Regional Organization for the Conservation of the Environment
of the Red Sea and Gulf of Aden (PERSGA)
Terminal Evaluation
of the GEF Supported Project
for the Implementation of:
The Strategic Action Programme (SAP)
for the Red Sea and the Gulf of Aden
FINAL REPORT - APRIL 2004
PERSGA "The Regional Organization for the Conservation of the Environment of the Red
Sea and Gulf of Aden" is an intergovernmental organisation dedicated to the conservation of
the coastal and marine environments in the region.
The Regional Convention for the Conservation of the Red Sea and Gulf of Aden Environment
(Jeddah Convention) 1982, provides the legal foundation for PERSGA. The Secretariat of the
Organization was formal y established in Jeddah fol owing the Cairo Declaration of September
1995. The PERSGA member states are: Djibouti, Egypt, Jordan, Saudi Arabia, Somalia,
Sudan and Yemen.
PERSGA, P.O. Box 53662, Jeddah 21583, Kingdom of Saudi Arabia
Tel: +966-2-657-3224, Fax: +966-2-652-1901. Email: persga@persga.org
This report was prepared by Meriwether Wilson, Lucien Chabason and Tarek Genena,
under contract to and with the cooperation of PERGSA, in response to GEF requirements to
conduct a "Terminal Evaluation of the GEF Supported Project for the Implementation of the
Strategic Action Programme for the Red Sea and Gulf of Aden".
"The comments expressed in this document represent the opinion of the authors acting in their
own capacities and do not necessarily represent the views of PERSGA or the agencies that
assisted with funding the preparation of the report. Any outlines, descriptions presented do
not imply the expression of any opinion, on the part of PERSGA or any funding agency,
concerning the legal boundaries of any state, territory, city limit, frontier or boundary."
Citation: PERSGA/GEF 2004. Terminal Evaluation of the GEF Supported Project for the
Implementation of the Strategic Action Programme for the Red Sea and Gulf of Aden.
PERSGA, Jeddah.
Photographs: Al photographs by PERSGA SAP participants.
ii
CONTENTS
Executive Summary
iv
Acronyms
x
I GEF SAP Project Overview
1
II Terminal Evaluation Scope
4
III Evaluations of Components
1. Institutional Strengthening to Facilitate Regional Cooperation (IS)
8
2. Reduction of Navigation Risks and Maritime Pol ution (NAV)
15
3. Sustainable Use and Management of Living Marine Resources (LMR)
20
4. Habitat and Biodiversity Conservation (HBC)
25
5. Development of a Regional Network of Marine Protected Areas (MPAs)
29
6. Support for Integrated Coastal Zone Management (ICZM)
33
7. Enhancement of Public Awareness and Participation (PAP)
38
8. Monitoring and Evaluation of Programme Impacts (M&E)
40
IV
Evaluation Ratings and Analysis
43
V.
Emerging Initiatives
-
Protection of the Marine Environment from Land-Based Activities
48
-
Regional Action Plan for Marine Contingency Planning
48
-
Regional Environmental Monitoring Programme (REMP) for RSGA
49
-
Demonstration Projects
50
VI.
Concluding Recommendations
56
ANNEXES:
A.
Evaluation Mission Regional and National Visits
66
B.
List of documents reviewed by the Terminal Evaluation Mission
71
C.
PERSGA SAP Project Publications Summary
75
D.
PERSGA SAP Training Summary
77
E.
Evaluation Team TORs and Biographies
79
iii
EXECUTIVE SUMMARY
This summary provides an overview of the Terminal Evaluation for the GEF Supported
Project for the Implementation of the Strategic Action Programme (SAP) for the Red Sea
and Gulf of Aden (RSGA). This summary is designed to not only share report findings, but
to also profile the Projects considerable achievements and make a case for partnerships to
help carry the SAP forward to new horizons. Through such collaboration, the commitment to
environmental knowledge and human values demonstrated in this Project can continue, and
ensure that the vital resources of the globally significant RSGA are appreciated, studied and
wisely utilised for generations to come.
Red Sea and Gulf of Aden Context
The Red Sea and the Gulf of Aden supports the some of the worlds most significant marine
and coastal species and habitats, and related marine resources, due to its globally distinct
oceanographic and geologic evolution and location. The average width of the Red Sea is
280 km; depth ranges from 500 m down to 2000 m. The Gulf of Aden has depths of over
3000m, is heavily influenced by seasonal upwelling, and is bound by 1,400 km of coast on
the northern side and 800 km along the southern coast. The RSGA region is dominated by
an arid coastal zone with minimal freshwater resulting in tropical clear waters that support
vibrant coral reefs and associated communities, many of which are endemic to this region.
The marine resources of the RSGA area have sustained human cultures for centuries. In
comparison with other ,,semi-enclosed seas in the world, this region is relatively pristine from
an ecological perspective. However, the present transboundary and region-wide concerns
are far-reaching and require national-regional-international coordination to minimise loss of
vital ecological and economic services to the people of the RSGA region
PERSGA & the SAP Process
In view of the growing environmental threats to this ecologically and economically important
area of the world, ALECSO established the Programme for the Red Sea and Gulf of Aden
(PERSGA) in 1974. This was followed by creation of the "Regional Convention for the
Conservation of the Red Sea and Gulf of Aden" in 1982 known as the Jeddah Convention.
The seven Arab League member nations Djibouti, Egypt, Jordan, Saudi Arabia, Somalia,
Sudan and Yemen - signed the convention and helped to establish PERSGA, an
intergovernmental organisation to implement the Convention. PERSGA is based in Jeddah
and is hosted by the Kingdom of Saudi Arabia.
In line with the goals of the Global Environment Facility (GEF) International Waters Focal
Area, the GEF supported the preparation of a Strategic Action Program (SAP) for the Red
Sea and Gulf of Aden from 1995-1998. Subsequently PERSGA and partners prepared a
GEF full-project proposal, resulting in approval by the GEF Council for $19 M GEF support,
and anticipated co-financing through other partners (e.g. IMO, FAO and the Islamic
Development Bank), to be implemented during 1999-2003. The global objective of this
Project is to: safeguard the coastal and marine environments of the RSGA and ensure
iv
sustainable use of its resources. This 5 year GEF Project phase of the SAP targets
complementary, preventive and curative actions, responding to previous SAP planning
exercises.
The project is executed jointly between the 3 GEF implementing agencies (UNDP, UNEP
and World Bank). Early in the development of the Project, a Project Implementation Plan
(PIP) was prepared to detail the activities and provide a framework for further elaboration of
logical frameworks, budgets etc. The Project actions collectively address the transboundary
nature and sustainable development of marine resources for the RSGA region as a whole,
and are organised around the following objective-based components:
1. Institutional Strengthening to Facilitate Regional Cooperation (IS)
2. Reduction of Navigation Risks and Maritime Pol ution (NAV)
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 (MPAs)
6. Support for Integrated Coastal Zone Management (ICZM)
7. Enhancement of Public Awareness and Participation (PAP), and
8. Monitoring and Evaluation of Programme Impacts (M&E)
Terminal Evaluation Scope
This Terminal Evaluation (TE) is designed to assess the global and detailed performance of
the project as compared to the objectives presented by the PIP and supporting project
documents. The TE was conducted by a three person team (hereafter 'mission') with
collective experience in the region, as well as other international ,,regional seas and GEF
project experiences. The TE used the description of activities, outputs and main indicators,
as well as recommendations from the Mid-Term Evaluation findings from 2002. The TE was
conducted at both the regional and the national levels, from which results were integrated.
The mission met with staff at PERSGA, as well as in-country missions to all countries except
Somalia (who was engaged predominately through a questionnaire process).
The evaluation mission reviewed the entire phase of implementation (1999-204) taking into
account, re-orientations and re-scheduling decided for some components. Therefore some
components which are only getting underway due to design changes from the MTE (e.g.
demonstration projects and other emerging initiatives) are not evaluated to the same degree
as the core 8 components listed above. The evaluation mission wishes to thank the many
individuals and organisations who made this evaluation possible.
Chapter II of this evaluation focuses on the interface between the core 8 project
components (IS, NAV, LMR, HBC, MPA, ICZM, PAP and M&E) and GEF criteria, as well as
perspectives on the Project overall in light of the GEF Criteria. Chapter III of this report
provides the core reviews of the eight components, while Chapter IV presents a rating and
related discussion of the Project based on the GEF Criteria and Rating. Chapter V of this
report, summarises the ,,demonstration projects and other emerging initiatives. Chapter VI
presents concluding lessons and recommendations. Annexes complement the main report
and illustrate the considerable depth and scope of this SAP Project.
Component Highlights and Findings
The following provides a synopsis of the component highlights and findings which are
detailed in Chapter III, evaluated in Chapter IV and provide context for the recommendations
in Chapter VI.
v
1. Institutional Strengthening to Facilitate Regional Cooperation:
This component addresses the cross-cutting human resources architecture and leadership
of the Project as demonstrated through the Projects diverse and substantive range of
planning, preparation, reporting, technical, strategic and action plan training and resulting
documents. The most enduring aspect of this component is the network of people working
together throughout the RSGA area, including: PERSGA, the Council of Ministers for high-
level policy dialogue; the Task Force with representatives from key national and international
bodies, and the technical leadership of the Lead Specialists, Thematic Experts and National
Coordinators. Some activities were compromised due to the complex and ambitious nature
of this Project and the relatively short time of 5 years including start up and post-GEF
transition. A Red Sea Fund has not yet been established as was original y envisaged but a
PERSGA strategy and business plan to address the post-GEF climate is now in preparation.
2. Reduction of Navigation Risks and Maritime Pollution:
This component has been successful at strengthening the existing network of competent
authorities to address a range of maritime safety and pol ution mitigation chal enges within
short to long term time frames. Partnerships with IMO and working groups have been
established. Core achievements include surveys of the southern Red Sea, resulting in new
routing measures and maritime charts. Other activities that have been advanced to varying
degrees, and which will be continuing, include: the establishment of MEMAC (Marine
Emergency Mutual Aid Centre) in Hurgada and assistance to seek sustainable functioning of
the Djibouti sub-regional Stockpile Equipment; navigation aids (lighthouse in Yemen); as well
as marine contingency planning and port state control. Activities conducted in this
component are highly relevant to the regional transboundary character of the RSGA area
and warrant focused continued effort and replication across a range of scales and time
frames.
3. Living Marine Resources:
This component has lead on workshop-based training related to the establishment of present
status and levels of knowledge, and fishery survey and monitoring methods for a range of
living marine resources species. Data collection capacity and centers are established
throughout the region. Efforts to better understand and ultimately manage the ,,shark fin
trade as well as sustainable ornamental trade has advanced but needs fol ow-up. Regional
centers for training in Saudi Arabia and Yemen are established with support from host
countries. Regional networks of fishery stakeholders across a range of issues, locations and
scales is now in place. The excellent partnership with FAO should be continued and
replicated with other partners. Next steps include the acceleration of capacity for the various
centers. Work on fisheries monitoring and management with other partners should continue,
with an emphasis on implementation and provision of equipment facilities to follow-on from
the training and to start monitoring programme which will continue to update status on the
RSGA region. LMR links with HBC and MPA themes should be further integrated.
4. Habitats & Biodiversity Conservation
This component has also resulted in an excellent network of researchers and stakeholders
through a broad suite of training and workshops and on-the-ground work resulting in critical
baseline data on key habitats and species. This component has enhanced the knowledge,
status, and methods on key species and habitats that are replicable in other time and place
contexts. Species Action Plans for turtles and birds, as well as Regional Action Plans for
corals and mangroves have been developed and are ready for implementation. The most
immediate next steps should focus on funding to accelerate implementation of the species
and habitat action plans as basis for monitoring and regionally linked strategic zoning and
protection programmes, linked with LMR, MPAs and ICZM. Additionally the work on the
biodiversity and MPA protocols is commended and is being taken forward in May 2004.
vi
5. Development of a Representative Network of Marine Protected Areas
This component has established a network of marine protected areas, through the
enhancement of existing areas and establishment of new areas, most notably: Dongonab
Bay and Mukawwar Island in Sudan, Belhaf-Bir Ali in Yemen and Ile des Sept Feres in
Djibouti. MPA acceleration has been accomplished through a range of ecological and socio-
economic workshops, training and surveys accomplished with involvement and participation
of local communities and other stakeholders. Regarding process, a Regional Master Plan
was first developed which then served as a template and framework for national level MPA
master plans. The plans facilitated sound linkages with the LMR, HBC, ICZM and PAP
elements of the project. These plans form the basis and justification for PERSGA to
approach donors and solicit financial assistance from international organisations and NGOs
and industry for equipment and staffing to further operationalise these vital MPAs.
6. Integrated Coastal Zone Management
This component addressed planning and priority setting intuitional mechanisms in the region,
using a ,,lessons learned to target areas process. The long term and diverse experience
base in the northern RS area provided insights for the emerging work in the southern RSGA
area. Thus, a series of ,,model ICZM experiences were developed addressing different
scales and contexts: e.g. governorate-city planning for Aden and national coastal scales of
Djibouti and Sudan. This approach is potentially a replicable for other places with diverse
demographic and biogeographic contexts and development stages. As elsewhere, the
achievements were largely realised through the development of networks of concerned
individuals and organisations as experts and facilitators. Additionally this component
resulted in standardised and adaptive data for region into GIS/IIEM which has proven useful
for all components and which will be elaborated further through PERSGA and partners.
Further support to refine and apply ICZM at national levels, as well as trial use of ICZM as
overall concept for the RSGA at a regional scale is needed.
7. Public Awareness
This component has achieved much at the local level regional networks of NGOs and over
100 ,,eco clubs in schools throughout the region. Additionally ,,micro grant projects have
trailed different PAP approaches and local management that has been welcomed in all
regions. Profiling of the RSGA marine resources threats and values, and links NAV, HBC,
LMR components has helped raise the awareness of these issues. There is a need to
expand the PAP experience to further engage with NGOs and local stakeholders, as well an
immediate need to target public awareness and outreach to decision-makers as well.
8. Monitoring & Evaluation
The project was compliant with the various reporting and monitoring elements. However
there was a changing approach of monitoring indicators (e.g. from verifiable to process)
during the project which may have compromised clarity on some of the big-picture insights
across components. However, in terms of GEF ,,indicators, the Project demonstrates
success on ,,process indicators. For example: the establishment of sustainable institutional
networks at different levels; fostering an enabling legislative and policy climate; development
of surveys and monitoring protocols and strategic action plans; changes in ICZM and MPA
policies, and demonstration of stakeholder involvement and training throughout. The Project
is also starting to demonstrate 'stress reduction' indicator achievements. For example:
MPAs established, new hydrographic routes, accepted ICZM plans, and initiation of a
regional environmental monitoring programme (REMP).
Evaluation Ratings & Analysis
As required by the GEF Terminal Evaluation Guidelines, the mission prepared a ,,rating
matrix of: a) components rated by GEF Criteria; and b) Criteria assessment for the entire
project is presented. GEF projects are to be evaluated in light of the following criteria: a)
vii
Outcomes/achievements of objectives; b) Implementation approach, c) Stakeholder
participation/public involvement, d) Sustainability, and e) Monitoring and Evaluation. The
grading required by the GEF Secretariat guidelines was used as a basis for the rating
process ranging from 4-1 scale, ranging from: highly satisfactory (4), satisfactory (3), partially
satisfactory (2) and unsatisfactory (1).
While there was varying levels of accomplishment across the project, the overall result was
3.22 out of 4, putting this Project in the ,,satisfactory (plus) category. Satisfactory is defined
by GEF as: Implementation of most of the components in substantial compliance with
original/revised plans, except a few elements that are subject to remedial action. Project wil
provide satisfactory global benefits without major shortcomings. With regard to Project
results in terms of the GEF Criteria: the Project was highly successful on many
achievements, however a few activities were compromised by the ambitious design and 5
year time frame. This meant that at the MTE some activities were rephrased, but the overall
integrity of the Project and key outputs were realised. The implementation approach,
focusing on networks was strong for all components, as was stakeholder participation. M&E
was generally successful even though self-monitoring and clear exist strategies were not
optimised. The new baseline of knowledge and human resources makes a good basis for
sustainability, however immediate implementation of action plans etc. was not realised due
to limited new donor funds the lack of new financing mechanisms. New funding is now
PERSGAs primary focus.
Emerging Initiatives
During the course of implementing the GEF funded phase of the PERSGA SAP, some
regionally and nationally significant initiatives have ,,emerged from the ,,Project process.
These serve as important cross-cutting component linkages as well as axes to build on as
the SAP continues to be realised beyond the GEF phase. These initiatives are just getting
underway, so they were not included in the rating and full evaluation. However, they are
presented in this report as noteworthy avenues of sustainablity of the SAP objectives and
important areas for further work and support. These initiatives are noted here and detailed
in the report.
1. Protection of the Marine Environment from Land-Based Activities
2. Regional Action Plan for Marine Contingency Planning
3. Regional Environmental Monitoring Programme (REMP) for RSGA
4. Demonstration Projects in al countries
Concluding Lessons & Recommendations
PERSGA and its partnership network of member states, NGOs and other international
organisations have together achieved a great deal during the five year focus of this Project,
which is builds a solid foundation for exciting work ahead. Therefore this final chapter is
targeted to donors and future partnerships of many types to build on PERSGA and GEFs
investment to date.
Project Achievements:
The Project was largely executed through a diverse set of on-the-ground oriented training-
and workshops which provided skil s development in leadership, management, surveys,
strategic action plan development. Together this resulted in over 500 persons being trained
at different levels, and nearly 80 substantive reports, documents and outputs across all
components. This has resulted in a substantial increase in the environmental baseline and
status of knowledge and needed actions for the globally significant marine resources of the
RSGA area. Additionally this resulted in human resource networks of people who worked
vii
together across the region in generating new environmental information, supporting enabling
policies and action plans for further implementation.
Considerations for PERSGA
The Project was highly ambitious in its objectives to be realised in 5 years. Thus
constructive changes were made in the overall design, scope and phasing at the mid-term to
ensure solid results were achieved. In future for large donor partnerships and projects
PERSGA could consider more phased approaches that sequential y allow time for both
results generation, linked with monitoring and critical assessment as a basis for ongoing
funding explorations. The Project demonstrated excellent partnerships with a range of
stakeholders including national governments, and NGOs. As PERSGA takes the SAP
forward beyond this GEF phase, it is encouraged to diversify the partnership and funding
base to include a wider range of partners, in particularly the private sector. The training
orientation of the Project resulted in considerable regional national coordination and
outreach, which now needs to be followed up by targeted dissemination of the results
coming from the Project to key audiences. PERSGA is encouraged to continue its work on
incorporating new horizons that are potentially highly relevant to the semi-enclosed sea and
international waters character of the RSGA region, in particular land-based activities and
marine impacts, as well as climate change chal enges.
Considerations For GEF:
This is one of the first GEF international waters projects to mature through the full project
cycle. As noted above, emerging issues of climate change and seas such as the Red Sea
are now important as ,,indicator seas for climate change, marine conservation control areas,
and trials of ICZM approaches. Thus GEF may want to utilise the new ,,targeted research
avenue of GEF to explore emerging marine science and sustainable development
capacities. Related is the need to support ways to foster exchange on the findings from this
RSGA sea region with other Regional Seas initiatives and networks. Taking into account the
chal enges for the RSGA Project (and other large projects) to generate first-level results and
cultivate new donors at the same time, GEF may want to consider new ways to better
integrate firm ,,exist strategies into overall project design with a level of rigor similar to that
conducted for preparation of complex GEF International Waters projects.
The mission hopes this report conveys a sense of endorsement and congratulations to all
those who have been involved on this Project at every stage. PERSGA and its partners have
achieved a great deal. There is now a solid foundation of a much needed baseline of
information on marine resources, collation of expereince, and most importantly an invaluable
network of experienced people throughout the region. We hope PERSGAs leadership and
coordination wil continue to cultivate and inspire future partnerships. We encourage all
donors and other people who value the vibrant heritage of the Red Sea and Gulf of Aden
region, to take time to review the many action plans and forward looking ideas that have
emerged from this Project, and explore to collaborations that can continue the considerable
momentum this Project has started.
ix
ACRONYMS
CBD
Convention on Biological Diversity
CEDARE
Center for Environment and Development in the Arab Region and Europe
CITES
Convention on the International Trade in Endangered Species
COM
Council of Ministers
CTA
Chief Technical Advisor
EEAA
Egyptian Environmental Affairs Agency
EU
European Union
FAO
Food and Agriculture Organization (of the United Nations)
GEF
Global Environment Facility
GIS
Geographic Information System
GMDS
Global Maritime Distress and Safety System
GPA
Global Programme of Action
HBC
Habitat and Biodiversity Conservation (Component 4)
IA
Implementing Agency (for GEF)
IALA
International Association of Lighthouse Authorities
ICZM
Integrated Coastal Zone Management (Component 6)
IDB
Islamic Development Bank
IGO
International Government Organization
IS
Institutional Strengthening (Component 1)
IIMS
Integrated Information Management System
IMO
International Maritime Organization (of the United Nations)
IPIECA
International Petroleum Industry Environmental Conservation Association
IW
International Waters
KAU
King Abdulaziz University
LFA
Log Frame Analysis
LMR
Living Marine Resources (Component 3)
LS
Lead Specialists
M&E
Monitoring and Evaluation (Component 8)
MAP
Mediterranean Action Plan
MEMAC
Marine Emergencies Mutual Aid Centre
MOU
Memorandum of Understanding
MPAs
Marine Protected Areas (Component 5)
MTE
Mid-Term Evaluation
NAV
Reduction of Navigation Risks and Maritime Pol ution (Component 2)
NE
North-East
NGO
Non-Governmental Organization
NPC
National Programme Coordinator
x
NW
North-West
NWG
National Working Group
PAP
Public Awareness and Participation (Component 7)
PDF
Project Development Fund (GEF)
PME
Presidency of Meteorology and Environment (Saudi Arabia)
PERSGA
Regional Organization 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
RECOFI
Regional Commission of Fisheries
REMP
Regional Environmental Monitoring Programme
RRCC
Regional Reference Col ection Centre
ROMPE
ROMPE Sea Area (Kuwait region)
RSGA
Red Sea and Gulf of Aden
SAP
Strategic Action Plan
SSM
Standard Survey Methodology
STA
Senior Technical Advisor
TDA
Transboundary Diagnostic Analysis
TE
Terminal Evaluation
TF
Task Force
TSS
Traffic Separation Scheme
TOR
Terms of Reference
UKHO
United Kingdom Hydrographic Office
UNDP
United Nations Development Programme
UNEP
United Nations Environment Programme
UN-TSC
United Nations Train Sea Coast Programme
USAID
United States Agency for International Development
VTS
Vessel Traffic System
WB
World Bank
WG
Working Group
xi
I GEF SAP PROJECT OVERVIEW
Red Sea and Gulf of Aden Context (RSGA):
In order to review the considerable importance of the ongoing RSGA ,,Strategic Action Plan
(SAP) to date, it is essential to highlight the physio-graphic and demographic context of this
region. The Red Sea and the Gulf of Aden supports the some of the worlds most significant
marine and coastal species and habitats, and related marine resources, due to its globally
distinct oceanographic and geologic evolution and location. The Red Sea of today is an
expression of the deep ocean rifting and separation of the African and Arabian plates that
occurred over 70 mil ion years ago, resulting in the convergence of three major bio-
geographic realms. The Red Sea itself is approximately 2,100 km long, starting from the
Mediterranean in the north (via the Suez Canal, a human-created link), continuing down to
the Bab el Mandab Straits in the south, where the Red Sea flows into the Gulf of Aden and
the Indian Ocean.
