national GIS information
2.5
6.9
Prepare regional GIS information
2
Component Average =
2.2
Public Awareness and Participation
7.1
Establish WG and meetings
4
7.2
Produce & disseminate PA
materials
3.5
7.3
Develop Micro-Grant Programme
3.5
7.4
Organise workshops & initiate
dialogue
3
7.5
Assess & NGOs participation
3.5
Component Average =
3.5
Monitoring & Evaluation of Prog.
Impacts
8.1
Define performance & progress
indicators
0.5
8.2
Develop model annual report
3.5
8.3
Design a monitoring programme
0.5
8.4
Conduct regular monitoring and
evaluation
2.5
Component Average =
1.8
PROJECT AVERAGE =
3.1
47
ANNEX IV
EXAMPLES OF POSSIBLE DEMONSTRATION
ACTIVITIES
Below are some initial examples of possible small-scale demonstration activities which would
not only develop best practices for incorporation into national ICZM Plans (and a possible
regional Model Plan), but would also represent concrete benefits to the countries in which these
activities are selected and sited. The need for additional funding is inevitably a major
consideration. It is proposed that such funding might be leveraged from co-funders, many of
whom committed substantial funds to the project during its development phase but whose
contributions have still to be realised. These co-funders may be willing to fund stand-alone
activities of this nature with a clear beginning and an end, with a discrete workplan and with an
autonomous budget that can be easily regulated and managed. These activities would need to be
closely coordinated with and through the overall PERSAG project but management and financial
arrangements could be effectively separate. The advantages to the project and the countries are
obvious.
The project, through its STA and TAG, would develop transparent criteria for the selection
process for such demonstration activities which would then be approved through the Task Force.
It should be noted that these are merely some representative examples of what could be targeted
within the region. The STA will work with TAG and the Lead Specialists to define some
acceptable demonstration concepts. The countries themselves can then build on these concepts
by way of concrete proposals to PERSGA, PERSGA would then negotiate with other co-funders
to identify and commit funding to the demonstration activities.
Example 1:
Integrated Coastal Zone Management as a model related to
specific threats and root causes.
Funding could be provided to develop a specific ICZM for a specific
region such as Yanbu (Saudi Arabia) where the issues are clearly focused
on industrial development and related threats such as discharges, Another
example might be the Gulf Of Aqaba or Gulf of Suez which seem to have
nearly all sectoral elements of coastal zone management within a small
area (e.g. tourism, industry, development planning, water treatment, etc)
and could present good examples for a truly integrated approach within a
small area.
48
Example 2:
Transferred benefits as sustainable approach to ICZM.
In this example, emphasis would be placed on working closely with
coastal resource stakeholders to define an acceptable ,,user-pays
approach. The tourism industry, for example, accrues many benefits from
the coastal area, which manifest themselves as profits to this private
sector. They should therefore be fairly supportive (if approached correctly)
to transferring some of these benefits back into the welfare of the coastal
area. Such transfer of benefits could include funding support for coastal
surveys and monitoring, setting up mooring systems along reefs to avoid
anchor damage, developing water treatment facilities and better laundry
practices to reduce contamination, etc.
Example 3:
Wastewater management as a model, integrated approach to coastal area
management.
This example could look at best practices for developing a wastewater
management plan for a large urban development. It would incorporate
elements of funding sources, best management practices (integrated
management
through
stakeholders),
monitoring,
micro-grants
for
individual establishments to connect with the treatment facility, etc.
Example 4:
Fisheries stakeholder management strategy.
The aim here would be to develop an example, in an appropriate area, of
self-regulation within a commercial exploitation sector such as fisheries.
Funding could be provided to develop landing areas, to teach fishermen
best fishing practices with the emphasis on sustainability and cost-
effectiveness as well as protection of non-target species, to create simple
but effective monitoring programmes within the fisheries community, and
to put aside some income from fisheries toward community improvements
related to poverty eradication, health and welfare.
Example 5.
Community Management of MPAs.
This example would aim to develop a model MPA through survey,
selection, designation, and establishment of a management plan, to active
implementation including enforcement, monitoring and public awareness.
The emphasis throughout would not just be on community involvement
but more specifically on empowering the community to manage the MPA,
to monitor its welfare, to ensure compliance to regulations and legislation
both within and outside the community. Government would effectively
rescind day-to-day management responsibility to the community (who
may seek NGO assistance if desired). Within this approach could be
included the concept of Alternative Livelihood development with the
49
community switching from threatening livelihood practices such as
fishing, to more sustainable and supportive practices such as tour-guides
and awareness centres, etc. The revenues collected from the park could be
centrally managed by the community to provide salaries for monitoring
and enforcement with consideration being given to a small percentage
being made available for community development and improvement.
Example 6.
Sustainable Aquaculture
Either national demonstration projects or one regional pilot programme for
sustainable aquaculture could be developed as an on-the-ground ,,delivery
example. This would look at integrating community needs vis-à-vis
employment and nutritional requirements versus possible public-private
sector investments to develop environmentally acceptable and sustainable
aquaculture in relevant areas.
50