The average width of the Red Sea is 280 km and depth ranges from 500 m down to 2000 m.
The Sinai peninsula divides the northern Red Sea into 2 distinct marine areas - the Gulf of
Suez which averages 20-40 km long and 30 m deep, and the contrasting Gulf of Aqaba,
which is 12-14 km wide and more than 2000 m deep in most places. The Gulf of Aden was
also formed from the separation of the African and Arabian plates. It has depths of over
3000 m, is heavily influenced by seasonal upwelling, and is bound by 1,400 km of coast on
the northern side and 800 km along the southern coast. Socotra Archipelago, situated at the
eastern extreme of the Gulf of Aden, is the an area of global significance in terms of island
biodiversity and species endemism.
The RSGA region is dominated by an arid coastal zone with minimal freshwater resulting in
tropical clear waters that support vibrant coral reefs and associated communities. Due to the
variety of topographic features noted above, the region has a high diversity of coastal-marine
ecosystems, as well as many endemic species. There are protected shal ows, exposed
sandy and rocky shorelines, extensive mangroves, seagrass and macro-algal beds. The
diversity of corals, many of which are found only in the Red Sea, may be greater than
anywhere else in the Indian Ocean. More than 1,300 species of fish have been recorded
from the Red Sea, thought to be higher than any other semi-enclosed sea.
The marine resources of this region have sustained human cultures for centuries. In
comparison with other ,,semi-enclosed seas in the world, the RSGA area is relatively pristine
from an ecological perspective. Yet the present transboundary and region-wide concerns are
far-reaching and require national-regional-international coordination to minimise loss of vital
ecological and economic services to the people of this region. Critical issues include:
maritime pol ution caused by international shipping; unregulated exploitation of shared fish
stocks; wide-spread habitat destruction by uncontrolled coastal zone development for cities
and tourism; and emerging chal enges of climate change. The rich cultural legacy of the
region, including a number of significant archaeological, historical and sacred sites and
1
traditional livelihoods in coastal areas, is threatened by the above suite of development
pressures.
PERSGA & the SAP Process
In view of the growing environmental threats to this ecologically and economically important
area of the world, ALECSO established the Programme for the Red Sea and Gulf of Aden
(PERSGA) in 1974. This was followed by creation of the "Regional Convention for the
Conservation of the Red Sea and Gulf of Aden" in 1982 known as the Jeddah Convention.
The seven Arab League member nations Djibouti, Egypt, Jordan, Saudi Arabia, Somalia,
Sudan and Yemen - signed the convention and helped to establish PERSGA, an inter-
governmental organisation to implement the Convention. PERSGA is based in Jeddah and
is hosted by the Kingdom of Saudi Arabia.
In line with the goals of the Global Environment Facility (GEF) International Waters Focal
Area, the GEF supported the preparation of a Strategic Action Program (SAP) for the Red
Sea and Gulf of Aden from 1995-1998. This PERSGA SAP guides the implementation of a
regional framework for protection of the environment and sustainable development of coastal
and marine resources. It is envisaged to be an ongoing 'living process' for PERSGA's
leadership and coordination in the region. The GEF supported phase of the SAP to initiate
this process was led by PERSGA. For this GEF project phase, PERSGA also serves as the
Executing Agency, in partnership with all 3 GEF implementing agencies (UNEP, UNDP and
the World Bank.) The initial 3 year ,,preparatory phase of the SAP used a participatory
process including workshops to develop baseline Country Reports, Navigation Risk
Workshops in Egypt and Yemen and a Living Marine Resources Workshop in Saudi Arabia.
Although the Government of Eritrea is not a member state of PERSGA and has not been
directly involved in the formal SAP process, coordination has been conducted through
UNDP, as there is a linked GEF marine resources project for Eritrea.
GEF SAP Project Overview 1999 early 2004
Building on the above, in 1998 PERSGA and partners prepared a GEF full-project proposal
and ,,project document that lead to successful approval by the GEF Council for $19 M GEF
support, and anticipated co-financing through other partners. This full-project was to be
implemented during 1999-2003 and is the focus of this ,,terminal evaluation review. The long
term, or global objective of this 5 year 1999-2003 GEF supported phase of the SAP (here
after ,,Project) is to safeguard the coastal and marine environments of the RSGA and ensure
sustainable use of its resources. To support this global objective, the priorities of the SAP
were to: a) strengthen the capacity of PERSGA to coordinate SAP implementation with all
international-regional-national stakeholders; b) provide support for priority activities; and c)
facilitate further resource mobilisation through national-international partnerships.
In light of the ,,incremental funding mandate of GEF, support was designed to achieve global
benefits by removing barriers against implementation of the SAP through supporting the
incremental costs to augment national support required to address regional and international
concerns. Therefore, the five year GEF Project phase for SAP development was to utilise a
series of complementary, preventive and curative actions as highlighted through the SAP
planning phase. These collectively address the transboundary nature and sustainable
development of marine resources for the RSGA region as a whole. These ,,development
objectives, or components, are listed below and function as the guiding framework for a
wide range of inter-related activities that were to be realised through this Project, and which
are discussed in this evaluation.
2
9. Institutional Strengthening to Facilitate Regional Co-operation (IS);
10. Reduction of Navigation Risks and Maritime Pollution (NAV);
11. Sustainable Use and Management of Living Marine Resources (LMR);
12. Habitat and Biodiversity Conservation (HBC);
13. Development of a Regional Network of Marine Protected Areas (MPAs);
14. Support for Integrated Coastal Zone Management (ICZM);
15. Enhancement of Public Awareness and Participation (PAP); and
16. Monitoring and Evaluation of Programme Impacts (M&E)
To further refine the initial SAP planning and status documents, which secured the $19 M GEF
Council support in 1998, a ,,Project Implementation Plan (PIP) was prepared in 1999 to detail
activities as per the above objectives. The Project management team used the PIP as a guide
additional work plans, budgets, and the development of logical frameworks, to ensure that
component-activity-objectives were linked in a hierarchal and verifiable manner.
Although the GEF supported phase of the PERSGA SAP is executed in a ful y integrated and
joint manner between the 3 GEF implementing agencies (UNDP, UNEP and World Bank),
each agency did provide a lead ,,monitoring and finance management facilitation role for
certain components. However, reporting and finance management was streamlined into a
common platform. For example, UNEP GEF lead and supported component (1) Institutional
Strengthening. UNDP lead on the components 3, 4, 5 and 6 (LMR, MPAs, HBC and PAP).
The World Bank led on components 2 and 6 (NAV and ICZM). The Islamic Development
Bank contributed to the component 6 (PAP).
In addition to the routine quarterly-semi-annual reporting that is part of the overall project
implementation and monitoring, the project also had a ,,Mid-Term Evaluation (MTE) in 2000,
which provided the opportunity to reflect and review progress and priorities in light of
experiences so far. The mid-term evaluation recommended re-orientation of the Project
management team and programmatic priorities to better realise the project goals in light of the
remaining time frame, and to achieve more 'on the ground' results that were both national y
and regional y relevant. Therefore, a significant outcome of the MTE included the re-
programming of various budgets across the Project in light of the fol owing: a) usual smal
revisions related to progress by the mid-term phase, b) some savings due to limited on the
ground work in NE and NW Somalia, and c) to generate $2M USD for a suite of one-year
'demonstration projects' which were to be implementation-oriented and country-driven
evolutions and complements of the original component activities. Additional y several
'emerging initiatives' have been started through the Project, that are highly relevant to the
RSGA region and are considered evolutions of the original activities. These include work on a
protocol and programme of action to address land-based pollution issues, and initial
establishment of a 'Regional Environmental Monitoring Programme (REMP).
While formal support by GEF for many of the project activities ended in late 2003, work in
ICZM and the ,,demonstration projects continues through 2004 on a no-cost extension basis.
Activities related to the overall 'themes' of the components (e.g. ICZM, navigation, habitat
biodiversity, protected areas, public awareness) continue to be carried forward through
PERSGA and its work with member states and partners in the coming years. PERSGA is now
in an active phase of preparing a suite of post Project strategic and programmatic activities
targeted to a range of partners. However, the 8 components-objectives listed previously
continue to serve as the ,,Project framework for this ,,terminal evaluation (TE). The
achievements from the core 5-year project period (1999-early 2004) are the focus of this
terminal evaluation report.
3
II EVALUATION SCOPE
Evaluation Objectives:
This terminal evaluation (TE) is designed to assess the global and detailed performance of
the project as compared to the objectives presented by the PIP, and made explicit through
the component log frames and other supporting project documents. The TE has been
conducted by a three person team (hereafter 'mission') who collectively had experience in
the region, as well as other international ,,regional seas and GEF project experiences.
(TORs and biographies for the Evaluation are in Annex E.)
This evaluation is based on the overall global and component objectives of the Project. It
used the description of activities, outputs and main indicators as detailed and concrete
references to be compared, in particular the outputs as compared to the planned activities.
It took into account what was realistic and reasonable to expect as ,,outputs, noting the Mid-
Term Evaluation and subsequent comments of the GEF Implementing Agencies that it was -
"necessary to reduce the scope and scale of expectations...and to maximise the potential
achievements within the available budget and time constraints; as wel as the need to amend
the design of the project "ensuring on the ground results in each country" .1
Evaluation Scope:
The TE was conducted at both the regional and the national levels, from which results were
integrated. The mission met with staff at PERSGA, as well as in-country missions to all
countries except Somalia. Additionally a questionnaire was sent in advance to all key
Project participants as preparation for the mission visits. (It is noted in the TORs Annex E.)
A list of all persons and institutions met with for each country are provided in Annex A,
including the list of questionnaire respondents for NE and NW Somalia in lieu of field visits.
While the Project is of regional interest and is implemented on a regional basis, the mission
recognises the Project relies on country inputs and participation, and that the ownership by
countries is a key prerequisite of the whole project in terms of replication and sustainability.
Therefore outputs were reviewed at the regional level and at the country level as well as
component by component and globally.
In terms of the period assessed (from 1999 early 2004), the evaluation mission reviewed
the entire phase of implementation; taking into account mid-term and special evaluations
which were undertaken in 2002 as well as further recommendations, re-orientations and re-
scheduling decided for some components.
It should be noted that the SAP GEF project was not fully completed at the time of this
terminal evaluation. For example, demonstration projects, amounting to $USD 2,100,000
1 Report of the Fourth Meeting of the Taskforce, Jeddah, May 2002
4
dol ars were in the implementation phase as they were initiated in June/July 2003 and are
scheduled to be concluded by June 2004. In addition, some activities included in the
navigation component and ICZM wil be completed in 2004 and thus could not be evaluated
during this time. These ongoing activities are noted and are considered part of the overall
context of this terminal evaluation, however only preliminary conclusions can be drawn on at
this time for these elements.
The PERSGA teams prepared draft final reports for each component, a summary document
on ,,capacity, and national and regional achievements, as well as the distribution of
questionnaires in advance of the mission. However, a PERSGA-produced ,,self monitoring
final report on the entire project, including financial summaries, is stil to be completed and
could not be used by the evaluation mission. Nonetheless, the mission was able to
ascertain the critical elements and achievements of the project through reviewing the wide
range of both monitoring and ,,substantive output documents produced during the course of
the project (e.g. key species and habitats action plans, protected areas plans, ICZM plans,
public awareness products). Al documents reviewed by the mission are attached as Annex
B. A full list of all substantive documents arising from Project to date is tabled in Annex C.
The revised financial expenditures (showing for each component what was planned, re-
scheduled and spent to date as of December 2003) were not available during the mission.
However, the mission was able to use the 1999-2003 summary budget tables of the World
Bank, UNEP and UNDP, with additional information added at the mission's request to note
the planned cost at project start, planned disbursements through project end (including
extensions) and component-activity linkages. While the original project was designed with a
$36 Mil ion dol ar ,,vision, assuming co-financing, the actual project was executed from the
Project start with a USD $19 mil ion plan, and it is this figure to which the budgets
correspond.
In summary, the evaluation team adhered to the following GEF Project Review criteria as
disseminated by the GEF Secretariat, and as the guiding principles for project evaluation.
1. Implementation approach
2. Country ownership
3. Stakeholder and public participation
4. Sustainability
5. Replication
6. Financial planning
7. Cost effectiveness
8. Monitoring and evaluation
In the context of the above GEF criteria, the evaluation mission:
held interviews at the regional level with the PERSGA Secretariat, Project
Management, and staffs; and at the national level with National Coordinators,
responsible Ministries and Agencies, as well a local authorities, scientific institutes
NGOs, teachers and other actors;
made use of the official documents adopted or produced in the context of the project:
- the SAP including Country reports
- the PIP and SAP planning documents
- reports of the Task Force
- reports of working groups of each component
- annual reports
- available draft final reports for each component
- financial documents
5
- regional strategies and plans such as, contingency plans, regional plans for
seabirds, mangroves etc.
- ICZM studies
- Educational or information documents, etc.
Thus, this evaluation report is largely designed to address the interface between the core 8
project components (IS, NAV, LMR, HBC, MPA, ICZM, PAP and M&E) and the above
criteria, as well as perspectives on the Project overall in light of the GEF criteria. Chapter III
of this report provides the core reviews of the eight components, while Chapter IV presents a
rating and related discussion of the Project based on the GEF Criteria.
Chapter V of this report summarises the ,,demonstration projects and other emerging
initiatives, such as the Regional Environmental Monitoring Programme (REMP). Since these
activities were just getting underway at the time of this evaluation, they are not part of the
detailed project 'rating' developed for the activities of the 8 components. The mission
recommends that these deserve a specific assessment in about six months time.
Chapter VI of this report presents concluding recommendations, lessons learned and next
steps which are presented as: a) highlights from each component; b) summary of overall
Project achievements, c) lessons learned and suggestions to PERSGA and c)
considerations for the GEF community.
Annexes, as noted throughout the preceding discussions, serve to complement the main
report and il ustrate the considerable depth and scope of this SAP Project.
Acknowledgements:
The evaluation mission wishes to thank the many individuals and organisations who made
this evaluation possible. PERSGA is thanked for their highly efficient logistical arrangement,
which ensured that travel, visas and meeting coordination arrangements were smooth and
timely. Contracts and payment arrangements for the mission were clear and smoothly
executed. Al of the PERSGA personnel - including management, lead specialists and
administrative, exhibited a spirit of enthusiasm, transparency, openness and efficiency that
made working with PERSGA a pleasure. At any time, any document or information
requested was readily accessible and provided.
The mission also wishes to express their gratitude to the many people they met with across
the seven PERSGA member countries involved in this Project. From ministers to
researchers to local community members - all provided their valuable time and sharing of
experience in a way that brought the report-oriented presentation of outputs to life and
grounded the mission's evaluation insights. (Annex A. provides a list of all persons and
organisations met with for this evaluation.)
It has been a privilege to work with the excellent staff of PERSGA and the many dedicated
individuals and organisations working in each country. These persons represent the heart
and future of the Red Sea and Gulf of Aden region. Through their work together they
il ustrate the kind of commitment needed to ensure the rich natural and cultural heritage of
the region will be sustainably managed for generations ahead.
6
III
EVALUATION of COMPONENTS
1. Institutional Strengthening
to Facilitate Regional Cooperation (IS)
2. Reduction of Navigation Risks and Maritime Pol ution (NAV)
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. Enhancement of Public Awareness and Participation (PAP)
8. Monitoring and Evaluation of Programme Impacts (M&E)
7
Component 1
Institutional Strengthening to Facilitate Regional Cooperation (IS)
A.
IS - RATIONALE:
Conservation of the unique and valuable resources of the Red Sea and Gulf of Aden
requires concerted and coordinated efforts by the PERSGA member countries to protect
these resources. This requires cooperation and coordination between relevant
environmental and non-environmental organisations and institutional stakeholders across
the region. Al the member states recognise that effective environmental management and
pol ution prevention and control programs are needed to protect the natural resources of the
Red Sea and Gulf of Aden, while allowing for growth of the regions trade, industry and
tourism opportunities in an ecologically and economically sustainable way.
The stakeholders recognise that environmental problems are not contained by national
borders and that strong and effective regional environmental protection mechanisms are
required. Therefore, regional cooperation must be a continuous catalytic process, requiring
strengthening existing institutional arrangements at the regional and national levels.
Institutional strengthening that promotes regional cooperation has been a priority during all
phases of the SAP process, and PERSGA remains the most appropriate institutional
framework and coordination body to foster long-term regional cooperation and coordination
in the RSGA and with partners worldwide.
B. IS - OBJECTIVES:
There are several different presentations of objectives for this component in the PIP, which
vary with regard to level of detail, as wel as subtle shifts of wording in the subsequent work
plans and the log frames prepared after PIP. However, these variations are in essence about
the same ,,core objectives which are presented below, and around which the evaluation
frames the discussion of ,,achievements later in this chapter.
1.
Strengthening the Institutional Capacity of the PERSGA Secretariat
2.
Enhancing Regional Cooperation
3.
Developing a Sustainable Financing and Resource Mobilisation Strategy
For reference, various other objectives are noted below. The evaluation mission accepts
these ,,sub-objectives as ,,supporting variations on the theme and organises the discussion
around the 3 ,,core objectives listed in bold above.
Raise awareness of the Strategic Action Programme local y, regionally and
Internationally;
Develop skil s and capacity of technical personnel from the region in report
preparation and desktop publishing;
Enhanced institutional capacity (both technical and administrative) of PERSGA to
effectively lead and co-ordinate the SAP as a long-term regional programme;
Closer co-ordination among existing projects and programmes in the Region;
Enactment of adequate environmental policies and legislation for managing
transboundary environmental issues;
Enhancement of environmental management capacity throughout the Region;
Increased participation in regional and global Conventions on the environment;
8
Development of strong regional networks among environmental organisations; and
Effective linkages between national and regional goals for protection and
management of coastal and marine resources.
C.
IS - IMPLEMENTATION APPROACH:
This institutional strengthening component is ,,cross-cutting and supports all components.
The following discussion of ,,human capacity and project management provided the
underpinning ,,architecture for implementation of the overall project and component
activities.
A Council of Ministers, which consists of national level Ministers for relevant environmental
ministries in each country, served to ensure that PERSGA and this GEF SAP had the
highest level of support and endorsement throughout the project implementation.
A Task Force (TF), of senior national government representatives from key concerned
ministries and agencies, served to provide oversight and facilitated implementation of the
project, monitoring of progress and creating awareness of regional environmental issues at
higher government levels. The TF that was active during the preparatory phase continued to
function during the SAP-GEF project implementation phase with an adapted mandate and
membership.
PERSGA - based roles:
PERSGA is lead by a Secretary General and Deputy Secretary General. In August 2003 the
Secretary General of PERSGA for many years passed on. PERSGA was fortunate to attract
a new Secretary General of the highest caliber, and who is one of the original founders of
PERSGA.
Overall day-to day project management, executed from within PERSGA, included a Project
Management Team, whose salaries were supported by GEF. For the first two years of the
Project, management was lead by one Chief Technical Advisor. After the MTE, management
was restructured to include two persons - a Project Manager, a Senior Technical Advisor.
Administrative and other technical support was made available through an administrative
assistant, a finance officer and procurement officer, as well as librarian and secretary. From
the beginning of the Project a full-time ,,editor was hired to lead on the writing, editing,
preparation and publishing of all GEF SAP and PERSGA documents, which proved highly
effective. Additionally a GIS/Information Management Specialist provided critical cross to
support to all components and web-management.
Regional Lead Specialists lead on most the components served as the core interface
between the execution of regional and national activities. However, Component 1 was lead
by the Project Manager in PERSGA. Component 2, the navigation component, was led by
a senior navigation advisor with support by a part-time navigation consultant, both based in
Yemen. In the case of LMR and ICZM there were changes in Lead Specialists early in the
project, due to staff moving, but new recruits were hired and have stayed with the Project
throughout. This was a first major project leadership role for most of the lead specialists but
over the course of the project their experience and capacity grew considerably.
National Based Roles:
Regional expert Working Groups were established for the different thematic components
(navigation, biodiversity, ICZM etc.) of the project. Their time was provided as ,,in-kind by the
9
governments of each country, but associated costs with meetings and leadership were
supported by the GEF. The WG constituted an effective mechanism for networking and
communication between experts of the region. The WG met at least twice a year, and often
in combination with other component-based training workshops to foster broader links with a
diversity of project participants. The establishments of the WGs and their activities has
facilitated links between national and regional goals as well as avenues for exchange of
lessons and experiences. In some situations there was change of working group leaders
due to changes in internal national government programmes, but this did not substantially
affect the overall effectiveness of the working groups.
National Programme Coordinators (NPC) were supported by the project to work full-time in
four of the countries: Djibouti, Somalia (two persons - for both NE and NW Somalia), Sudan
and Yemen. The mandate of the NPCs is to ensure effective coordination and
implementation of the programme activities at the national level and linking them to the
regional initiatives.
D.
IS - OVERALL ACHIEVEMENTS:
The following presents an evaluation of the project achievements for this "Institutional
Strengthening" component is based collectively on the PIP and log frames.
1. Strengthening the Institutional Capacity of the PERSGA Secretariat
Overall this sub-component has been achieved successfully. The Project Management
Team (PMT) comprising the Project Manager, the Senior Technical Advisor and 6 Regional
Lead Specialists covering the thematic areas of SAP has been established and functioning
well. Administrative support and financial management was provided by qualified support
staff to the programme. Reports indicate that during 2002 there were between 22 and 24 full
and part-time staff. However during the Terminal Evaluation, the staff was reduced to about
7 due to the closure of GEF support.
It has been reported that the administrative and financial systems and manuals that were
developed. The project office infrastructure has been adequately developed and appropriate
office equipment has been procured including computers, printers, scanners, etc. A local
area network (LAN) is operational. Preparatory work has been done to install a GIS system
in the office and is very nearly complete. Standardised forms, templates and manuals for
administrative and financial/procurement purposes have been prepared and are in use.
An excellent library has been established with a collection of references, reports, maps,
videos, etc. A contract with a training provider has been signed which allowed the staff to be
trained on software applications.
A large number of information products and packages have been produced for the project
which involved all levels of the project (managers, lead specialist, workshops, working
groups, national coordinators and the Project Editor and library staff). A ful list of all products
produced through the SAP Preparation Phase (1995-1998) and the full-project phase (1999-
2004) are listed in ANNEX C. In summary they include the following types of documents:
- Planning documents;
- Status documents;
- Reporting documents;
- Technical series documents;
- Training workshop documents;
- PERSGA/SAP brochure in Arabic, English and French;
10
- Communication and awareness national including flyers, posters,
quarterly newsletter "Al-Sanbouk"; and
- A documentary film about the Red Sea, which was produced in
collaboration with UNDP.
In addition, a website was established and incorporates most of the above documents.
In spite of the impressive volume and solid substance of the PERSGA and project outputs
listed in Annex C and noted above; feedback to the evaluation mission suggested that
outreach could have been wider. This is most likely due in part to the fact that much of the
core results from the most intense activity phase of the project (e.g. 2002-2004) are only
now coming together in final forms. Additionally the process of informing and ensuring
,,drafts were reviewed by all stakeholders was considered a national responsibility, rather
than PERSGA. Enhanced ,,outreach between PERSGA and national partners, as well as
international partners is an area that should be of highest priority by PERGA to ensure the
solid work done through these GEF phases continues.
A wide range of training was conducted throughout all phases of this project for all staffs and
national counterparts, and is detailed subsequently in each component discussion. (Annex
D. presents a table summarising all training conducted through the Project.)
Regarding ,,management training for the PERSGA team and lead specialists there was mix
of training: a) general training for lead specialists and national coordinators on technical
aspects of marine conservation and management; b) training on project management and
planning (including workplans and log frames); and c) training on project monitoring and
evaluation.
Collectively the PERSGA team provided continuous and sound technical and administrative
support to the Task Force (TF) and to the other components of the SAP-GEF project.
PERGSA served as a knowledge and information base (data bases, maps, library, studies,
surveys...etc) for regional use. The 'human resources architecture', or combination of
regional PERSGA support linked with networks of national input at multiple levels (Council,
Task Force, Working Groups and National Coordinators), overall worked wel and provides a
management and technical platform that should support ongoing and future RSGA
environmental activities addressing transboundary and shared interests.
2.
Enhancing Regional Cooperation
This sub-component has been satisfactorily achieved according to the PIP and overall
project achievements context. The SAP TF has been operational under amended TOR. The
TF meetings have been held yearly and then increased to twice a year starting 2002.
Regional expert Working Groups have been established for the different project
components. In the PIP it was envisaged that the Regional WGs would support coordination
and implementation of the national components of the SAP, and respective incorporation
into national policies and investment programmes. This was only partially achieved, mainly
due to the over ambitious design and expectations in the PIP, especially given the fact that a
large percentage of the WGs members were researchers or technical staff of organisations
and not decision makers or higher management staff. A composition of WGs representing a
mix of decision makers and researchers might have better achieved the objectives of this
sub-component.
PERSGA has succeeded in preparing a roster of regional and international experts and
consulting firms covering a wide range of relevant disciplines. The office has established a
11
regional library on marine environmental sciences. Information products of high quality have
been produced and disseminated including technical reports, awareness material and the
PERSGA publication Al Sanbouk (further discussion on public outreach is provided in the
Public Awareness component.)
The PIP notes that under this sub-component, and in collaboration with other components,
the following new regional protocols were to be developed. The development and drafts of
these has been ongoing throughout the Project, and is in varying stages of development as
described below and in the respective component-specific sections. They are discussed
below:
i.
"Protocol concerning the conservation of biological diversity and the
establishment of protected areas" (links with the HBC and MPA sections):
The 'biodiversity and MPA' protocol was developed through the HBC and MPA
working groups and specialists from PERSGA, and with ROMPE (parallel regional
body for the Gulf area). A Final Draft prepared in May 2003 including the legal
protocol document as well as supporting 'concept paper' which provides the
background of rationale and status relevant to this protocol. A high-level joint
technical and legal experts meeting is planned for May 2004 to finalise the
Protocol and supporting documents.
ii.
"Protocol on the protection of the marine environment from land-based sources of
pol ution in the Red Sea and Gulf of Aden": There has been considerable
progress on this protocol. As highlighted in Chapter V, various drafts of a
protocol and complementary 'regional programme of action on "The Protection of
the Marine Environment from Land-based Sources of Pollution in the Red Sea
and Gulf of Aden" have been developed (1999, 2000). This protocol is now
moving forward in collaboration as a PERSGA priority area in collaboration with
the UNEP-lead Global Programme of Action. A joint technical and legal experts
meeting is planned for May 2004 to review the Protocol.
Original y it was envisaged that a protocol for transboundary fish stocks or establishment of
a regional fishery body would be developed. In collaboration with FAO through the LMR
component, a high-level workshop recommended the establishment of Regional
Commission of Fisheries" (RECOFI) for the PERSGA region rather than develop a protocol.
A focal point from Sudan, representing PERSGA, has been designated to follow up with
FAO, and facilitate a report with contributions by each country on recommendations for
setting up the RECOFI. However, the report has not yet been developed.
Additionally, PERSGA has conducted a review of all environment related legislation for the
region with regard to marine and transboundary issues for the RSGA region. A draft report in
Arabic has been prepared. This is considered a significant cross-cutting activity which builds
on and contributes to all components through a better understanding of the status of marine
relevant environmental legislation for all countries in the region.
As evidenced in the other components, the Project has realised and encourages getting the
basic science and knowledge on the RSGA region in place, as well as organisational
structures. This ,,environmental status base is now solid due to the collective Project
achievements, and the mission encourages PERSGA to take the development of these
protocols in collaboration with other relevant regional and international bodies (e.g. ROMPE,
CBD, FAO, GPA, IMO, etc.) to further cultivate an enabling policy climate to address RSGA
international waters issues.
12
3: Developing a Sustainable Financing and Resource Mobilisation Strategy
This sub-component was designed to facilitate mobilisation of financial resources to sustain
the activities and programmes implemented under Project. In particular the PIP outlined the
following activities for this sub-component.
i.
Reviewing the opportunities for self -financing of the different components of the
SAP at the regional and national levels;
ii.
Assessing the feasibility of establishing the proposed Red Sea and Gulf of Aden
Environmental Fund;
iii.
Evaluating existing economic instruments within the PERSGA member countries;
and
iv.
Seeking funds from bilateral and multilateral donors.
While there has been ongoing activity for this resource mobilisation sub-component, there is
not yet an RSGA Environment Fund, and the other activities have been addressed in a
general way as discussed below. PERSGA has been in discussion with the World Bank
and others on the need for and request for assistance in establishment of a Fund since
2000. During the course of the Project the following ,,forward looking documents have been
prepared:
- PERSGAs Strategy for Sustainability (DRAFT), May 2002;
- "Agenda for the New Mil ennium Sustainable Development of the RSGA", which
was prepared for the WSSD in August 2002;
- A discussion paper "PERSGAs Framework and Vision Beyond the Funded
Phase of the Strategic Action Programme" was prepared in December 2003 and
presented to a recent Task Force meeting. The discussion paper builds on the
ideas noted in the earlier ,,vision papers, summarises highlights from the GEF
SAP work and makes a case for new partnership building towards a donor
conference.
Additionally in most of the component-specific Action Plans there is much consideration
given to financing, priorities for action and future partnerships. (e.g. Regional Master Plan for
MPAs, National MPA plans, Regional Action Plan for key species (turtles, seabirds) and
habitats (corals, mangroves), navigation plans, ICZM plans and public awareness plans).
The LMR component has prepared two detailed proposals related to fisheries for
submission to the EU, as some of the LMR components were identified as not having GEF
support from the outset.
Recognising the immediate importance to review the Project status, sharpen PERSGA's
future goals, and facilitate a participatory process for future partnerships, PERSGA has hired
a consultant in March-April 2004 to prepare a comprehensive document on sustainability
strategy to serve as a donor planning document and business plan, which wil in part build
PERSGA strong leadership of the SAP to date.
F.
IS - CONCLUSIONS:
The project has created a many planning, preparation, reporting, technical, strategic
documents. (See Annexes B and C.) Collectively these give credence to the success of this
component as the ,,foundation for the others.
Overall the implementation approach for this component, in particular the human resources
and management elements, are sound, sustainable and replicable if substantive and
13
financial support for key activities and causes can be continued through PERSGAs
leadership and coordination.
From a financial perspective, the project has in some cases shifted costs from ,,on the
ground (e.g. equipment) to more management-oriented activities, while putting the 'on the
ground' focus into the demonstration projects.
From a monitoring and evaluation perspective, there has been considerable ongoing
reporting and evaluation in terms or reporting with less emphasis on either component
targets or ,,bigger picture critical and synthesis oriented monitoring as needed to develop
new partnerships. The monitoring and evaluation achievements and chal enges of the
Project are discussed further in Component 8.
With regard to sustainability, as noted above, the 'human resource management' and
networks capacity is very high. It is regrettable that the catalytic ,,new financing actions
envisaged through the 'resource mobilsation' track above have not been fully realised.
While there has been work towards a "Red Sea Fund", this area needs further development.
The previously listed ,,forward looking documents demonstrate work along the way and
awareness of the need for new partnerships. However, they do not provide a critical final
assessment of the GEF support phases and transition to the non-GEF phases in a
compressive and targeted way that facilitates new partnerships or financing mechanisms as
original y envisaged would happen through this sub-component. At present the most
substantive portfolio of ,,short-long term recommendations is embedded in the depth of
component specific action plans.
As noted earlier in the 'evaluation scope chapter', the Project has not prepared a
comprehensive 'final report', and this mission report is serving this role for the time being.
However, the mission does not feel the considerable achievements of this project should be
discounted because of the lack of new funding in place. The mission wishes to note the
complexity and chal enge of even start-up implementation of the SAP, and commends the
considerable achievements of generating a much needed and globally valuable knowledge
base on the region, as well as regional-national networks that can be sustained through new
funding arrangements.
Therefore, the mission fully supports the highest priority that PERSGA is now placing on
,,forward planning, partnerships and financing process, and feels this is timely given the high
caliber of information that have been generated through this Project.
14
Component 2
Reduction of Navigation Risks and Maritime Pollution (NAV)
A.
NAV RATIONALE:
The Red Sea and Gulf of Aden is a globally important shipping route, which is used by oil
tankers and other ships carrying dangerous and noxious substances. Due to the ecological
sensitivity of the region (and in spite of no major accidents recently), it remains critical to
raise the standards the level of implementation of international conventions related to the
prevention of maritime accidents, preparation of contingency plans, monitoring and
controlling voluntary pol ution and other initiatives aiming at preventing/combating maritime
accidents. Supporting PERSGA initiatives to take action on such issues is fully in line with
GEF mandates for International Waters.
B.
NAV OBJECTIVES:
This component is de facto based on the main elements of the international maritime agenda
in terms of protection of the marine environment from pol ution arising from maritime
navigation. This is reflected in the main objectives as enumerated by the PIP.
-
the need for legal developments in PERSGA countries (ratification of
conventions and translation into national laws);
-
support for the development of Port State Control;
-
improvement of charts based on hydro-graphic surveys;
-
routing measures aiming at separating the traffic in dangerous maritime regions;
-
supporting the preparation and adoption of contingency plans;
-
improving navigation aids; and
-
establishing or supporting pol ution response facilities.
C.
NAV APPROACH:
This component was based on the findings of the "Navigation Risk Assessment and
Management Plan" (published as Volume 3a of the Strategic Action Program). The
document is an output of the "Navigation Working Group" which was established in
November 1996 and which met twice under the guidance of the PERSGA and the World
Bank. The analysis and conclusions of this exercise led to the definition of objectives and
activities that were incorporated in the Project Implementation Plan (PIP).
Based on the PIP, a navigation advisor and a part-time navigation consultant (both based in
Yemen) were appointed for this component. The regional oriented working group
participated in both decision-based meetings and training oriented workshops. Professionals
of the maritime navigation activity were involved in the implementation of this component. In
contrast to the other components, this component has largely been coordinated from Yemen
rather than PERSGA in Jeddah, as this was the base of the specialist and advisor with the
most experience on this component. Additionally the most urgent navigation needs
addressed in the component were predominately in the southern Red Sea area.
D.
NAV ACHIEVEMENTS:
In order to realise the objectives above, this component included 9 subcomponents, or
achievement targets, supporting the objectives through expected achievements. Through
15
the World Bank, this component had a total budget allocation of USD $3,500,000 to
implement the planned activities.
1. The Navigation working group:
This WG was composed of representatives of the countries, competent intergovernmental
organisations and experts. The WG served as a framework mechanism for discussing
issues, reviewing activities and adopting recommendations relevant to this component. The
WG also supported workshops for training its members, thus contributing to the overall
capacity building objective of this Project. The IMO provided substantial support to the
working group through international experts, documents and materials, demonstrating high
interest in the definition and the implementation of this component. Other international
partners were also involved in this component, e.g. collaboration with Mediterranean Action
Plan. With regard to routing measures, Eritrea was engaged.
From 2000 to 2003, five workshops took place first annually, then twice a year; and focused
on the following issues:
Hydrographic Surveying Methods and the planning and design of Routing Measures
Marine Contingency Planning and the Ratification of IMO Conventions
Port State Control
Maritime Accident and Incident Investigations
Vessel Traffic Systems and Automatic Identification Aids
Regional Action Plan for Marine Contingency Planning
A review of the minutes and recommendations related to workshops and meetings of
this component demonstrate participation, commitment, and a high level of expertise and
precise planning of the work programme.
2.
Implementation of International Conventions:
The PIP recommended that more countries ratify key maritime conventions (IMO/ILO), with
the Navigation Working Group bringing attention and support in this context. Below is the
"Table of Instruments" ratified as of December 2003 (as compared to 1999):
Number of IMO Conventions Ratified
December
1999
2003
Djibouti
10
08
Egypt
33
32
Jordan
14
07
Saudi Arabia
18
18
Somalia
02
02
Sudan
09
04
Yemen
19
17
While some progress has been made during this period (e.g. Jordan and Sudan doubling the
number of conventions they signed in only 5 years), overall progress in ratification of IMO
Conventions remains less than satisfactory. This situation, which is not specific to PERSGA
region, can be explained by:
16
the need for IMO to make available the conventions in Arabic;
the lack of legal structures in some countries;
the lack of proper infrastructures, such as reception facilities in harbors to
implement such conventions as MARPOL 73/78;
Additionally as noted in Component 1, there has been a broad review of marine relevant
environmental legislation for the each country in the region (Legislation Concerning
Protection of Marine Resources in the RSGA). This review contributes to a more effective
policy climate with regard to linkages between national-regional-international legislative
instruments.
With a view of ensuring sustainability to this sub-component, PERSGA Secretariat is
encouraged to support member states in order to accelerate the process of ratifications and
enabling legislation at all levels.
3. Port State Control (PSC)
Some progress has been made on PSC by PERSGA states in accordance with SAP/PIP
objectives, including the participation of Eritrea. An intensive workshop took place in Jeddah
2002 in order to provide training to the countries maritime authority representatives. At the
national level, a number of officers specialised in PSC (two to four per country) have been
appointed and trained. Countries such as Egypt, Jordan, Yemen and Sudan have started
controlling ships in their harbors but there are no detailed statistics available on the number
of inspections.
No regional PSC/MOU has yet been developed so far. This is in part due to the member
states already being engaged through other means. For example, Egypt and Jordan are
members of the Mediterranean MOU, Saudi Arabia of the Gulf MOU; and Sudan and Yemen
having joined the Indian Ocean MOU.
Only limited funds (US $7,110 dollars) were allocated for PSC activities as compared to what
was original y planned (USD $395,890 dol ars) to meet the extra budgetary for hydrographic
surveys discussed below. As a result, the PIP objectives related to PSC were only partially
achieved.
4. Hydrographic surveys
Hydrographic surveys were a prerequisite for the review of risks, the publication of new
navigation maps, the designation of new routing schemes and additional navigation aid
systems and equipment. This sub-component was effectively and fully completed on time
and in conformity with PIP and the logical framework.
A hydrographic survey was conducted following standards set by the International
Hydrographic Organisation, and was the first to be operated since the XIX century. The
survey whose cost amounted to almost USD $2.7 mil ion dol ars, including supervision
(which exceeded the projected cost estimate of $2M) was conducted between 2000 and
2001 by the UK Hydrographic Office after a successful international tender.
"Avocet Rock", a dangerous region where a number of wrecks occurred was included in the
survey for the first time along with some other risky areas that were carefully surveyed. The
survey has been accepted by UKHO and IMO and new charts have recently been put on
sale to the shipping industry.
Subsequent activities that took place in this context included:
17
Submission of a request to UKHO for accreditation for the survey in the southern
Red Sea to be put on international charts (this is not common charting practice,
but has been agreed by UKHO);
An assessment of the status of hydrographic surveys around the coasts of Yemen
between the border of Saudi Arabia and Socotra Island:
An update of the chart of ports and anchorages on the coast of Somalia, which will
result in this chart being changed from fathoms and feet to meters (the only
remaining chart in the region that needs to be ,,metricated).
Preparation of a request by the Government of Yemen for a new chart of the
southern Red Sea and Gulf of Aden to be designed and published, providing
coverage of the Gulf of Aden out to and beyond Socotra Island to an improved
scale, thus enhancing the safety of navigation for this part of the Region.
The quality of these achievements that even surpassed the expectations of the PIP.
5. Routing measures
Based on the survey, new routing measures affecting the southern part of the Red Sea
(Traffic Separation Scheme) were prepared in addition to the existing ones (Gulf of Suez,
Strait of Tiran and Strait of Babel Mandab, the Red Sea southern entrance). The process of
elaborating and getting the approval of the new TSS took less than 2 years, including:
elaboration of the new draft chart; its submission to IMO by concerned countries; the
examination and adoption by IMO competent instances; their official entry into force
(01/07/2003); and their publication in relevant international navigation documents. Further
plans aiming at separating the maritime traffic routes are being prepared in 2004. This is the
most impressive achievement within this component.
6. Navigation aids
Navigation aids equipment for activities is the logic follow up of the improvement of
knowledge related to navigation risks and the establishment of routing measures. In
conformity with PIP provisions, new requirements for improving navigation aids were
reviewed through contacts with professionals and the International Association of Lighthouse
Authorities (IALA). In this context a new lighthouse including an Automatic Identification
System is to be established in Hanish Al Kubra (Yemen) providing improved navigation
security in the southern part of the Red Sea. Its cost (USD $180,000) was budgeted through
the revision of the World Bank project.
7. Contingency plans
Two regional workshops (Djibouti, 2001 and Hurghada, 2003) involving IMO experts were
devoted to this issue. As a follow-up, a Regional Action Plan on contingency planning was
approved by PERSGA in 2003, which provided objectives and guidelines for further
development of national and sub-regional contingency plans. A total of USD $1,800,000
remains to be secured for the implementation of the Plan. In summary:
- National contingency plans are operational in Egypt, Sudan, Saudi Arabia and
Djibouti;
- IMO is committed to supporting the development of such plans in Yemen as well
as regional workshops in oil spil modeling and sensitivity mapping; and
- It is expected that all countries including Somalia wil have adopted contingency
plans by 2005
18
8. MEMAC and Oil Pollution Response Facilities
The decision to establish a Marine Emergency Mutual Aid Centre (MEMAC) in Hurghada (as
formally planned by PERSGA) was grounded in the Jeddah Protocol. The host agreement
of MEMAC was signed in Cairo, Oct. 2003, between PERSGA and the Egyptian Ministry of
Environment. MEMAC wil be in charge of implementing its objectives stated in Jeddah
Protocol.
The PERSGA Council, recognising that the Djibouti Stockpile Equipment is an operational
centre, requested PERSGA Secretariat to assist in inviting financial support from donor
agencies (such as WB, EU, Norwegian Government, and Petroleum Industry) to secure
sustainability for the Djibouti Stockpile Equipment. PERSGA is about to conduct a technical
study for the sustainability of the Djibouti Stockpile Equipment that wil be part of the
Regional Network of Operational Oil Spil Response facilities in the PERSGA region.
9. Port rules, GMDSS, Accident and Incident Investigations
A number of achievements are to be mentioned under this sub-component. The issues of
port security under new IMO rules (to be approved within 2004) came on the agenda. In this
context, the ISPS code was translated into Arabic and disseminated to ports for further
implementation. The definition of maritime boundaries between states (as a legal
prerequisite for the effective monitoring of navigation and the enforcement of international
rules) has made progress. GMDS stations were installed in some countries covering the
northern part of the Red Sea. Finally, a workshop held in Port Sudan (March 2002) was
partially devoted to marine accidents and incident investigations with the view of improving
national capacity and sharing experiences in processing investigations.
E. NAV CONCLUSIONS:
While not all its sub-components were equal y addressed, the Component 2 on ,,reduction of
navigation risks and maritime pollution was very successful in the following areas:
effective achievements such as surveys, mapping and vessel traffic systems in the
southern Red Sea;
participation and ownership by all countries;
creating a regional approach and a network of authorities in charge with maritime
safety and prevention of pol ution from maritime activities;
continuous involvement of competent IGOs or private organisations such as IMO
and IPIECA;
sustainability, as PERSGA, with the support of IMO and the countries, is committed
to further develop ongoing activities such as routing, contingency plans; and
replication, as all sub-components could be used as reference modules.
The financial implementation of this component differed considerably from planned
estimates in the original project design. The overall cost of for management expertise on
this component doubled and the cost of the Hydrographic Survey exceeded the first
estimation by about USD $600,000 dol ars. Meeting the costs of the surveys resulted in the
expenses for Port state control activities being substantially reduced. Therefore, in future
NAV activities, priority should be given to the improvement of national capacities in terms of
equipment and training of port officers in charge with PSC. Precedence should be given to
national capacity building, specifically in PSC training, activation of the Hurghada MEMAC
Regional Centre and the sustainability of the Djibouti Stockpile Equipment facility.
19
Component 3
Sustainable Use and Management of Living Marine Resources (LMR)
A.
LMR RATIONALE:
As noted earlier, the Red Sea and Gulf of Aden contain some of the worlds most important
marine habitats and species, il ustrating rich diversity at many levels. The Gulf of Aden is a
region of oceanic upwelling, resulting in high productivity of fishery resources. Also in this
area is the Scotora Archipelago, which is critical for fishery resources. A wide range of
species are targeted, e.g. demersal and pelagic finfish as well as invertebrates. Most
species cross boundaries at different life cycle stages and/or are shared stocks. There is a
wide range of socio-economic development scales, e.g. industrial and artisanal throughout
the region, yet it is essential that fisheries in the RSGA be managed from a shared resource
perspective. Fishery resources are of high socio-economic importance to the region for food
security; yet, limited knowledge, awareness of ecosystem links and enforcement are
resulting in unplanned exploitation that is having a negative effect, eroding the potential
sustainability of fisheries as a long-term resource. Along with the Habitats and Biodiversity
(HBC - Component 4) and the Marine Protected Areas (MPA - Component 5) described
elsewhere, this LMR component is one of three that directly address issues related to
sustainable marine resource management and biodiversity conservation.
The scope of this LMR component, which links fisheries with ecosystem health and
biodiversity conservation, is intended to expand previous fisheries studies in the area and
provide baseline data to include a more comprehensive picture of fisheries beyond specific
stocks only, as well as to include environmental and socio-economic information. The major
issues targeted through this component are listed below and were addressed through the
objectives and activities of this component:
- lack of public awareness in sustainable use of LMR;
- lack of information on transboundary stocks and cooperation in management of
shared stocks;
- inadequate baseline data on benthic and demersal stocks,
- unregulated exploitation of high profile species, e.g. sharks and lobsters,
- need for management of ,,fishing shark fins for Asian food market;
- lack of surveil ance and enforcement of existing fishing regulations;
- shrimp and fish farming resulting in environmental degradation;
- unsustainable harvest of ornamental fish for the aquarium trade; and
- lack of coordinated monitoring overall for fisheries in the region.
B.
LMR OBJECTIVES:
1. Promote capacity building for sustainable management of living marine resources;
2. Development of a sustainable management strategy for transboundary stocks and
invertebrates
3. Establishing the legal and policy framework for conservation and sustainable
management of living marine resources.
C.
LMR APPROACH:
In a similar mode to that of the HBC and MPA components, this component was executed
through the modalities noted below.
20
- working groups, coordination by lead specialist;
- establishing centres of excellence, sub-regional training centres linking with
existing universities;
- fisheries data collection centres;
- training courses on methods, key species identification and stock assessment
and sustainable use;
- regional studies and stock assessments on key species;
- monitoring programs;
- development of ecologically sustainable guidelines; and
- integration with other components and into GIS and information management
data bases.
Some of the activities related to the sustainable management of transboundary fish stocks
and invertebrates in this component were designed to be done with non-GEF support
through partnership with FAO from the start. Activities related to the ornamental fish trade
were anticipated to be complemented by private sector industry support.
D.
LMR ACHIEVEMENTS:
Achievements are presented as ,,sub-components to realise the objectives noted above.
1.
Capacity Building for Sustainable Management of Living Marine Resources:
A LMR lead specialist provided full-time guidance and management for this component and
coordinated activities and products, and links with other components, especially HBC and
MPAs. He received training on project management and GIS.
LMR Working group 6 meetings: The LMR Working Group met six times to plan joint
activities, evaluate progress, and exchange data and lessons learned. The WG members
served as the link between the regional project and the national government agencies
concerned with the management of LMRs. Additionally some regional and international
experts joined meetings to address specific issues as needed.
Establishment of 2 sub-regional regional training centres as ongoing partnerships with 2
universities. One was established in the premises of the Faculty of Marine Science at the King
Abdulaziz University (KAU) in Jeddah, Saudi Arabia. While the second, the Fisheries Training
Institute in Aden, Yemen, serves as a sub-regional centre. The GEF provided equipment and
computer elements to both centres.
"Regional Reference Col ection Centre" (in connection with the HBC component) was
established at the Marine Science Faculty of King Abdulaziz University (KAU) in Jeddah,
Saudi Arabia. The marine lab facilities has provided building and support staff which wil
continue to serve as a training centre and ,,regional reference col ection centre (RRCC). Funds
are needed to secure additional materials and environmental education outreach needed.
Establishment of 16 LMR Data Col ection Centres for reporting fish-catch landings. These
include 4 in Djibouti, 4 in NE Somalia, 4 in NW Somalia, and 4 in Sudan. The project provided
computers and other equipment.
Regional Training Workshops: Seven major workshops were held throughout the region on
different issues and often held simultaneously with WG meetings to maximise learning and
meaning to meetings. Many of these were done with collaborative support by other partners
including FAO, and utilised facilities of national universities around the country. These
workshops helped provide the basis and knowledge capacity needed to carry out the other
21
LMR objectives discussed subsequently. In each case there were participants from al
countries, and in most cases reports and or manuals were prepared as fol ow-up.
Specific workshops included:
a) One training course on ,,standardisation of data methods, which linked into the data
being complied through other components and was used in the GIS/Information
Management System; held in Djibouti in collaboration with FAO;
b) One training workshop on developing a regional fisheries database, Djibouti, Nov.
2002;
c) Two training courses on elasmobranches (sharks and rays) held at the newly
established PERSGA sub-regional training centre in Aden, Yemen, 2001 focusing
on identification, data recording techniques and again in 2002 in Aden (see
subsequent sections), focusing on stock assessment;
d) One training course at the sub-regional training centre in Jeddah, 2002 on
,,methods for assessing the status and potential for ornamental fisheries and their
environmental impacts of the aquarium trade; and
e) One workshop on environmental friendly aquaculture and fisheries practices,
Hurghada, 2002.
2.
Development of a sustainable management strategy for transboundary fish
stocks and invertebrates
Overall LMR Data Collection and Dissemination activities:
- Preparation of a comprehensive Status of LMR Resources for the RSGA was
prepared as a baseline document for this component, published in 2002.
- All LMR data has been standardised, geo-referenced and incorporated into an
LMR Data Base and integrated with the overall SAP GIS system, focusing on 3
modules: elasmobranches, finfish and invertebrates and ornamental fish.
- ID Guide for all LMR Species developed from the database and distributed on
CDs to region.
- Purchase of FAO ,,Fish Base 2000 (interactive CD Rom) and distributed to WG
and national institutions.
Shark and Ray LMR management:
- A regional shark ,,finning study including data collection on landings and analysis
of present fisheries impact from ,,shark fining was conducted. Two technical
reports produced and distributed, including:
- ID and Stock assessment of Elasmobranches; and Field Guide to
Elasmobranches (published by FAO)
- A waterproof Shark Guide in Arabic and distributed regionally, Regional
Elasmobranches Management Plan a report on Elasmobranches Identification
and Stock Assessment with regional management measures produced.
Invertebrates LMR Management (shrimp, cuttlefish, crabs):
- Regional training meeting to enhance skil s for conducing trawling studies;
- Assessments of trawl surveys and studies on exploitation rate and environmental
impacts;
- Development of a monitoring programme in collaboration with fisheries ministries
in Saudi Arabia, Egypt and Yemen to look at trawling impacts in coastal waters;
- A Regional Management Plan for Invertebrates was prepared,
- National Management Plans on target ,,trawl species developed by: Saudi Arabia,
Egypt and Yemen
22
Ornamental fish stocks and aquarium trade:
Fol owing from the training (above), surveys of existing practice in ornamental fish
trade conducted in Egypt, Jordan, Djibouti, Saudi Arabia and Yemen as indicative
monitoring; Studies include sampling and survey methods, findings, analysis, and
provisional quotas per country were proposed. Three sequential products evolved
from work in this trade issue:
- Guidelines for Ornamental Fish Sampling, Data Collection and Analysis
for the Aquarium Fish Trade;
- Status Report of the Ornamental Fish Trade for the region; and
- Guidelines for Ornamental Fish Monitoring, Control and Surveil ance" for
the region on this issue, including proposals for quotas, self-financing,
monitoring, control and surveil ance.
Environmental Friendly Aquaculture:
As noted in the training above, an international workshop was held on
,,Environmentally Friendly Aquaculture and Fisheries Practices in Egypt, in
partnership with: FAO, ICLARM, ROMPE and USAID. Proceedings were published
by FAO. From this workshop, EIA Guidelines for Aquaculture were prepared.
Public Awareness:
In collaboration with the PAP component, the guides noted above were useful to
targeted fishing audiences and provided basic information that was rewritten for
childrens activities and posters in the PAP.
3.
Establishment of the legal and policy framework for conservation and
sustainable management of living marine resources
In collaboration with HBC and MPA components and the project overall, a review of
environmental legislation at the regional and national scales was completed for all the
countries (Legislation Concerning Protection of Marine Resources in the RSGA). In this
review CITES and trade in marine resources was examined, as well as utility of protocols for
the region. As discussed in the IS component section, with regard to developing a protocol
for transboundary fish stocks or establishment of a regional fishery body - there have been
ongoing discussions with FAO to establish a Regional Commission of Fisheries" (RECOFI)
for the PERSGA region. An elected focal point from Sudan, representing PERSGA, has
been designated to follow up with FAO, and facilitate a report with contributions by each
country on recommendations for setting up the RECOFI. However, the report yet has not
yet been developed to the missions knowledge.
E.
LRM CONCLUSIONS:
This LMR component has done an excellent job in establishing status, methods, networking
across local to lager scale fisheries, as well as in integrating with other components.
However, like the situation with much of the Project, there was little time to start
implementing some of the guidance, and this is the critical next step. The documents and
action plans lay out clear priorities and areas of action that can be continued at national
international levels and by a wide range of donors/stakeholders.
As indicated above, a substantial number of high quality and comprehensive products were
developed through this LMR component. These are listed in Annex C. Together these
considerably realise the baseline of knowledge for the region, and to the world community,
on the overall status of RSGA living marine resources, and action plans to address these
issues. These documents lay a critical foundation of knowledge for the region, especially in
light of the Red Sea as a globally unique water body. Each of these documents has been
23
developed through a wide range of training, field surveys and collaborative workshops as
noted above. The publications will soon all be available both in published hardcopy and
electronic-web based formats and GIS and information management systems. This will
serve ongoing networking goals of the region and others interested in these fields.
The implementation approach of forming national working groups as well as thematic expert
groups has been effective to engage a range of stakeholders and lays a good foundation for
further collaboration. Al countries were highly involved, and in particular the level of
knowledge for the southern Red Sea countries and ecological functional relationships to the
whole RSGA region is much better understood. This created a strong sense of leadership,
ownership, interest, and participation. Links with the PAP and ICZM work also helped
spread the work and interest in these LMR issues beyond the typical ,,fisheries-biodiversity
community.
With regard to development of the RECOFI and links with protocols, fisheries management
is complex world-wide, and the process is often lengthy. This Project has helped establish
critical fishery and habitat related information baselines and also demonstrates the value of
linking fisheries management with habitat and ICZM oriented measures as well,
demonstrated the generally accepted concept of 'ecosystem based' management.
However, it is essential for PERSGA to help continue the RECOFI and/or transboundary
fisheries agreements.
From a financial planning and cost effective perspective, this component has achieved a
great deal in 5 years given the limited baseline, range of coverage, complexity of issues. So
from a human and organisational capacity the knowledge base and ground work for clear
action is solid, and funds are well spent. While much of the overall Project is supported from
an integrated way and not-component specific, the key areas that are designated as only for
LMR are as follows and documented in the UNDP budgets. About USD $1M was spent on
LMR specific activities with almost this evenly divided between personnel and equipment to
the countries. However, another $400k was indicated for contracts but much of this was
real ocated to the country-driven ,,demonstration activities, of which many addressed LMR
issues.
From a monitoring and evaluation perspective, like the rest of the project, there was
considerable reporting in terms of work plans, quarterly-semi-annual reports. Al of the
training and workshops were executed through participatory approaches with feedback
evaluations. As discussed in the M&E section, the formal adherence to log-frames and
indicators was an evolving process, however the component did stay focused on objectives
outlined in the PIP, although some elements were not executed to the scale original y
envisaged.
Replication and sustainability of the findings and baseline advancement from this LMR work
should be applicable to other areas in and outside of the region now that there are
standardised methods. However, a series of events and a strong fishery based monitoring
programme wil be needed to maintain momentum, as well as further work with FAO and
others on regional protocols and standards of conduct for the various fisheries trades from
pelagics to ornamental. It is also suggested that as PERSGA moves forward, this LMR work
continue to be highly integrated with the work of the HBC and MPA in particular, as well as
obvious links with ICZM and PAP.
24
Component 4
Habitats And Biodiversity Conservation (HBC)
A.
HBC RATIONALE:
Along with the ,,Living Marine Resources (Component 3) described before and the next one
on Marine Protected Areas (Component 5), this component is one of three that directly
address issues related to sustainable marine resource management and biodiversity
conservation. The Red Sea and Gulf of Aden contains some of the worlds most important
marine habitats and species, il ustrating a wide diversity at many levels. Key chal enges to
conservation of these critical habitats were: limitations in baseline knowledge; management
capacity, and ability to proactively address human-induced threats that directly impact critical
habitats and species. (In particular coral reef, mangrove and seagrass destruction from
coastal development, including dredging and fil ing of coastal areas.) Additionally migratory
species such as seabirds and turtles needed transboundary approaches to management.
B.
HBC OBJECTIVES:
1. Promote capacity building for sustainable management of habitats and biodiversity at
the regional and national levels across the RSGA area.
2. Develop regional conservation action plans for key species, e.g. seabirds and marine
turtles;
3. Develop regional conservation action plans for key habitats, e.g. coral reefs,
mangroves and seagrass.
4. Assist in the establishment of legal and policy framework for conservation of habitats
and biodiversity
C.
HBC APPROACH:
The overall approach started with the identification and training of national and regional
specialists through the PERSGA structures (lead specialist, working groups, national
coordinator), as well as thematic groups or expert committees and rosters (birds, corals,
etc.).
The core work focused on the development of standard survey methods (SSM), from which
regional surveys (corals, sea birds, mangroves) were developed. This set the stage for on-
the-job training that facilitated expansion of initial work to more areas and ongoing
replication. From the survey work, regional status reports and conservation action plans
were prepared and are now in various stages of dissemination, such as the development of
pilot sites, monitoring, regional networks, and project proposals.
This information is also now integrated with other components in the GIS and Information
management systems of PERSGA and national countries. Part of the overall approach for
this component was the development of centres of excellence as training facilities in
collaboration with other national and regional universities and ministries. These were utilised
during the project and will be part of ongoing collaborations.
D.
HBC ACHIEVEMENTS:
1.
Promote capacity building for sustainable management of habitats and
biodiversity at the regional and national levels across the RSGA area:
25
Overall 115 regional/national habitat/species specialist were trained in RSGA area,
including:
- A lead specialist provided full-time guidance and management for this component
and coordinated activities and products, and links with other components, especially
LMR and MPAs. He received training on project management and GIS.
- 7 regional working group meetings were conducted through nominated WG leader for
each country; link between the regional SAP and national governments. 2 meetings /
yr to plan activities, evaluate progress, exchange data, share lessons learned;
Members also involved in studies, training programmes and surveys.
- 4 specialist groups/networks were established (coral reefs, seabirds, turtles,
mangroves) to lead regional and national survey and conservation plan
developments.
- Standard survey method guidelines (SSM) were developed for key habitats and
species in the RSGA region. These were tailored for a range of RSGA conditions to
allow integration with other surveys. They were adopted and taught through training
courses, then applied in the field surveys for LMR, HBC and MPA components.
- 16 surveys were conducted across the region to evaluate present status of key
habitats and species, conducted by regional specialists, and now serve as a basis for
ongoing training monitoring throughout the region.
- 5 regional training courses on SSM Methods including workshops reports and
evaluations, were conducted around the region in Egypt, Yemen, Jordan, Djibouti ad
Saudi Arabia, in partnership with marine laboratories or MPA centres in these
countries:
- Reef Check Methods, Aqaba, 2000
- SSM for marine turtles Yemen, 2000
- SSM for corals; Egypt, Sinai Protectorates; 2001
- SSM for seagrasses and seaweeds; Jordan, Aqaba Marine Science Station,
2001
- SSM for mangroves, Djibouti Institute, 2002
- SSM breeding seabirds, Farasan Islands, Saudi Arabia, 2002,
- Coastal community rangers/members were trained for basic monitoring, largely
executed through the PAP and LMR component.
- Establishment of ,,Regional Reference Collection Centre" in connection with the LMR
component. RCCC building was provided through Marine Science Faculty of King
Abdulaziz University (KAU), Jeddah, and is part of university marine lab facilities for
sustainability. The director of the centre received training on natural history museum
management in Germany in early 2004. Funds to secure additional materials for the
centre and environmental education outreach need to be raised.
2. Develop regional action plans (RAPs) for key species (turtles, seabirds):
- Breeding seabirds regional surveys were conducted in 2002 for Djibouti, Egypt,
Saudi Arabia, Somalia, Sudan and Yemen, resulting in national inventories and a
regional inventory and published report, ,,Status of Breeding Seabirds in RSGA, 2003;
published and on the web.
26
- Regional Action Plan for the Conservation of Seabirds in RSGA was finalised in
2004, and now in press for publication.
- Turtle surveys and ,,Turtle Kits with tags for tracking were distributed to 5 countries
from 2000-2002. Surveys and monitoring programmes in 5 countries resulted in a
Regional status report for Marine Turtles 2002 and 5 National Status Reports for
Marine Turtles 2002 (Djibouti, Egypt, Saudi Arabia, Sudan, Yemen);
- Regional Action Plan for the Conservation of Marine Turtles in RSGA finalised in
2004, and is now in press for publication.
- The original project design included surveys for marine mammals, but this was
eliminated early in the project due to difficulty in conducting accurate surveys and
equipment limitations.
3.
Develop regional action plans (RAPs) for key habitats:
(mangroves, corals, seagrasses)
- Coral reef surveys Reef Check during 2002: Saudi Arabia (Jeddah, Al Waijj,
Farasan); Egypt (Sharm, Ras Mohammed, Hurgada); Yemen, Djibouti, Sudan.
Resulted in 2 regional and 14 national status reports for coral reef reports for 2000
and 2002 each; all were incorporated into the international report "Status of Coral
Reefs of the World (2000 and 2002 volumes).
- Regional Action Plan for the Conservation of Coral Reefs in RSGA, was developed
which includes monitoring protocols, is finalised in 2003, published and on the web.
- Regional mangrove surveys and monitoring programmes were conducted in Sudan,
Djibouti, Yemen 2002 for regional and national reports, this lead to
- Regional Action Plan for the Conservation of Mangroves in RSGA was finalised in
2004, in press for publication.
- Seagrass data and recording was collected through the turtle surveys and the coral
reef surveys. Due to the information being recorded in this way, and limitations in
time and finance no formal RAPs were prepared for seagrasses.
4.
Assist in the establishment of legal and policy framework for conservation of
habitats and biodiversity:
In collaboration with the Institutional Strengthening Component 1, a review of environmental
legislation at the regional and national scales was completed (Legislation Concerning
Protection of Marine Resources in the RSGA). This review contributes to a more effective
policy climate with regard to linkages between national-regional-international legislative
instruments that is essential to foster more ecosystem and habitat based management of the
RSGA area.
Also as noted in Component 1, a 'Biodiversity and MPA protocol; has been prepared through
joint HBC and MPA working groups and specialists from PERSGA, and with ROMPE
(parallel regional body for the Gulf area). A series of draft versions starting in 2001 through
to a Final Draft prepared in May 2003 have been prepared. Documents include both the
legal protocol document as well as supporting 'concept paper' which provides the
background of rationale and status relevant to this protocol. Another working group meeting
is planned for May 2004 to finalise the Protocol and supporting documents.
27
E.
HBC CONCLUSIONS:
This component achieved a great deal in limited time frames across challenging logistical,
capacity and financial considerations. An excellent group of researchers, including
universities, concerned agencies and environment ministries, are in place, with a strong
sense of learning and ownership due to the participatory training and testing implementation
approach. The methods are highly replicable in both other time and place contexts. The
stakeholders were predominately the marine community who were highly engaged.
In a similar achievement to the LMR component, and as noted above, the HBC component
resulted in a substantial collection of much needed baseline verification and status work that
now provides a solid knowledge basis for critical habitats in the region. Additionally this work
form a good suite of priority actions, planning suggestions and funding possibilities that
should help national regional- international partnerships to build on the work started in
PERSGA. Each of the reports noted above and listed in Annex C. are substantial, highly
professional and grounded by workshops, literature searches, field work and expert teams.
They are in various stages of publication but wil soon be available in hardcopy and
electronic-web forms, as well as the GIS and information management systems. This wil
not only help the RSGA region, but also the global understanding of linkages and
comparisons world wide for vital shared and common habitats and species such as corals,
mangroves, seabirds.
This component was highly effective for gathering critical baseline information and
establishing methodologies. Nearly USD $500,000 was dedicated to HBC. Much of the work
was done in collaboration with the survey work for MPAs and LMR in efforts to integrate
learning across habitats and sites, as well as be more cost effective. No equipment is
indicated for HBC in the UNDP budgets as much of the work was done in collaboration with
MPA related activities and facilities.
In spite of the considerable HBC achievements, more time is needed to communicate the
results to donors and partners that can foster additional resources for continued work, as it is
not surprising most of the 5 years was taken simply in acquiring this vast amount of
knowledge in a field-tested and participatory way. The establishment of clear information,
goals and effective networks should cultivate partnerships in order for lead specialists to
attend and market at critical meetings.
This component should continue to be managed in an integrated way with the others on
LMR and MPAs, and continue clear links with PAP and ICZM. It is understood that the
post-GEF funded phase of PERSGA wil have ,,natural resources unit that integrates HBC,
LMR and MPA issues.
Like the LMR and HBC components, there was considerable reporting. The component also
worked with the evolving monitoring and evaluation climate building on the PIP through
logframes with later a shift towards ,,process indicators. Feedback from workshops was
conducted and was positive.
28
Component 5
Development of a Representative Network of Marine Protected Areas
(MPAs)
A.
MPA RATIONALE:
In attempting to safeguard the environment of the RSGA area, the SAP established a
system of MPAs aiming at conserving ecosystems of the Red Sea and Gulf of Aden in an
integrated way. The networks goal was to contains examples of all major bio-geographical
sub-units of the Region and major habitat types within each sub-unit, including prime
examples of the full range of coastal and marine habitat types and species communities.
Al countries in the Region have designated MPAs, but they are few in number and only one
or two are adequately managed. Many of the current and/or proposed protected areas are
under high pressure from fishing and tourism. Others are at risk from navigation and
development activities in adjacent areas. To avoid designating more MPAs than can be
adequately managed, the SAP programme emphasised institutional and capacity building,
including resource mobilisation. The programme was designed in a way that the experience
gained during the regional exercises would al ow each country to apply conservation
management principles to the full set of MPAs in its territory.
Twelve declared and proposed MPAs, representing different ecosystem types and
biodiversity richness and uniqueness, were identified as regionally or globally important. Of
these, eight are covered by existing projects with various funding sources, so the proposed
programme funded the remaining four sites and related regional activities (in Yemen, Sudan,
Djibouti). The component focused on these priority sites while at the same time retaining a
regional approach in planning, management and provision of training.
B.
MPA OBJECTIVES:
1. Establishment of a regional network of experts specialised in MPA planning and
management.
2. Increased human capacity in MPA management through regional training and
exchange programmes.
3. Effective implementation of a network of representative MPAs.
4. Completion of site-specific management plans, supported by detailed habitat,
biodiversity and resource use surveys, and public consultation.
5. Commitment from the respective Governments.
6. Establishment of a process of regular regional review meetings with exchange of
data, information and management expertise.
C.
MPA APPROACH:
Similar to the HBC and LMR components, the approach included a lead specialist, and
working groups who guided the overall component. Much of the work was done in
participatory way through training workshops in MPA management as wel as ,,on the job
training for rangers throughout the area. The core and strategic implementation approach
for the MPA component was the decision to first develop a regional master plan and
network, which then provided the ,,big picture and status as well as a process to develop a
template for national MPAs, taking into account regional commonalities and differences.
From the ,,regional master plan approach , site specific national surveys for selected areas
were conducted, which then lead to the development of master plans at the country level,
that resulted in higher endorsement for existing areas as well as declaration of new areas.
Implementation got started with the establishment of mooring buoys and integration into the
29
GIS data base and information management systems, as well as ongoing work through the
regional working group mode.
D.
MPA ACHIEVEMENTS
1 & 2. Establishment of a regional network of experts specialised in MPA planning
and management, and increased human capacity in MPA management through
regional training and exchange programmes.
Seven Working Group Meetings were conducted successfully in the different
PERSGAs member states.
45 existing and future MPA managers were trained in MPA planning and
management during 4 training workshops held in the region:
- Regional Training Workshop on MPA Management, Egypt, 2000;
- Regional Workshop on ,,fully protected area approaches, Djibouti, 2001;
- SCUBA training for future MPA managers, Djibouti, NE Somalia, NW
Somalia, 2001; and
- Regional Training for MPA managers in collaboration with UNDP Train Sea
Coast, Sudan 2002.
Nine existing and future MPA managers participated in two hands-on exchange and
community participation programmes held in Sharm & Aqaba (2001).
Class room training & OJT in survey techniques, GIS and remote sensing were
conducted in Djibouti, Sudan and Yemen, 2002.
Workshop on developing biodiversity protocol with HBC component, Egypt 2003.
3.
Effective implementation of a regional network of representative MPAs.
MPA data entry forms were sent to countries, fil ed and required data entered in the
GIS and the information data bases.
Regional Survey Design published.
Regional Master Plan published and disseminated and now available in PERSGA
website.
Master Plan was used as a template to develop Site-Specific Master Plans for 4
MPAs.
Survey reports for 3 MPAs were finalised and awaiting publication.
4.
Completion of site-specific management plans, supported by detailed habitat,
biodiversity and resource use surveys, and public consultation.
Diving, survey and field equipment were delivered to Djibouti, Sudan and Yemen
Ecological and socio-economic surveys were nationally executed in Dongonab Bay
and Mukawwar Island (Sudan), Belhaf-Bir Ali (Yemen) and Ile des Sept Freres
(Djibouti) MPAs.
GIS & remote sensing data on Dongonab Bay and Mukawwar Island (Sudan); Belhaf
Bir Ali (Yemen), Sanganeb (Sudan) and Il e des Sept Freres (Djibouti) entered in
PERSGA GIS Data Base.
Draft Site-Specific Master Plans for Dongonab Bay and Mukawwar Island, Belhaf Bir
Ali, Ile des Sept Freres and Sanganeb were completed and circulated to countries.
Al four Site-Specific plans were reviewed comments incorporated and scheduled for
publication.
5.
Commitment from the respective Governments.
Site-Specific Master Plans Implemented:
30
The State Government of the Red Sea (Sudan) has consented to the declaration of
Dongonab Bay and Mukawwar Island an MPA and a letter was sent to the Federal
Government in Khartoum;
The Djibouti Government has officially declared Il e des Sept Freres, as one of the
largest MPAs in the region;
The Environment Protection Agency (Yemen) was further urged to expedite
declaration of Bir Ali-Belhaf; and
The process of installment of mooring buoys in Il e des Sept Freres and Sanganeb
Atoll MPAs is stil in progress.
6. Establishment of a process of regular regional review meetings with exchange of
data, information and management expertise.
The MPA Component Provided continuous collaboration and support to the UN-TSC
Programme in the development of the MPA Managers course. A significant and
large-scale workshop held in Port Sudan. This was the first approved UN Train Sea
Coast MPA Managers Course which included a level of accreditation for the
participants;
The MPA LS participated in seven international for a presenting the MPA regional
achievements and enhancing PERSGAs visibility;
Regional and national experts took active part in several MPA activities including the
regional ecological surveys and the development of the Regional Master Plan and
Site-Specific Master Plans; and
The process of establishment of a Regional Steering Committee was initiated TOR
developed and countries requested to send nominations.
Additionally as mentioned in the Institutional Strengthening Component 1, a review of
environmental legislation at the regional and national scales was completed (Legislation
Concerning Protection of Marine Resources in the RSGA). This review contributes to a
more effective policy climate with regard to linkages between national-regional-international
legislative instruments that is essential to ensure the effectiveness of a network of marine
protected areas.
E.
MPA CONCLUSIONS
The overall highlights of the MPA component included: ecological and socio-economic
surveys accomplished, national surveyors trained, involvement and participation of local
communities and other stakeholders; national ownership becoming tangible, and exchange
of experience between international, regional and national personnel. The advancement of
work and progress towards real and effective MPAs for Dongonab Bay and Mukawwar
Island (Sudan), Belhaf Bir Ali (Yemen), Sanganeb (Sudan) and Il e des Sept Freres (Djibouti)
is considerable and a global contribution.
As with the LMR and HBC components, and as il ustrated in the activities above, the MPA
component resulted in a substantial collection of much needed baseline verification and
status work that now provides a solid knowledge basis for marine protected areas. This
information is highly relevant to marine resource management and critical habitats in the
region. Additionally these reports provide an excellent suite of priority actions, planning
suggestions and funding possibilities that should help build national, regional, and
partnerships to carry on the work started in PERSGA. Each of the MPA reports and
management plans are substantial, highly professional and grounded by workshops,
literature searches, field work and expert teams. They are in various stages of publication
but wil soon be available in hardcopy and electronic-web forms, as wel as the GIS and
31
information management systems. This wil not only help the RSGA region, but also the
global goals of establishing representative systems of MPAs as well as advancing the
knowledge on how to better integrate the transboundary and highly dynamic elements of
marine ecosystems in to spatial and temporal MPA design and management arrangements.
This component was highly successful in terms of integrating regional and national
perspectives through the regional > national planning process, as well as links with other
components in particular, LMR, HBC, ICZM and PAP. Experience gained in development of
the regional and national site-specific master plans will form the basis and justification for
PERSGA to approach donors and solicit financial assistance from international organisation
in its pursuit to conserve the environment of the Red Sea and Gulf of Aden
From a cost effectiveness perspective, this component also achieved considerable goals in a
short period time, with a particular case example being the formal declaration of new
protected areas, e.g. in Djibouti. Achieving the regional plan or strategy wil help with other
wider initiatives in MPA assessments world-wide now ongoing through IUCN and other NGO
and UN bodies. Support and engagement with these bodies is essential to now build on the
considerable work laid down in this project and ensure these MPAs do not become paper
parks.
Like the other components, the MPA component was highly integrated from a cost
perspective, so the true costs and benefits are not reflected in one place. However, as with
HBC and LMR, the specific MPA costs can be ascertained through the UNDP budget tables.
For example, a total of USD$1.5 M is dedicated for MPAs. However only about USD $800k
spent and/or committed. About one-third of the MPA funds dedicated to equipment were not
disbursed as original y al ocated in the PIP. The mission understands this was for several
reasons. As mentioned at the start of this report, the MTE exercise recommended the
establishment of demonstration projects that were on the ground oriented and required
rallying of USD $2M across various components. Additionally, since MPAs are typically a
long process, especially when they are ,,firsts for a country, at the stage of the MTE the
proposed areas being strengthened by the project were not yet formally declared so funds
were not reserved at the time of the MTE. However, since a main highlight of MPA
advancement is the new MPA in Djibouti, the mission is pleased that further support to the
new MPA site here will be realised through the Djibouti ,,demonstration project that focuses
on MPAs and thus provided some of the on-the-ground benefits that take time to realise,
especially in MPA contexts.
In spite of the achievements of the MPA component, It is critical to maintain the momentum
of the working and expert groups at the regional levels but it is equal y, and maybe more
important to ensure that the national treasures of MPAs are well managed in perpetuity.
This wil require much effort at the national level with regional support as well as
engagement by international community and NGOs. PERSGA could serve as a regional
coordination or information center for the networking aspects of MPAs in the region.
It is also important to note the ,,protocol on biodiversity and marine protected areas
discussed in the HBC, as wel as the REMP under development through PERSGA. Both are
important interlinked steps for a sound network of MPAs in the region as wel as linked with
studies elsewhere. These MPAs in the Red Sea are ,,living labs of ecological functioning
and understanding that is important globally given the uniqueness of the Red Sea and its
potential role as an ,,indicator sea with regard to monitoring impacts of climate change on
marine species and evolutionary changes through ocean and water-body comparisons
world-wide.
32
Component 6
Support for Integrated Coastal Zone Management (ICZM)
A. ICZM RATIONALE:
During the preparation of the SAP, the need to strengthen integration of environmental and
natural resource concerns in planning and management of the coastal zones in all countries
of the Region was recognised. For countries where the coastal areas have not yet been
developed, ICZM would help in drawing up consistent strategies for future development.
ICZM in these countries would also introduce land use planning and make sure that
development activities in the coastal zone areas avoid environmental stress, damage and
deterioration.
For the countries of the region where the coastal zone areas have already witnessed urban,
tourism and industrial development, ICZM is needed to resolve the conflicts between users
interests and coordinate the mandates and activities of the different authorities. In addition,
ICZM would help identify programmes and plans aiming at restoring and rehabilitating
coastal ecosystems, which might have suffered from environmental stress.
Final y, ICZM would help the PERSGA member states in the efficient implementation of their
commitments to the Regional and International Conventions concerning the protection of
marine environment and coastal areas.
B. ICZM OBJECTIVES:
In the PIP, this component had a number of clear and sharply focused objectives namely:
- Enhance regional exchange of expertise, experience and information on coastal zone
management through establishment of a regional WG.
- Strengthen national and local government capacity to develop and implement ICZM
plans at the national and local level through training and model projects.
- Promote the capacity of both national and local government departments to work co-
operatively to implement land use planning and environmental planning policies and
procedures.
- Provide training in the practical skil s of policy planning, environmental assessment,
monitoring and management in the context of the ICZM process.
- Reduce environmental degradation within the region through use of management
tools such as environmental assessment, environmental auditing and strategic
environmental assessment.
- Improve the technical support base and provision of information required by decision
makers through guidelines for standardisation and routine updating of GIS.
- Increase political and public support for ICZM through participatory approaches in
development and implementation.
C. ICZM APPROACH:
The implementation approach for this component involved:
33
- Two ICZM lead specialists based in PERSGA working with the ICZM WG;
- Work done at the country level to develop and implement national level activities.
These national level efforts entailed planning and management of model ICZM
activities in the four southern countries;
- As for the other counties, Egypt, Jordan and Saudi Arabia, the national level activities
involved preparing a joint comparative ,,lessons learned study on the evaluation of
the collective ICZM Experiences in these countries.
- Given the nature of the ICZM activities, the PIP envisaged significant coordination
between this ICZM component and most of the other components of the SAP-GEF
project. This has only been partially achieved given the delay in the ICZM activities.
- Despite the delays in the activities of the component, the implementation approach
was sound and was followed efficiently.
D. ICZM ACHIEVEMENTS:
This ICZM component is divided into four sub-components. Evaluation of achievements is
presented in this section against the activities of each of these sub-components.
It is to be noted here that concerning this component, very little was achieved between 1999
and 2000. Activities for this component effectively started in 2001.
1. Regional Networking -
The regional working group WG was established with the participation of two members from
each country (except for Egypt, with one member). National ICZM working groups were
established to work on model ICZM activities in Sudan, Yemen, Djibouti and Somalia. In
addition, national ICZM teams were also established in Jordan, Egypt and Saudi Arabia.
Four working group meetings were held to date, with a view of exchanging information and
presenting and discussing lessons learned and/or progress made on ICZM activities. A
regional seminar on "Integrated Coastal Zone Management and Planning" was held at the
Aqaba Marine Park Conference Centre. During this seminar, existing coastal zone
management status in each of the participating countries was presented and discussed. In
particular, Egypt, Saudi Arabia and Jordans ICZM country reports were presented giving an
overview of the status, experiences and lessons learnt. In addition reports on the Model
Activities in Djibouti, Sudan and Yemen were also presented.
As noted elsewhere, a review of environmental legislation at the regional and national scales
was completed (Legislation Concerning Protection of Marine Resources in the RSGA). This
review can potentially contribute to a more effective policy climate with regard to linkages
between national-regional-international legislative instruments that is required for effective
ICZM planning and implementation.
The activities conducted under this sub-component only partially covers what was planned in
the PIP. This could be attributed partly to the late start of the sub-component.
2. Regional Training and Exchange Programme -
The PIP identified a diverse and large number of topics for training, including:
34
- Role of coastal and marine ecosystems in economic and social development.
- Planning and implementation of ICZM.
- Use of physical and environmental planning in ICZM process.
- Mechanisms for inter-governmental and cross-sectoral coordination.
- Public information programmes to support the ICZM process.
- Monitoring and evaluation of ICZM programmes and activities.
As a result of the MTE, it was agreed to integrate and teach on some of the above themes
through a series of capacity building workshops held in the different countries of the region
during 2001, 2002 and 2003. In addition, according to the ICZM final report (2001 2004),
WG members along with national working groups were trained on-the-job during the
implementation process of the ICZM Model Planning. Annex D provides and overview of all
training executed through the Project so far. Some of this is specific to ICZM. It is also worth
noting that much of the training conducted through other components wil also advance
ICZM capacity across a range of issues, scales and contexts.
Component 6 is also working with the World Bank International Water Learn (WB-IW) to
finalise a "Distance Training ICZM Course". It has been reported that the first trail of the
training CD is ready. In addition, the component is planning for training activities to be
conducted in 2004.
A regional ICZM handbook (draft) has been prepared. The handbook presents the main
concepts of ICZM together with the experience and lessons learned from the Egypt, Jordan
and Saudi Arabia. It has been reported that a second handbook is planned and will present
the experience and lessons learnt from the implementation of the ICZM Model Activities.
These handbooks when finalised should be widely disseminated to the relevant target
groups in all countries. This wil help enhance the knowledge in the region concerning ICZM
and could complement and augment the training elements.
While there has been much significant progress on this sub-component, more is needed,
and it is understood that some of the remaining ICZM in 2004 work will focus on training.
3. Geographic Information Systems -
The ICZM component design as reflected in the PIP included the following activities for
the GIS sub-component:
- Improve understanding of the application of GIS to the development and
implementation of ICZM.
- Support development by the WG of PERSGA guidelines for standardisation and routine
updating of GIS.
- Undertake a regional review of the present GIS and related databases in the Region
that contain data relevant to ICZM.
- Provide technical advice and support to harmonise the different systems to facilitate
and expand information exchange within the Region.
- Undertake well-designed GIS applications as an element of model ICZM activities
supported under the component.
35
However, in the World Bank Project Appraisal Document, the LFA included only the
following:
- Establish GIS Working Group.
- Conduct Regional GIS Review.
- Develop model GIS applications.
According to the meeting with one of the ICZM Lead Specialists and the final ICZM Report
(2001 2004), the Regional GIS Working Group has been established and has held two
meetings. In addition, CEDARE conducted a regional GIS review. An "Integrated
Information Management System IIMS" has been developed to include relevant data
from all SAP-GEF project components not only the ICZM component. Al data collected from
the surveys conducted under SAP have been compiled in the system, which can be
accessed through the web. Under this sub-component two GIS training Courses have been
conducted.
During implementation this sub-component has been adapted from its original design. Yet
the sub-component as implemented serves well the overall objective of the project and as
such has been satisfactorily implemented.
4.
Model ICZM Plans
Both the PIP and the LFA presented in the World Bank Project Appraisal Document required
the preparation and implementation of model ICZM plans for selected sites in four countries
Djibouti, Sudan the northern coast of Somalia and Yemen.
Three ICZM Model Activities are currently being implemented in Djibouti, Sudan and Yemen.
Under each ICZM model activity a coastal profile and an ICZM framework were prepared.
According to the ICZM Lead Specialist and the documents reviewed, the following has been
achieved under this sub-component:
Yemen
- The model activity is being implemented in Aden Governorate; Both the coastal
profile and the framework ICZM plan have been prepared;
- Both documents have been approved by stakeholders in a participatory
approach; and
- The framework ICZM plan for Yemen is in the final stage of adoption by the
Prime Minister of Yemen.
Djibouti
- The Model Activity covers the whole coastal area for Djibouti;
- The coastal profile has been prepared and approved by stakeholders in
participatory approach; and
- The team is currently working on the preparation of the national ICZM plan;
Sudan
- The Model Activity covers the whole coastal area for Sudan;
36
- The framework ICZM Plan has been prepared and currently in the discussion
process with stakeholders;
- It wil be presented officially by the Minister of Environment in a national
workshop to be conducted in April 2004 which wil coincide with the ICZM WG
meeting;
In addition, national expert teams in Jordan, Egypt and Saudi Arabia have prepared and
produced reports "Evaluation of the ICZM Experience" in their countries. This sub-
component, although delayed, recent performance is satisfactory in light of the lengthy
process and complexity of preparing and implementing ICZM plans.
D.
ICZM CONCLUSIONS:
This ICZM component addresses a much needed planning and priority setting institutional
mechanism in the region, and as experience has shown worldwide, requires a lengthy
process and complex institutional set-up. With this in mind, the component has been quite
successful despite the considerable delays in its initiation. Among the difficulties faced by
this component are:
- An ambitious component design further complicated by a late start.
- Scarcity of regional experts on the subject of ICZM.
- Problems of data exchange between the different components of the SAP-GEF
project as well as problems of data collection at the national level.
The overall implementation approach of the ICZM component has demonstrated innovative
adaptive management for the different demographic baselines of countries in the region.
This approach of ,,lessons learned for some, and ,,models for others should be replicable to
other areas in various stages of ICZM development. There was a high sense of interest an
ownership by the countries. The plans and human capacity structures should be sustainable
into other forms of partnerships across national-regional-international levels. Although the
total funding of USD $2,110,000 for this component is only USD $200,000 more than
original y envisaged, there have been considerable real ocations of budgets as a result of the
MTE and changing of time lines and needs for this component. In particular, the project
staffing/management costs doubled, while about one-third of funds allocated for training
were real ocated. Additionally, about one-half of the funds indicated for Yemen have been
real ocated. Other elements are generally in line with anticipated spends.
In conclusion, PERSGA should build-up on the success that has been achieved so far
especially on the ICZM Model activities and follow-up on their full implementation.
37
Component 7
Public Awareness and Participation (PAP)
A.
PAP RATIONALE:
Public awareness and participation is a key component of marine environment policy; the
complexity of the issues at stake in terms of living marine resources, biodiversity, marine
pol ution and coastal zone management makes this component a major element.
Participation of all concerned actors, professionals, scientists, local authorities, NGOs, the
media was a prerequisite for the effective implementation of the overall project.
B.
PAP OBJECTIVES:
The component focused on specific objectives to maximise effectiveness, including:
·
building a regional capacity;
·
promoting environmental education;
·
improving PERSGA visibility; and
·
implementing a Micro Grants Program built on NGOs involvement.
C.
PAP APPROACH:
The PAP component was designed and implemented with a view of contributing to the
implementation of all components by ensuring a participative approach to the overall project
D.
PAP ACHIEVEMENTS:
This component was executed through the following sub-components or activities:
1.
Capacity building for PAP regional network members -
Through the establishment of the PAP Board, which included 2 or 3 country experts who
benefited from training courses, board members were trained to raise their professional
capacities in relation to public awareness. Five national centres for developing public
awareness were established. A training kit was produced and disseminated.
2.
Raising PERSGA profile at the regional and international level -
PERSGA visibility has improved substantially with its admittance as an observer at the
WSSD summit and the presentation of a side event during the 4th PrepCom. RSGA day is to
take place every 26th September. It has been already celebrated in Somalia, Sudan, Djibouti
and Yemen along with a range of other activities and festivities in these countries.
3.
Raising awareness of PERSGA SAP in the general public and decision makers
in the region -
Numerous activities were successfully implemented under this item including publication of
posters which are visible in the countries, upgrading of PERSGAs newsletter (Al Sanbouk),
creation of PERSGAs website and the establishment of a regional media network.
However, a highly important gap remains as there is a need to develop a more diverse range
of outreach tools and mechanisms to better address and engage decision-makers.
38
4.
Development of environmental education -
Achievements under this sub-component are substantial compared to those planned. They
are replicable and sustainable. More than 350 teachers were trained through 20 training
workshops (regional and national) and 150 environmental school clubs (a very novel idea)
have been created involving 4000 students. In some countries the Ministry of Education has
created an environmental education unit within the Ministry that wil ensure the continuity of
the project using the documents and kits, which were published. The Environmental
Education Learning Supplement (EELS) on conservation of marine and coastal environment
is an initiative of great interest, which will be helpful in ensuring the continuity of the
environmental education component
5.
Community participation projects funded by micro-grants -
The micro-grants program to support NGOs activities (including social events) in promoting
environmental awareness was very innovative. Seventeen community participation projects
(CPP) were funded in 7 countries and listed on the CPP manual. Many of these activities
were connected to nature conservation issues and support the LMR and biodiversity
components.
E.
PAP CONCLUSIONS:
This component, through the educational program, capacity building and NGOs involvement
in the micro-grants, met the objectives and due to its implementation at the national level.
The component succeeded in getting a high level of ownership from countries, national and
local actors. It meets the criteria of sustainability, replication and cost effectiveness. In
financial terms, it should be noted that the micro-grants program was original y budgeted at
USD $180, 000 dol ars was re-allocated to USD $410, 000 dol ars to respond to increased
demands, which can be taken as an indicator of success.
It is of critical importance to keep the momentum of this component going - in particular the
regional networks, the structures established at the national level such as Environmental
clubs, the involvement of NGOs and to ensure continuity, as well as quality communication
and media tools such as posters, the newsletter, and educational documents generated
through PERSGA.
39
Component 8
Monitoring and Evaluation of Programme Impacts
A.
RATIONAL & OBJECTIVES:
As mentioned in the PIP, the monitoring and evaluation component is a built - in programme
that allows continuous and structured monitoring and evaluation of programme impacts.
Therefore, the objectives of this M&E component are summarised as follows:
- To enhance the capacity of PESRGA in self-monitoring and evaluating activities.
- Results wil serve as an early warning system regarding programme progress and
wil help identifying corrective measures; and
- To enable the project to fulfil the reporting requirements of the GEF IAs.
C.
APPROACH:
As highlighted in the GEF Guidance on Monitoring and Evaluation (GEF Working Paper No.
8, 2002) - the role of M&E relative to GEF's International Waters focal area is to provide an
indicator framework, or regional tool, that countries can use to foster more effective
integration between country-specific and regional interventions that are inherent to the
transboundary features of international waters regions, such as the RSGA area. However,
when this Project was first designed and formulated in 1995-1999, there was minimal
guidance from GEF on best practice for developing monitoring into IW projects. In light of
this lack for formal M&E guidance, the Project was based on a logical approach to meet the
needs and character of this Project.
It was envisaged in the PIP at the onset of the project, that a matrix would be developed to
map project targets and achievements against benchmarks and verifiable indicators to
measure programme impacts. The matrix would specify type, quality, quantity and
collections methods of data to be used. A pilot testing of the matrix should have been
carried out at the end of the first year of the project, based on which modified indicators
should have been used. In this regard a log-frame matrix was prepared for each component
as a follow-on activity of the PIP to address the above.
During the 1990s many large IW projects were implemented, and GEF has refined guidance
to address M&E from the ,,verifiable indicators', relative types that better incorporate various
stages (or progressive involvement) and contexts of different project settings, as explained
below. (Source: GEF Secretariat Working Paper No. 10, November 2002 - Monitoring and
Evaluation Indicators for GEF International Waters Projects.)
1. Process indicators: these characterise the completion of institutional processes on the
multi-country level that requires joint action on policy, institutional reforms and investments
to reduce the environmental stress on international water bodies. Process indicators
demonstrate institutional and political progress to solve complex problems inherent to IW
areas. Examples of process indicators are: establishment of inter-ministerial committees;
country-endorsed regional TDAs, completion of a SAP, stakeholder involvement, high-level
political commitment, adoption of M&E during a project. More specifically examples include:
country adoption of IW water related reforms, treaty ratifications, etc.
2. Stress reduction indicators: These relate to the specific on the ground measures to
produce detectable changes in international waters contexts. Examples include:
enforcement action on pol utant discharges, investments in pol ution mitigation, amounts of
underwater or coastal habitats protected; changes in fishing practices, etc.
40
3. Environmental status indicators: These are measures of actual performance or success
in restoration and/or protection of a water body through multi-country activities and
harmonised programmes. Examples include: measurable improvements in trophic
complexity (biodiversity) or productivity of a habitat, ecosystem or species; improved
oceanographic or biological indices of water quality; reduction of persistent pol utants in the
food chain; improvements in local community economic situation; increased stakeholder
awareness.
The above new guidance on GEF M&E is included here, as it provides important context to
the subsequent discussion of M&E for this section of the report, as well as concluding
recommendations at the end of this report.
D.
ACHIEVEMENTS:
At the outset of the Project (1999) no log-frames were required or prepared for the project
overall. As a means to 'operationalise' and detail the PIP, log-frame matrices were prepared
for all the components. These matrices included indicators and their means of verification.
However, in some cases objectives and outputs presented in the LFA matrix did not coincide
with those of the PIP.
Subsequently, application of the emerging guidance from GEF led to re-interpretations to the
PIP and changes to previous log-frames to include the identification development of 'process
indicators' for most of the components approximately mid-way through the five year Project
time frame. Feedback from lead specialists and other staff to the mission indicated that
they felt these were positive directions and helped guide execution of activities. However, in
some cases the requirement change the log-frame approaches and rationales made clear
tracking more challenging during the course of the Project phases.
Another objective of M&E is to have a 'self-monitoring' mechanism, both at the component
level and the overall project levels. The MTE process provided an opportunity for the Project
to conduct a 'self-evaluation' midway through the project. Prior to the GEF-required MTE,
PERSGA initiated a 'special review' to serve as an in-house examination, as a preparatory
exercise for the MTE. As noted in the beginning and throughout this 'terminal evaluation'
report, the MTE had a significant impact in terms of major Project revisions with regard to
scaling up or down the level of effort for specific activities and budget implications. It is
worth noting that the MTE review team highlighted they did not have time to review budget
elements of the Project, so the direct link between activity performance and expenditures
was not taken into account, either in a looking back or forward perspective.
However, in this context, the role of the Task Force and monthly meetings (phone
conferences) between PERSGA and the Implementing Agencies has served as de facto
'self-monitoring' and transparent examination and consensus on budget and activity level of
effort revisions. From a 'reporting' perspective, the Project has been very clear and
consistent with the Project design. For example, all semi-annual and annual reports
throughout the lifetime of the project were all produced.
E.
CONCLUSION:
Interestingly, the level of clear, 'critical path' tracking envisaged by the PIP objectives may
have been compromised by a state of dynamic change and too much work on creating
numerous monitoring indices and protocols - resulting often in more focus on component
details rather than big-picture results. From a component-specific perspective the overall
level of 'M&E' and adherence to objectives is satisfactory. However, it is the a lack of 'critical
path' of achievements and chal enges review by the Project management that make the
overall picture of M&E partially satisfactory to satisfactory. This in turn has potentially
41
contributed to the difficulty in making a clear 'forward vision' and getting new funding
mechanisms in place by the time of GEF closure.
However, it is worth noting 'process', as achievements from the Project have naturally
matured during the past 5 years, and now provide the foundation for an ongoing SAP
'programme' rather than ,,project perspective. In this context is important to be cognisant of
the GEF types and 'stages' of M&E indicators described in the start of this M&E component
section. The Project has clearly achieved the first stage of objectives, responding to
'process indicators', e.g. :
establishment of sustainable institutional networks at different levels (Council of
Ministers, Task Forces, Lead Specialists, etc.) through the Institutional Strengthening
Component;
fostering an enabling legislative and policy climate through development of protocols
on biodiversity and MPAs as well as LBAs;
development of surveys and monitoring protocols that have resulted in strategic
action plans for navigation, critical species and ecosystems;
real changes in policy for integrated coastal zone management and marine protected
areas in some countries; and
demonstration of stakeholder involvement through the PAP component, but also
through the intense level of participation and training in all components.
The Project has now started to mature into the second phase of 'stress reduction' indicator
achievements, for example:
increased areas of critical marine and coastal habitat (space) now formally classified
as marine protected areas, most notably in Yemen, Djibouti, Sudan;
new surveys and maritime maps and vessel traffic systems that wil minimise
accidents in the navigational y complex southern RSGA area;
formally accepted ICZM plans for provincial and national scales which influence the
nature of development activities towards more ecological sustainable trends in a
range of locations;
establishment of a regional environmental monitoring programme for oceanographic
and pol ution parameters to complement the Project advances in habitat and
biodiversity monitoring.
As the PERSGA SAP moves beyond the GEF supported phase, the scientific, ecological,
policy and public awareness foundations developed through this project wil prove in the
longer term (e.g. 10 years) allow for the last level of 'indicators' to be realised, e.g. tractable
evidence of an enhanced marine environment situation for the RSGA. Interesting many
GEF IW projects are trying to address 'restoration' measures for pol uted or damaged seas.
Yet the RSGA is one of the world's few areas that are stil in a semi-pristine condition and
relatively unpol uted as compared to other seas. The chal enge for the post GEF phase of
the SAP wil be to use monitoring and evaluation tools and indices as a way to ensure the
RSGA not only maintains the present level of ecological health for reasons relevant to the
RSGA area, but also as evidence of ecological thresholds that other marine-coastal areas
should be striving towards.
42
IV. EVALUATION RATINGS & ANALYSIS
A.
APPROACH
As required by the GEF Terminal Evaluation Guidelines, the mission conducted a ,,rating for
each component and the overall project. The ,,ratings in the context of GEF Criteria are
described subsequently. This information guided the evaluators assessments of the
components. A ,,rating table is presented which is a matrix of: a) components ranked by
GEF Criteria; and b) Criteria assessment for the entire project. The grading required by the
GEF was used as a basis for the rating process. It ranges ranging from 4 to 1, as explained
in the next section. It is important to note that the ,,Demonstration Projects and other
emerging initiatives, are not incorporated into the ,,rating as these were too early in their
,,project cycles for the mission to effectively evaluate. In this chapter, overall discussions of
the GEF Criteria as relevant to the ,,whole project are discussed, elaborating on the numeric
indications from the rating table. The guidance presented below is extracted from two GEF
Secretariat documents: GEF, 2001. Project Performance Report, Annex 1 Definition of
Ratings; and GEF, 2003. UNDP Guidelines on Terminal Evaluation Reports (Criteria).
B.
EXPLANATION OF GEF RATING & CRITERIA
GEF International Waters Ratings:
Taking into account both implementation progress (components/activities) and objective (or
purpose-based) perspectives, the ratings are:
Highly Satisfactory (4) = Implementation of all components in compliance with
original (or formally revised) PIP. Project achieved or exceeded all major objectives ,
resulting in a project being presented globally as 'best practice' and yielding global
environmental benefits.
Satisfactory (3) = Implementation of most of the components in substantial
compliance with original/revised plans, except a few elements that are subject to
remedial action. Project wil provide satisfactory global benefits without major
shortcomings.
Partially satisfactory (2) = Implementation of several components only, and not in
substantial compliance with plan. The project is not expected to achieve several of
its major purposes nor yield substantial global benefits.
Unsatisfactory (1) = Implementation of most components not realised and Project not
expected to yield worthwhile global results.
43
GEF International Waters Projects Criteria:
The use of the following GEF Criteria are used to conduct terminal evaluations. These
criteria were applied to each of the eight components of the SAP/GEF project leading to an
overall rating as noted above and detailed subsequently.
Outcomes/achievements of objectives
Achievements based on final reports for each component and financial documents were
compared to the PIP and the logical frameworks taking into consideration what could
realistically be expected following the mid-term evaluation. For example, the navigation
component came slightly below the logical framework but above what could be reasonably
expected, therefore, high marks were given to that component.
Implementation approach
The mission reviewed institutional and partnership agreements related to the project.
Adaptation and revisions, including financial that were introduced during the implementation
process were taken into consideration.
Stakeholder participation/public involvement
The evaluation process took into account the extent to which concerned stakeholders were
associated in the implementation of the project (scientists, local authorities, NGOs, socio-
economic actors and other ministries)and public participation encouraged,
Sustainability
Together with the achievement criteria, sustainability was considered a major component of
the evaluation, as most of the outputs of the project have to show continuity and must be
maintained after the completion of the project, for instance: MPAs, navigation routing
measures, environmental school clubs, port state control, etc.
Monitoring and evaluation
The project had a range of M&E mechanisms, including monthly-quarterly-semi & annual
reporting on progress and finance, public outreach, presentations, a mid-term review, final
component reports and final reports on ,,capacity building overall and country/regional
achievements.
C.
RATING TABLE
The following provides a numeric expression for of the evaluation of components as fully
discussed in Chapter III.
Comp x OBJ-
IMPL
PARTICIPATION M & SUSTAINABILITY
Criteria
OUTCOMES APPROACH
E
Component
Averages
1. IS
3.3
3.5
3.1
2.3
2.7
2.98
2. NAV
3.7
3.7
3.3
3
3
3.34
3. LMR
3.3
3.2
3.2
3
2.7
3.08
4. HBC
3.7
3.6
3.4
3
3.3
3.40
5. MPA
3.5
3.3
3.4
3
3
3.24
6. ICZM
3
3.7
3.2
2.5
3
3.08
7. PAP
4
3.7
3.7
2.7
3
3.42
Criteria
3.50
3.52
3.32
2.78 2.95
3.22
Averages
(out of 4)
44
As explained above, the grading suggested by the GEF Secretariat guidelines was used as
a basis for the rating process ranging from 4-1 scale as: highly satisfactory (4); satisfactory
(3); partially satisfactory (2), though to unsatisfactory (1).
The above table also allows the evaluators to rank the overall project as 3.22, which is
overall ,,satisfactory, with many elements moving towards ,,highly satisfactory according to
the GEF criteria. The mission expects this positive trend wil continue with further work by
PERSGA and partners around these critical objective-based components. The missions
findings are discussed in more detail below.
D.
DISCUSSION OF GEF CRITERIA AS APPLIED TO OVERALL PROJECT
1.
Achievement of objectives
When comparing outcomes/achievements to objectives as expressed in the PIP and log
frame documents, and taking into account the reorientation that took place after the mid-term
evaluation as well as the need for a reasonable and realistic approach, the analysis of the
outcomes gives a very positive feedback and progress accomplished in most areas: e.g.
creation of an innovative infrastructure for environmental education;
capacity to draft projects to be submitted international donors;
safety of navigation;
quality and substantive excellent scientific assessments which were
implemented specifically in the hydrographic and biodiversity fields;
better knowledge of the regional natural heritage;
establishment of marine protected areas;
capacity in preparing strategic plans at the national and regional levels;
the strengthening of the administrative and scientific capacities throughout the
region;
establishment of regional networks of scientists or professionals; and
improvement in PERSGA visibility.
Of course, some of the objectives, and in particular, those that were to provide equipment or
increase capacities at the national level could not be totally reached as of this stage in light
of the budget revisions done to support the demo activities now getting underway or other
priorities decided as per the MTE. These all had budget and delivery implications, e.g.:
- The navigation component was very successful at the regional level with hydrographic
survey and the official acceptance of new navigation routings in the south. Yet, changes
overall in the budget reflects the high priority final y given to the management of the project
at the regional level (e.g. budget for the navigation management component doubled from
US$335,000 to US$650,000) or to regional concerns (hydrographic survey budget was
increased by US$1000 000) as compared to capacity building in the countries for PSC
training (US$240,000 was cancelled) as well as the reduced budget for PSC implementation
and for international conventions ratifications. Concerning ICZM, the budget for the
management aspects was doubled (from US$309.000 to US$618,000). From the HBC,
MPA and LMR components, some activities to be undertaken in countries were scaled back,
such as equipment for anticipated declaration of MPAs (boats, cars, diving equipment) as
wel as national training courses. However, most of the demonstration projects are oriented
to HBC, MPA and LMR objectives and re-packed in a way that is designed to provide more
benefits to countries while also supporting regional and global goals.
45
At this point in time, the mission cannot determine if the Demos project was a better
response to the local needs than what was original y planned and budgeted in the initial
documents.
The mission agrees that for PERSGA as young organisation with a broad mandate, it was
correct to put the emphasis on the regional dimension of the project as a first step. This
does reinforce the role of this Project as a GEF project on international waters, in which
implementing agency is a regional body. In this context, the mission would express the
overall view that the Project achieved what was reasonable to expect in terms of outputs,
with some activities going beyond expectations, some as planned, and some stil needing
further work.
2.
Implementation Approach
The implementation approach adopted by the Project was a flexible and responsive or
'adaptive management' approach. This responsiveness and flexibility have allowed the
project to achieve its overall objectives with a relatively high degree of satisfaction. On the
other hand, it has resulted in a situation where utilisation of the M&E tools was
compromised. This has caused some components to lag behind in achievements and time
schedule, as well as difficulty in seeing overall needs as discussed in the M&E chapter.
Concerning the partnership arrangements established for implementation of the project with
relevant regional/national stakeholders, the evaluation exercise has revealed three main
findings:
- Overall, the partnership arrangements with the institutional stakeholders was
effective.
- There is an inherent difficulty in this type of regional project where sometimes
sustainable regional benefits are overweighed by specific national interests.
- More participation of, and consultation with the national institutional stakeholders
could result in better achievements the objectives of the project.
3.
Stakeholders participation/public involvement
PERSGA managed to bring concerned stakeholders in the scope both at regional and
national levels. For instance, IMO and IPIECA actively participated in the regional activities
ministries for maritime navigation and port authorities were involved at the national level with
the ministries for environment, which was a prerequisite for effective outputs of this
component. In the field of living marine resources, PERSGA engaged involvement of the
ministries of fisheries and national resources as wel as fishing communities in some cases.
ICZM, where implemented, for instance in Aden government or Djibouti facilitated all
concerned actors to working together with a view of making progress and reaching
consensus for an integrated approach of sustainable development. The PAP component far
from being isolated was wel integrated with some other components, for instance, promoting
better awareness and NGOs participation in living marine resources management plans.
PAP component managed to get education departments involved in the project.
4.
Sustainability
There are variable findings regarding this criteria field. The project has high potential for
sustainability in terms of knowledge and skil s in light of the considerable new baseline
advancement and new knowledge that was done (e.g. surveys, national marine protected
area plans, navigation surveys, public awareness, etc.). Additionally there has been
46
considerable strategic and priority setting executed, in particular through the HBC, LMR,
MPA and ICZM components. Each of these resulted in an impressive set of collated
knowledge and strategic plans and priority action programmes. However, the real ocation of
some equipment and infrastructure capacity to other activities or later phases (e.g. demos)
has reduced immediate results on the ground in some cases and a sense of countries
getting material benefits at this time.
The project may prove highly sustainable with regard to the ,,human capacity and
maintaining momentum and institutional memory though the excellent use of working groups
for all components, thematic groups (e.g. species), as well as national coordinators and focal
points to provide PERSGA <> National communication. Additionally the role of high-level
Council (ministerial level) to endorse the project at the highest levels proved useful, as well
as the Task Force, serving as a guiding role. Al of these modalities could easily be
continued.
However, the above potentially highly sustainable human and knowledge aspects are
presently compromised by the unfortunate reality that no ongoing financing, or new financing
was rallied during this 5 year process in spite of various efforts to do so. The Red Sea
Environment Fund that was envisaged from the start has not yet transpired. The mission is
of the opinion that the project design could have been better phased to have a ,,transition
phase with some activities to longer have GEF support towards the end as they starting to
seek new support, while others continued until new support was found. Yet, in light of the
ambitious and comprehensive character of the Project , the mission feels it has been overall
very successful in achieving all it has, and realises it is now in a state of readiness for new
partnerships and support.
5.
Monitoring & Evaluation
As discussed, the Projects ,,self monitoring capacity has been somewhat chal enged by the
changes application of M&E modalities to the Project. However, from a 'process
perspective', the Project successfully il ustrates typical 'process indicators' and objectives
and is now moving on towards demonstrating valid stress reduction indicators. The resulting
human-organisation capacity and environmental information and strategic planning
foundations realised through this project can lead to considerable future benefits if further
funding is rallied around key issues, taking into account variable time frames for different
issues.
47
V
EMERGING INITATIVES
During the course of implementing the GEF funded phase of the PERSGA SAP, some
regionally and nationally significant initiatives have ,,evolved or ,,emerged from the ,,Project
process. These not only serve as important cross-cutting component linkages but also as
axes to build on as the SAP continues to be realised beyond the GEF phase. In that these
initiatives are just getting underway, the mission does not evaluate them in the same way as
the 8 core components. However, the mission felt these emerging initiatives provide some
avenues of sustainablity of the SAP objectives and are important areas for further work and
support. Therefore this chapter provides a summary of these initiatives, with elaboration of
the demonstration activities and links with components.
5. Protection of the Marine Environment from Land-Based Activities
6. Regional Action Plan for Marine Contingency Planning
7. Regional Environmental Monitoring Programme (REMP) for RSGA
8. Demonstration Projects
1.
PROTECTION OF THE MARINE ENVIRONMENT FROM LAND-BASED ACTIVITIES
(LBA)
Issues related to land-based activities have gained prominence since the original GEF
Project design and PIP were elaborated. There is the accelerating and catalytic work the
LBA Protocol and Action Plan to address the protection of the marine environment from
land-based sources of pollution in the RSGA area. Final drafts have been prepared as of
June 2000 and joint technical and legal experts meeting is planned for May 2004. The LBA
protocol responds to emerging LBA issues from recent global summits and supports the
goals of the Global Programme of Action (GPA). This protocol is complementary to the
Project-generated review of all environment related legislation which addresses marine and
transboundary issues for the RSGA region. Both legislative efforts are considered a
significant cross-cutting activities which build on and contribute to all components through a
better understanding of the status of marine relevant environmental legislation for all
countries in the region. Further connected to the issue of the land-based pol ution is the
recent development of a cross-cutting REMP discussed subsequently. The maturing ICZM
work in each country developed through the Project potential y lays a solid foundation for
addressing the national-regional character of LBA activities in terms of land-based pol ution
affecting the marine environment.
2. REGIONAL ACTION PLAN FOR MARINE CONTINGENCY PLANNING
Fol owing on from the momentum of the NAV (Component 2) activities discussed earlier,
PERSGA and IMO prepared a draft ,,action plan (and related project document for donor
48
consideration) to develop national and regional systems and sub-regional contingency
planning in the RSGA area. In light of the increasing risks to the RSGA area from marine
activities, this Action Plan focuses on:
- the development of national systems for oil spil preparedness and response;
- the enhancement of regional cooperation through the development of a sub-
regional framework between neighboring states; and
- further establishment and realisation of the MEMAC (see Component 2) to
coordinate activities and assist Parties in their preparation and response plans.
3.
REGIONAL ENVIRONEMTNAL MONITORING PROGAMME (REMP)
FOR THE RED SEA AND GULF OF ADEN
Through the Project, PERSGA has put in place a comprehensive biological habitat and
resource monitoring programme, and PERSGA seeks to build on this initiative by integrating
an additional suite of physical, chemical and biological measurements into a regional
monitoring programme. This will not only be important for LBA issues as noted above, but
also highly significant for the emerging science and monitoring role that the RSGA region
might provide with regard to climate change indices and actions.
In this context, PERSGA has designed an overarching Regional Environmental Monitoring
Programme (REMP), with a focus on contaminant-monitoring. The concept of the Regional
Environmental Monitoring Programme is as a minimum, a common set of monitoring
parameters/requirements to be undertaken by all Member States as an integral part of their
national monitoring programmes. It wil target transboundary pol ution issues. Its scope in
the first development stage wil be limited because of funding constraints and disparities in
the technical capacity and facilities between states. It is expected to take up to 4 years to
bring all the Red Sea states to a common first stage monitoring level. As a first step,
PERSGA commissioned in autumn of 2003 a multi-disciplinary mission to tour the region in
order to address the following and provide a basis for future funding and action.
-
identify the objectives and aims of a proposed REMP;
-
review and assess existing national and regional, chemical and biological
monitoring capacities;
-
conceptualise a proposed REMP; and
-
prepare a proposal for the implementation of the first phase of REMP, including
resource mobilisation proposals.
4. DEMONSTRATION PROJECTS
Demo Rationale -
The Mid-Term Evaluation recommended that the overall project be revised to include a
number of "demonstration activities" (hereafter ,,demos) to ensure concrete delivery of
project funds for on the ground actions, engender a sense of ,,country ownership and
address in a limited way root causes of marine environmental issues in each country.
Additionally the demonstration activities would start implementation action building on some
of the baseline knowledge and strategic advances of the project (e.g. marine surveys and
action plans).
These ,,demos would also allow the ,,environmental researchers, rangers, on-the-ground
managers to learn about project design and grant management in a way that would mentor
and foster forward leadership and future work with partners like the UN and other NGOs. In
2002 the recommendation for reprogramming selected elements of the GEF SAP for
,,demonstration activities was endorsed and approved by the Task Force, Implementing
Agencies (UNDP, UNEP and WB) and the country representatives.
49
Demo Implementation approach -
The demos were launched with a training workshop for all countries to discuss:
- common understanding of project sustainability;
- development of log-frames and finance plans;
- utility of monitoring and evaluation in projects; and
- development of M&E plans for each demo and common M&E platform.
Subsequently, each country, in collaboration with PERSGA and UNDP, developed project
proposals (which are similar in scope and scale to GEF PDF B documents). Through this
process the following demonstration projects were developed with implementation starting in
mid-2004, with funding of the projects tied to performance, including an initial payment upon
proposal approval, another upon delivery of an inception report, and further tied to quarterly
progress reports. The GEF support for the demos is USD $2.1M total, with national
allocations from $125,000 to $360,000, with the GEF funds to be disbursed over a year
period (allowing for reasonable no-cost extensions). Additionally each country pledged a
match of funds or in-kind support that would continue the activities beyond one year. These
projects follow closely work is of regional and national interests as wel as work that
countries were keen to accelerate from their own previous work.
The following table lists the projects and links with the Project, followed by scope and
preliminary status reports on each demo project. Already in some cases there is more
success to date than others, as would be expected. While the mission does fully support the
rationale above for such projects, it may prove that some of the projects are ambitious in
scope for the time frames. In the cases where some of the ideas are ,,new and not clearly
flowing from the SAP capacity and knowledge building these may prove challenging.
# Demonstration Project Title
Country
GEF SAP
Links
1 Development and Implementation of a
Djibouti
MPAs
Management Plan for two pilot Marine Protected
Areas in Djibouti
2 Sustainable Development of Coastal Marine Egypt
LMR, HBC,
Resources along the Gulf of Aqaba Coast
MPA. PAP
3 Incorporating Artificial Reefs in the Gulf of Jordan
HBC
Aqaba
4 Establishing a Regional Remote Sensing Centre Saudi Arabia
ICZM, IS
for the RSGA Countries
5 Management of living marine resources along Somalia (NW)
LMR
the NW Somalia coast of the Gulf of Aden"
6 Assessment of key habitats and turtle nesting"
Somalia (NE)
HBC
7 Demonstration Activities Project for Sudan
Sudan
LMR, HBC
8 EPA Program on the Conservation of Coastal Yemen
MPA, HBC,
and Marine Habitats
PAP
1. Demonstration Project for Djibouti
Title: "Development and Implementation of a Management Plan
for two pilot Marine Protected Areas in Djibouti"
SAP Component Links: MPAs
Objectives: The Demo project is expected to include the following components:
formation of a planning committee
strengthening of the national capacity in the management of MPAs
50
monitoring and conservation of living marine resources
preparation and implementation of a final management for MPAs
Scope and Status:
After some delays on the design and content of the Demos project in Djibouti, a plan was
approved in the context of the Demos project as decided after the mid-term evaluation. The
main goal is to prepare management plans for 2 marine protected areas, one already
existing on the islands of Mokcha and Maskali, the second on the Isle des 7 Frêres and Ras
Liya to soon be formally declared by the Government of Djibouti. Both need equipment to
implement management plans. GEF funds amounting to US$300,000 have been allocated
with work formally beginning during October 2003 and conclusion scheduled for June 2004.
2.
Demonstration Project for Egypt:
Title: "Sustainable Development of Coastal Marine Resources along the Gulf of Aqaba
Coast"
SAP Component Primary Links: LMR, HBC, MPAs
Objectives: This project is designed around 5 integrated sub-projects or objectives:
a. Carrying capacity assessment for southern Sinai diving centres;
b. Reduction of risks of accidents, pol ution and navigation;
c. Sustainable development of living marine resources sea cucumbers;
d. Sustainable development of living marine resources ornamental fish; and
e. Public awareness and community mobilisation programme.
Scope and Status:
As noted above this project are 5 distinct ,but inter-related, projects, each with their own
objectives, sub-budgets and responsible team leader. The overall goal is to advance and
focus the considerable experience with marine resource management in the Aqaba area by
focusing on key activities that need attention and are of high priority to the public and private
sector in this area.
The overall time frame for the GEF contribution is 1 year (July 03- 04), but all of these
activities build on work in progress by the Egyptian Environmental Affairs Agency, in
particular the Sinai Protectorates Unit. The GEF support is for USD $272,000 with an
additional $330,000 by EEAA both as cash and in-kind. A detailed project proposal was
prepared and approved by UNDP. An inception report was prepared, as wel as a detailed
first quarter progress report. The second quarter (mid-term) progress report has been
submitted.
The mission met with the environmental researchers staff responsible for leading these
components and was provided presentation and site-based examples of considerable
progress to date, that are in full accordance with actives proposed in the proposal.
Highlights include:
a) Dive Capacity: Extensive dive surveys of impacted and non-impacted areas have
been conducted. Diver interviews and analysis of critical areas, and proposals for a
,,rotating dive site plan in agreement with the diver tour operators have been
prepared as a result of the surveys.
b) Accident and Pollution Risk: surveys of shal ow reef areas with remote sensing and
ground truthing, as well as interviews with boat operators conducted. Agreement on
installation of markers for areas made with operators. Proposal to make the Straits of
Tiran as an IMO endorsed PSSA (particularly sensitive sea area) is in preparation.
Refinement of linkages with emergency coordination and planning is underway.
51
During the mission, a ship wreck occurred during the presentation of this component,
highlighting the need for this work. The mission also attended ,,skippers meetings,
il ustrating endorsement of the activity.
c) LMR Sea Cucumbers: There is increasing demand from the Asian ,,food trade
market for sea cucumbers, as well as increasing research on cultivation. This project
has to date developed sea cucumber status and species surveys, monitoring areas
and successful completion of asexual reproduction for one target species. Further
work for expansion of results and learning about sexual reproduction for other
species is underway.
d)
e) LMR Ornamental Fish: Surveys of key species and locations for ,,target fish have
been conducted, along with interviews with the fishermen and primary
supplier/industry link. Experiments with larval grow out were not successful, as has
been the case worldwide, so further collaboration with international colleagues
continues. The focus now is on better understanding of the collection and distribution
techniques towards more sustainable practices in collaboration with the Marine
Aquarium Council.
f) Public Awareness: The rangers or environmental researchers for the Sinai
Protectorates have much experience in this area due to the popularity of Ras
Mohammed and Sharm el Shiek as dive holiday destinations. A range of information
outreach products and workshops are in progress including hotel questionnaires and
discussions with industry leaders and owners.
In conclusion, it is the impression of the mission that this ,,demo project is fully realising the
goals of the ,,demo rationale from a perspective of advancing effort that is critical to both the
country and regional interests. Furthermore each component leader expressed strong
appreciation for the learning curve and experience value of directing and managing their own
projects, both in terms of substance, finance and time-frame targets.
3. Demonstration Project for Jordan:
Title: "Incorporating Artificial Reefs in the Gulf of Aqaba"
SAP Component Links: LMR, HBC and MPAs
Objectives:
- To demonstrate the viability and effectiveness of construction of artificial reefs in the
Gulf of Aqaba, drawing on worldwide experience, as a complimentary approach to
the traditional utilisation of naturally occurring coral reefs to support sustainable eco-
tourism;
- To enhance public awareness on reef conservation, involving local communities in
reef management, to document and disseminate Jordans experience in artificial
reefs in order to benefit the wider PERSGA region; and
- To provide alternative source of income through fishing and tourism activities from
the newly created artificial reef sites.
Scope and Status:
This project aims at relieving the pressure from various development activities on naturally
occurring coral reefs through testing the feasibility of constructing artificial reefs in selected
locations of the Jordanian coast of the Gulf of Aqaba. Project activities involves technology
transfer in artificial reef construction and techniques, sharing of experience with other
countries of the region through the regional cooperation framework provided by PERSGA,
on the spot training, and longer term monitoring programme to measure successes (and
52
failures) and to accumulate regional knowledge and document lessons learnt from such
initiative. Like all the ,,demo projects, the funding by GEF/PERSGA covers only one year, in
this case $300,000. The Government of Jordan is contributing $379,000 and wil ensure
adequate flow of resources to sustain such activities beyond project duration.
The implementation of the demonstration project is moving forward with some delays at the
national level. A large percentage of the hardware needed for the project is already in
Jordan and it is expected that implementation is accelerating accordingly.
4.
Demonstration Project for Saudi Arabia
Title: "Establishing a Regional Remote Sensing Centre for the RSGA Countries"
SAP Component Links: ICZM (GIS/IIEM), IS and data input from LMR, HBC and MPAs.
Objectives:
- To outline the procedures and requirements to establish a Regional Remote Sensing
Centre serving the RSGA Countries as a ,,centre of excellence for the region;
- For this RSSC to be key tool for decision making of the RSGA marine environment
and resource use; and
- For the RRSC to be fully integrated into the PERSGA GIS and Information
Management Systems.
Scope and Status:
This project wil help to extend the national Saudi Arabia capacity to the region, as well as
provide better means to integrate and examine different levels of information for different
purposes, by linking remote sensing tools with other GIS and planning tools. It will be
especially useful for environmental monitoring and assessment for multi-temporal data in the
region (e.g. coral reef bleaching). The visual and up-datable nature of this tool wil help with
critical decision making and priority setting for a range of sites and scales in the region.
The project is envisaged around a 1 year time frame for the GEF ,,demo phase longer taking
into account national contributions. The GEF budget of USD $360,000, along with $464,000
provided by the Presidency of Meteorology & Environmental Protection (PME) in Saudi
Arabia, who is the host organisation for this element as well as PERSGA overall. This
centre wil build existing capacity by PMEP at the national level, and extend it to the regional.
The support by GEF provides: training activities, computer hardware/software. PMEP is
providing office space and specialist personnel.
A project proposal was approved and an inception report was prepared, but information from
PERSGA at the time of the evaluation does not indicate further work. However mission
meetings with PMEP staff conducting this work indicate they are now setting up the office
area and procuring relevant remote sensing requirements as needed, as well as acquiring
land-sat imagery for this purpose.
5. Demonstration Project in NW Somalia "Hargeisa"
Title: "Management of living marine resources along the NW Somalia coast
of the Gulf of Aden"
SAP Component Links: LMR
Objectives: The project aims at enhancing the capacity of the Ministry of Fisheries to
participate in national and regional programs on living marine resources by providing the
53
necessary logistics and training of personnel within the context of il egal fishing, poverty and
the lack of governance in addressing LHR issues.
Scope and Status: The project is divided in two components:
1. Capacity building of the Ministry of Fisheries and Environment including the
supplying of basic equipment, training of staff in computers, data collection and
fishery management
2. Monitoring, surveying and conservation of LMR including data collection,
monitoring of biodiversity and the development of partnerships with stakeholders
GEF has allocated US$135,200 to the demonstration project. A staff of 3 was recruited,
equipment was bought, while only 2 payments have taken place due to delays in the transfer
of installments. The project is expected to surmount technical difficulties related to the
situation in Somalia.
6. Demonstration Project in NE Somalia "Puntland"
Title: "Assessment of key habitats and turtle nesting"
SAP Component Links: HBC
Objectives: The main objectives of the project, as prepared by the Ministry of Fisheries,
Ports and Marine Transportation is to develop a strategy in the field of living marine
resources focusing on marine turtle assessments.
Scope and Status:
The above objective is realised through: a) validation of human resources (training,
equipment); and b) monitoring and conservation of marine resources (creating of a fisheries
data centre, assessment of marine biodiversity and key habitats, assessment of turtle
nesting and sea grass bed involving local communities. This project starts the
implementation of the marine turtle RAPs completed through the GEF SAP phase in the
HBC component. An amount of USD $126,700 is allocated by GEF to this project, which is
to be executed by the Ministry of Fisheries. The first workshop took place in September
2003 bringing together all concerned actors. A National Project Coordinator has been
appointed and a set of recommendations were adopted aimed at the effective
implementation of the project and the creation of a favorable environment for its
sustainability.
7. Demonstration Project for Sudan:
Title: "Demonstration Activities Project for Sudan"
SAP Component Links: LMR, HBC, PAP
Objectives: The Demonstration Project implemented in Sudan is composed for four sub-
projects with different objectives.
- Objective of Sub-Project 1: to implement a monitoring programme of coral reefs and
associated key species.
- Objective of sub-project 2: to reduce the pressure on the existing Mangrove habitats
and establish a mechanism for their sustainable use.
54
- Objective of sub-project 3: Restocking of sea cucumber in its natural environment
and training on sea cucumber mariculture.
- Objectives of sub-project 4: Raising the awareness among residents, visitors and
locals about the marine environment and the need for its protection.
Scope and Status:
Linked with the above objectives, the project is composed of four proposals entitled:
1. Use of Biological Indicators for Monitoring Sudanese Coral Reefs near Port Sudan;
2. Rehabilitation of Degraded Mangrove Stands;
3. Establishment of a Pilot Sea Cucumber Hatchery; and
4. Development of an effective partnership between Government and Stakeholders.
GEF funds of $225,000, with a matching in-kind contribution from Sudan are allocated for
these demonstration activities. The inception report has been written, and the
demonstrations sub-projects are already underway. However, there is a consensus that the
time frame for implementation is very limited and might jeopardise outputs and benefits.
Another concern is that researchers are mainly those involved with the demonstration
projects and might not have an impact on decision makers.
.
8. Demonstration Project for Yemen
Title: "Conservation of coastal and marine habitats and ecosystems"
SAP Component Links: MPA, HBC, PAP
Objectives: The main objectives of this project are the following:
Establishment of a coastal/marine protected area along the Luhayya-Midi coastline
and near shore islands;
Monitoring coral reefs in the Yemeni islands between Hodeidah and Midi;
Establishing in Aden a reference collection of preserved specimens of coastal/marine
pol utants;
Enhancing environmental awareness among the local communities along Balhaf-
Burum coastal area; and
Establishing at the EPA-HQ databases for environmental information concerning the
above sites.
Scope and Status:
The project was budgeted with USD $430,000 ($300,000 of which are from GEF). It started
in July 2003 but encountered some disbursement difficulties original y that are now being
resolved. The demo project is seen as a good opportunity to recruit national experts in
biodiversity and management, to raise their capacity and to increase the level of knowledge
in the field of biodiversity and in particular coral reefs and mangroves. The project would
increase the Marine Sciences and Resources Research Centre (Aden) capacities, involve
NGOs and provide scientific and technical equipment to participant bodies. It is hoped that
the duration of the project will not be too short to produce effective results and
achievements.
55
VI CONCLUDING LESSONS & RECOMMENDATIONS
PERSGA and its partnership network of member states, NGOs and other international
organisations have together achieved a great deal during the five year focus of this Project.
This is a very short time frame to realise solid achievements in light of the complexity of
chal enges and opportunities for this globally significant Red Sea and Gulf of Aden area, but
they have managed well. As with any Project of this scale, some elements are more robust
than others. However, the collective results from this Project provide insights and
experiences that provide a solid foundation for further action.
Therefore, this final chapter first provides a synopsis of concluding highlights and specific
next steps for each component. The second part summarises: a) Overall Achievements, b)
Considerations for PERSGA and Partnerships, and c) Considerations for GEF. The
mission hopes these summaries, lessons, and suggested guidance wil engender future
collaboration across a diverse donor and partnership community of many types the
international community, the scientific community, traditional groups, and the private sector
just to name a few.
1. COMPONENT HIGHLIGHTS & INSIGHTS
Institutional Strengthening to Facilitate Regional Cooperation
This component addressed the cross-cutting human resources architecture and leadership
of the Project. Overall the Project has substantially met the goal of ,,institutional
strengthening for PERSGA and its national partners across a wide range of themes,
modalities and scales. These are most visibly demonstrated through the Projects diverse
and substantive range of planning, preparation, reporting, technical, strategic and action plan
training and resulting documents. Other examples of the overall depth and success of this
Institutional Strengthening component are the solid work that has been done in each of the
other components (highlighted subsequently).
While the Project has achieved much, some specific activities were compromised due to the
complex and ambitious nature of this Project and the relatively short time of 5 years
including start up and post-GEF transition. Ideal y a Red Sea Fund would have been
established from the outset and new partnerships forged to ensure a smooth post-GEF
transition, as was original y envisaged. The lesson learned from an institutional
strengthening and project design-execution perspective might be that it is difficult to both
generate ,,first stage results (as the documented environmental baseline was limited in most
areas) and market these at the same time. Therefore the mission suggests future IW
projects build a more tractable, diverse and robust ,,post-GEF transition phase into similar
multi-faceted, multi-scale, large-donor based international waters projects.
56
The most potentially enduring and sustainable legacy of this component is the strong
network of people that are now working together in various ways to continue to address the
balance of protection and sustainable for the RSGA area. Specifically this includes:
engagement of the Council of Ministers for high-level policy dialogue; the Task Force with
representatives from key national and international bodies that were engaged in the Project,
and most crucially the technical and leadership skil s of the Lead Specialists (LS) , Thematic
Experts (TE) and National Coordinators (NC)who were the driving force of implementation
for this Project.
In light of the above, the most compelling next steps are to maintain momentum and further
realise the solid foundation achieved through this Project to date. It is the missions
understanding that this is underway in part. Actions needed are: a) to have constructive
review of the Project by those engaged through a retreat mode (e.g. with the TF, LS, TE,
NC); b) develop a five year plan and related package of fundable projects that is developed
and endorsed by the national and regional partners; and c) organising a workshop to share
and refine results for the decision-makers in the member countries through the COM; and d)
hosting a donors conference (with private and public sector bodies) based on preparation of
the success stories and achievements, as well as globally significant emerging initiatives
such as LBAs and climate change that are highly relevant to the RSGA area.
Reduction of Navigation Risks and Maritime Pollution
This component has been highly successful at strengthening and empowering the existing
network of competent authorities to address a range of maritime safety and pol ution
mitigation chal enges within short to long term time frames. This has largely been realised
through the cultivation of a sense of equal partnerships from a diverse suite of stakeholders,
e.g. national government authorities, private industry (shipping in particular) and the
International Maritime Organization (IMO).
Through these partnerships, which collaborated though the ,,working group approach, a
range of tangible activities were conducted. Most impressive is surveying of the southern
Red Sea for the first time in over 100 years, which has resulted in new routing measures and
new IMO endorsed maritime charts available to all mariners passing through the RSGA
area. Other activities that have been advanced to varying degrees and will be continuing
through a range of initiatives are: the initial establishment of MEMAC (Marine Emergency
Mutual Aid Centre) in Hurgada and assistance to support sustainable functioning of the
Djibouti sub-regional Stockpile Equipment; navigation aids (lighthouse in Yemen); as well as
marine contingency planning and port state control. Activities conducted in this component
are highly relevant to the regional transboundary character of the RSGA area and warrant
focused continued effort and replication across a range of scales and time frames. Chapter
V on ,,emerging initiatives il ustrates how PERSGA is continuing to advance some of these
marine navigation and pollution challenges.
Living Marine Resources
This component has done an excellent job in workshop-based training related to the
establishment of present status/level of knowledge and fishery survey/monitoring methods
for a range of living marine resources species. Data collection capacity and centres are
established throughout the region. Efforts to better understand and ultimately manage the
,,shark fin trade as well as sustainable ornamental trade has advanced but needs more work.
Establishment of regional centres for training in Saudi Arabia and Yemen is commended.
Like the other components, a highlight has been the invaluable role of people in establishing
regional networks of fishery stakeholders across a range of issues, locations and scales.
This component has demonstrated excellent partnership modalities with FAO that can
continued and replicated.
57
Next steps should target further implementation for acceleration of the capacity for the
various centres, and continue to focus on fisheries monitoring and management with other
partners. The emphasis now needs to be implementation on the ground with equipment
facilities to follow on post training and start monitoring programme to build on status findings.
This component has a range of highly specific and fundable elements. Such should
continue to be looked at in collaboration with similar work in the HBC and MPA areas.
Habitats & Biodiversity Conservation
This component has resulted in an excellent network of researchers and stakeholders
through both university and environment ministries links through a broad suite of training and
workshops and on-the-ground work resulting in critical baseline data on key habitats and
species. This component has greatly enhanced knowledge, status, and methods on key
species and habitats that are highly replicable for other time and place contexts. The
standard survey methods are highly replicable elsewhere and also serve a good monitoring
handle. The species action plans for turtles and birds are globally significant and ready for
implementation. The same applies to the comprehensive and excellent regional action plans
(RAPS) for globally threatened ecosystems of coral reefs and mangroves, with the RSGA
having some of the best examples in the world stil .
Essential and immediate next steps should focus on the ongoing implementation of the
species/ habitat action plans as basis for monitoring and regionally linked strategic zoning
and protection programmes, linked with LMR, MPAs and ICZM, and rallying of funding for
this. Each of the action plans contains solid funding outlines that can be taken forward.
Additionally the work on the biodiversity and MPA protocols is commended and needs to be
taken forward.
Development of a Representative Network of Marine Protected Areas
This component has been very successful in advancing the establishment of a network of
marine protected areas, through the enhancement of some existing areas as well as ground
work and formal adoption of several new areas, most notably: Dongonab Bay and
Mukawwar Island in Sudan, Belhaf-Bir Ali in Yemen and Ile des Sept Feres in Djibouti. This
acceleration of MPAs in the region has been accomplished through conducting a range of
ecological and socio-economic workshops, training and surveys accomplished with
involvement and participation of local communities and other stakeholders. Also noteworthy
here is the ,,process utilised by this component. A regional Master Plan was first developed
which then served as template and framework for national level MPA master plans. This
also facilitated sound linkages with the LMR, HBC, ICZM and PAP elements of the project.
These regional and national site-specific master plans can form the basis and justification for
PERSGA to approach donors and solicit financial assistance from international organisations
and NGOs and industry for equipment and staffing to further ensure that these are living
legacies are sustainable and maximised in their role as ecological reservoirs and biodiversity
insurance for the region.
Integrated Coastal Zone Management
This component has been highly valuable to address critical planning and priority setting
intuitional mechanisms in the region. Again the ,,process through which this component was
executed is noteworthy. For example in the northern RS area where there was much ICZM
experience already, the focus was on lessons learned as guidance for the emerging work in
the southern RSGA area. From this design, a series of ,,model ICZM experiences were
developed addressing different issues of scale, e.g. the emphasis on governorate-city
planning for Aden; nationally endorsed work entire coast of Djibouti and the whole coast of
58
Sudan. This is potentially a replicable approach for other places with diverse demographic
and biogeographic contexts and development stages. Like the other components, the
achievements were largely realise through the development of networks of concerned
individuals and organisations as experts and facilitators, which came together through an
ongoing suite of regional training and exchange programmes.
Additionally this component lead on the development of standardised and adaptive data for
region into GIS/IIEM which has proven useful for all components and which wil be
elaborated further through PERSGA and partners. In addition to the GIS/IIEM advancement,
other next steps should incorporated further refinement and application of the continue
application of ICZM at national levels (Sudan, Yemen), as well as use of ICZM as overall
concept for SAP for linking, prioritising, and scaling the many inter-related international
waters activities in the greater RSGA region.
Public Awareness
This component has achieved a great deal, especially at the local level, and through
establishment of a regional networks of members. Examples include the ,,eco clubs now
established in over 150 many schools throughout the region (and 4000 students) which are
largely conducted through local NGOs and teaching groups. Additionally ,,micro grant
projects have allowed a range of trailing different PAP approaches and self/local
management that has been welcomed in al regions. The links with the ,,issues and
,,heritage of the NAV, HBC, LMR components has been highlighted throughout, therefore
raising the awareness overall of the region on the valuable treasures as wel as threats in the
RSGA region. It is important to maintain the momentum of PAP activities generated so far,
specifically the regional network and the nationally oriented Environmental clubs. PERSGA
needs to use learning and avenues from this PAP experience to further engage with NGOs
and local stakeholders. However, there is an equal y important, and immediate need to
target public awareness and outreach now to the decision-maker as well.
2. OVERALL PROJECT ACHIEVEMENTS HIGHLIGHTS
The following presents a summary of cross-cutting and integrated achievements of the
Project that have evolved from the component-specific work as well as collective synergy
from the Project, PERSGA and the many partnerships and networks that have been
developed through the Project and before.
Enhanced knowledge networks, environmental baseline, status, science values:
Enhanced environmental baseline: The project produced a set of excellent
documents and new information baselines. These provide a more accurate vision of
the state of environment of the region (PESGA web site, library etc.) The reports are
comprehensive to international standard. They are also electronically available
through the web.
National and Regional benefits of environmental knowledge: The more
comprehensive knowledge base of the marine environmental status is now advanced
for all countries (e.g. surveys of habitats, key species (commercial fish, threatened
species, migratory species) and will contribute to national benefits and regional
connections.
Enhanced public awareness of environment: As a result of the enhanced
environmental status and understanding, there is an overall there is an increase in
understanding and ability to raise awareness about RSGA issues through national
59
and regional focal points and coordinators. This was especial y crucial where there
were different levels of baseline knowledge and capacity, so that new horizons and
progress could be realised by all countries.
Global significance of the RSGA region: Increased awareness to the world of the
values and chal enges that are special and unique to the RSGA region,
demonstrating the true ,,global significance of the RS from geological, ecological and
demographic perspectives. This provides sound platforms to link with and contribute
to other International Waters and Regional Seas concerns and chal enges - these
regional seas are distinct but global complements to each other and the world.
Establishment of an enabling policy climate:
There was considerable progress in legal policy context and protocol developments,
in particular the advances in protocols and related action plans or strategies for the
land-based pol ution as well as the protocols on marine protected areas and
biodiversity. The environmental review provides a useful legislative baseline for the
region and this needs to be now linked with actual or potential policy opportunities for
on-the-ground changes.
Enhanced networks, coordination and management capacity across scales:
Regional-local networks established for coordinated approaches to diverse marine
resources and chal enges: The SAP succeeded in deepening the ,,regional
international waters concepts, tools, mechanisms that are needed to address
common shared resources of the interconnected Red Sea. It helped national
institutions realise the need to plan and manage coastal areas and marine resources
in a coordinated way.
Local regional processes and scales: The project laid down seeds for translating
the idea of thinking regional acting local in the RSGA area. Increased ability to make
priority and strategic assessments across different scales and purposes. E.g.
developing ICZM for Aden in Yemen and national scale in Djibouti; or MPAs in
specific places that link ecologically and provided ,,learning complements as a
regional network.
Enhanced national - regional prioritisation capacity (assessment, planning and
implementation): Increased ability to conduct integrated planning and implementation
design through networking approaches that support knowledge exchange and
addressing gaps, e.g. RAPs, MPA master Plan, Information Management and
Navigation. Promotion of the national expertise and capacities in management (not
just science) has increased, e.g. navigation, MPAs, and implementation of projects,
drafting plans, elaborating projects. Most issues are now approached and addressed
through inter-ministerial, participatory approaches, including key stakeholders and
other partners.
3.
CONSIDERATIONS for PERSGA and PARTNERSHIPS
It is the missions understanding that PERSGA is already taking on board many of the
suggestions below, so they are noted here in the spirit of endorsement as PERSGA moves
forward beyond the GEF Project phase. In particular, the mission supports PERSGAs
present focus in the development of a ,,Strategy and Business Plan for PERSGA (April 2004)
60
which can serve as a complement to this evaluation report and help to take the evaluation
reports findings forward in a proactive way.
Partnerships and sustainability:
Building on international partnerships: While some elements of the project were
compromised due to lack of funds, the Project managed to be implemented in an
ongoing spirit of partnerships, especially in the case of the navigation component
with IMO and the LMR with FAO, as well as PAP with local stakeholders. PERSGA
needs to build on these examples through alliances with other organisations that
have an interest in the regional nature of the RS and PERSGA, e.g. GPA, CBD,
UNESCO for different themes.
Diversifying partnerships: Additionally there is a need for increased engagement with
other international partners, beyond the UN-oriented international community, but to
a range of private and public sector stakeholders who have an interest in sustainable
management of RSGA resources.
Recurrent and consistent financial streams needed: Look at devising and designing
instruments that would allow small but steady flow of financial (e.g. charge,
economical instrument, recurrent funding). For example, e.g. air tickets, or ship fees
through Suez Canal.
Having a vision and clear path: Key elements in the project ,,vision and goals which
were to help strengthen the regional elements and sustainability flow from the project
need further attention. In particular this applies to progress on development of
financial sustainability (new approaches, self financing), monitoring and assessment
of project progress to build ongoing partnerships and establishment of the Red Sea
Environmental Fund (or similar).
Project design, scope and phasing challenges:
Ambitious scope and scale of some activities: Overall the project scope and scale
was ambitious, therefore activities were achieved to varying degrees as reassessed
at the MTE. One result was the recommendation for demonstration activities to
initiate implementation and to realise some of the baseline work and action plans
developed through the project for some key issues (e.g. ornamental fish trade,
environmental monitoring etc.), fostering a stronger sense of ,,country ownership.
However, it may prove that some of these will be chal enging in the one year time
frame, so PERSGA and national partners wil need to continue efforts on these
demonstration efforts.
Simplifying the package of components: While the Project was designed around 8
groupings, it is suggested that PERSGA further integrate these 8 component into 5
related and inter-connected themes. These could be along the lines of:
- Regional Leadership, Coordination and Partnerships (IS and M&E)
- Sustainable use and development seas and coasts in the RSGA (ICZM)
- Stakeholder Awareness and Participation (PAP)
- Marine Emergency Preparedness (NAV)
- Marine Biodiversity Use and Conservation (LMR, HBC, MPA)
Phasing considerations: Building on the GEF Project experience, in future PERSGA
may wish to propose more of a phased approach to project designs with large
donors. These could be more realistically anticipated the long start up times,
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maximum effort in the final third of a project, and then a better exit or phase out of
core donor funds, to be replaced by more sustainable or diverse funds.
Raising the ,,standard or ,,baseline for all countries: The project largely focused on
getting the southern RS nations up to a higher level of environmental status,
knowledge and capacity. The northern countries served as trainers and insights
from lessons learned from previous experience. There now needs to be activities
(e.g. international collaboration on climate change, coral reef monitoring, sustainable
tourism) that also offer opportunities for the northern countries to reach new goals for
their needs as well, thereby further expanding the overall ,,baseline of capacity in the
region, e.g. more links with international and other regional seas groups.
Regional National coordination and outreach:
Clarity regional benefits and added value of PERSGA: The project and subsequent
phases could more clearly identify and profile the added values of having a regional
body to serve as a conduit between international and national interests and
opportunities.
Maintaining interest and continuity of key persons: Prepare an outline a series of key
activities and events over the next year that wil keep the existing task forces,
working groups, specialists interested in PERSGA and the work they achieved to
date, while PERSGA is working on new funding. It is essential to keep the
knowledge teams and momentum going.
Enhance self-monitoring mechanisms: Internal, or self-assessment by PERSGA of
their own work could be better incorporated into ongoing activities and monitoring.
For example, the special review and mid-term could have been conducted in part as
a ,,retreat in a positive climate of engagement with all focal points, working group
leaders etc. to have them part of the review process, as a complement to other
external reviews.
Maximise Information outreach opportunities and disseminate outputs: In that many
of the many products just now being finalised, there is an immediate need to target
outreach and information flow from PERSGA to national counterparts. Get all
products on the web as soon as possible, and maintain regular updates. Linked with
,,donor preparation above, review and target a broad range of audiences and get
materials directly to them. Have PERSGA staff attend and give talks a key
meetings/conferences that address various SAP themes.
Language and cultural challenges: Throughout the project, there was a continued to
chal enge to not only have key meetings, workshops and products in both Arabic (for
the region), English (for the international community) but also will continue to need to
hold meetings in French for Djibouti.
Critical Assessment of Achievements:
SAP Retreat: Conduct a retreat for all key SAP participants (task force, working
groups, specialists) to ,,celebrate and reflect on a job well done and to help design a
series of project activities to keep the SAP goals going. This would be in addition to
and complement the GEF required evaluations. This would be a participatory
approach to help PERSGA create a vision and new action plan. PERSGA would
have a draft plan to start with but use this process to engage and refine.
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Output assessment and consolidation: There is a need for a thorough assessment
and consolidation of all outputs (data, maps etc.), from which a 5-year plan can be
prepared in a participatory manner that would constitute a basis for:
- Continued member country contributions to PERSGA
- Attract donors and other funding bodies
- Attract private sector
- Establish Red Sea fund
Target Audiences: Compile a synthesis of the different products and materials that
have been produced through the GEF SAP that can be packaged for different
audiences: a) brochure for general; b) ,,updated RSGA status and knowledge report
for more technical, summarising various technical and science baseline reports; and
c) future projects by themes/components for different audiences/donors. These
could be targeted around the 5 proposed new themes for PERSGA (or similar).
New Horizons for RSGA Action:
Link SAP with Land Based Activities: Enhanced work addressing issues related to
land-based activities (assessment and control) that are pol uting the sea, as
il ustrated by ICZM and the emerging work on the REMP and the LBA protocol.
Red Sea as ,,Indicator Sea: Develop better exchange-learning based relationships
between scientists and labs in the RSGA and other universities/research groups
interested in similar coral reef, climate change issues. The Red Sea is a globally
relevant ,,indicator sea of the state of climate around the world.
Enhanced Ongoing Monitoring & Evaluation:
Fol ow on SAP reporting and updating: Put in place a mechanism to follow up SAP
implementation including reporting that is clear and tractable, including the constant
updating of web site.
Self-appraisal mechanisms needed: Enhance existing mechanisms of ,,self
appraising in the future projects, such as retreats, feedback on workshops etc.
4.
CONSIDERATIONS FOR GEF
Linking Marine Science with Sustainability:
Targeted research: Explore the new ,,targeted research avenue of GEF funding,
especially with regard to coral reefs and climate change, and role of Red Sea as an
,,indicator sea. Foster integration of the PERSGA region and activities into existing
and pipeline GEF avenues on these topics.
Issues of scale: Use this PERSGA SAP experience as a means to explore levels of
ecological scale issues that are relevant for transboundary water bodies and national
and regional efforts, in order to foster a more holistic and ecosystem-based approach
to marine resource management here and other regional marine seas.
Fisheries Management Changes: Use this PERSGA SAP work to link with the
Convention on Biodiversity to help globally link fisheries management with habitat
and ecosystem based conservation efforts, getting away for single-stock species
target quota approaches.
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MPA and Biodiversity Protocols: Explore how the protocols for SPAMI
(Mediterranean) and SPAW (Caribbean) have worked well to cultivate regional and
national MPA linkages and what applications, lessons might be relevant for the
PERSGA region. Additionally, the MPA network can be linked with others for
examining new spatial and time approaches to marine conservation taking into
account the inherently dynamic nature of marine ecosystems.
Regional Seas collaboration: Support workshops across the various ,,regional seas
bodies and partners world wide to share experience in managing international waters
contexts.
Project Design Considerations:
Linking GEF projects in the region: Ensure that other GEF projects in the region
which are in various phases of start-up, implementation and closure can benefit and
contribute to this regional PERSGA experience.
Preliminary scoping and implementation trials: Better utilisation of project
development phases (PDF) periods and opportunities to adjust the scope of the
project, using criteria of feasibility. Consider developing a more rigorous process of
,,phase out for GEF Projects in a similar way PDFs are used to ,,phase in.
Sustainability: Design sustainability firmly into the project design and ongoing
implementation, especially for International Waters projects that have transboundary,
multiple scale, and timing challenges.
In closing, The mission hopes this report and insights convey our sense endorsement,
congratulations, inspiration and energy to all those who have worked hard on this Project.
PERSGA and its partners have achieved a great deal. There is now a solid foundation of
much needed baseline information on marine resources, as well as a suite of invaluable and
experienced networks of people throughout the region. We hope PERSGAs experience
through this Project wil continue to catalyze and guide future partnerships for innovative
development. We encourage all donors and people who value the Red Sea and Gulf of
Adens vibrant heritage to take time to consider the many action plans and ideas that have
emerged from this Project; and reflect on how you can contribute in a way that wil ensure
the long-term security and vitality of the regions natural and cultural heritage for generations
to come.
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